HomeMy WebLinkAbout80-216F
voL 36PAGE 568
BEFORE THE BOARD OF COUNTY COMMISSIONERS OF DESCHUTES COUNTY, OREGON
An Ordinance Adopting Legislative )
Findings, the Comprehensive Land Use )
Plan Within the Bend Urban Growth )
Boundary, an Exceptions Statement )
for the Bend Urban Growth Boundary, )
and the Bend Area General Plan Map; )
Repealing Ordinance No. PL -10; ) D
Declaring an Emergency; and Providing )
an Effective Date. ) Tj ( I ; 7980
ORDINANCE NO. 80-216 ROSEMARY PATTERSO,y
t�ESCHUTES COUNTY CLEm
WHEREAS, the Board of County Commissioners of Deschutes
County, Oregon, and the Bend City Commission have held hearings on
the Comprehensive Plan within the Bend Urban Growth Boundary; and
WHEREAS, the Board of County Commissioners has considered
amendments to said Plan; and
WHEREAS, certain findings entitled, "Urban Growth Boundary,"
and "Economics and Population Bend Area General Plan," have been
considered as the findings of the Board of County Commissioners in
support of the General Plan Map and Exceptions Statement adopted by
this Ordinance; now, therefore,
THE BOARD OF COUNTY COMMISSIONERS OF DESCHUTES COUNTY,
OREGON, ORDAINS as follows:
Section 1. The Board of County Co=issioners makes
legislative findings in support of this Ordinance entitled, "Urban
Growth Boundary," marked Exhibit A, a copy of which is attached
hereto and by this reference incorporated herein, and entitled,
"Economics and Population Bend Area General Plan," marked Exhibit B,
a copy of which is attached hereto and by this reference incorporated
herein.
Section 2. That the General Plan, marked Exhibit C,
attached hereto and by this reference incorporated herein; Exceptions
Statement, marked Exhibit D, attached hereto and by this reference
incorporated herein; and the Bend ARea General Plan Map, marked
Exhibit E, attached hereto and by this reference incorporated herein;
are hereby adopted.
Section 3. Ordinance No. PL -10, the Bend Area General
Plan, and all amendments thereto, are hereby repealed.
ORDINANCE NO. 80-216, PAGE 1
4 �
VOL 36PAGf, 569
Section 4. This Ordinance being necessary for the immediate
preservation of pu lic peace, health and safety, an emergency is
declared to exist, and this Ordinance takes effect on January 1, 1981.
DATED this I" day of /2� , 1980.
ATTEST:
1A ox,
TAMMY J. I ARDSON
Recordinff Secretary
ORDINANCE NO. 80-216, PAGE 2
BOARD OF COUNTY COMMISSIONERS
OF DESCHUTES COUNTY, OREGON
REVISED: 10/20/80
VOL 36PAGE 5'70
URBAN GROWTH BOUNDARY
History -
The City of Bend and Deschutes County adopted an urban growth boundary in 1972,
and revised this boundary in 1974, 1976 and 1978. This boundary was submitted to
LCDC in the fall of 1979 with the City's request for acknowledgment. LCDC ruled
that the boundary was too large, and the city and county accepted a 120 -day continuance
to revise the boundary. The alternatives available are: (1) justify the existing
boundary; (2) justify a dual boundary - a boundary inside the existing boundary;
(3) justify a new boundary.
After review of the seven factors upon which a boundary is evaluated, the develop-
ment of a dual boundary was selected as the most appropriate. The dual boundary con-
cept would maintain the existing urban growth boundary and draw a new Initial Urban
Growth Boundary. The new boundary would encompass needed and committed lands. This
concept would also say that if additional lands were needed in the future, the area
contained between the two boundaries would be placed in an urban reserve designation.
Boundary Description -
The plan map includes both the IUGB and the UGB. The IUGB includes lands that
are within the city limits; lands that are committed -due to the existing development;
lands that are committed due to monies paid to the city for construction of sewer
lines, and paid to the county for construction of major roads; and lands that are
committed due to approvals given by the city and county based on the old plan.
32.25
The IUGB contains / square miles. Table 1 shows the buildable lands by plan
designation and zoning category for the IUGB.
The economic and population forecasts indicate the need for an additional 8,000
acres of land. Table 1 gives the residential land needed by the year 2000. Comparing
land needs to buildable lands by category, it can be seen that adequate land is con-
tained within the IUGB. Therefore, the IUGB is based upon factors that demonstrate
a commitment to urbanization. The IUGB is described by portions below.
Approximately 6858 acres were excluded from the UGB, resulting in 20642.47 acres
being contained within the IUGB. This is a 24.94 percent reduction in the urbanizable
land. A review of the vacant lands by parcel size, by ownerships, and by slope shows
the following: (1) within the city, 52 percent of the vacant land is owned by Brooks
Resources; 40 percent of the ground has slopes in excess of 10 percent, and of the
parcels greater than 20 acres in size, Brooks Resources owns 80 percent; (2) within
the IUGB, five owners have 42 percent of the vacant land, and 60 percent of the parcels
are over 20 acres in size. The majority of the vacant land is buildable.
These facts reveal that, while considerable land is vacant within the IUGB, larger
parcels are scarce, and the majority is owned by existing development concerns. Re-
liance on these concerns to provide housing and/or lots should be closely monitored
in order to avoid any adverse price influences.
E X H I B I T A
VOL 36PAGE 571 ,
The community completely updated its land use inventory and analyzed the vacant
lands for building suitability. While very little of this area is subject to natural
hazards, the slopes do and will increase housing costs. Our analysis revealed that
there are adequate amounts of land available for all types of housing. The area's
biggest problem is the lack of sewers. Very little land is now serviced with sewers.
However, the city's system is expected to be activated in 1981. This will allow much
of the land to be serviced during the next 20 years. Additionally, in the south,
the Juniper Utility Company sewer system is planned to serve the rest of Ward's develop-
ment land.
The following specific findings are the basis of the rational for the IUGB:
Boundary Findings -
1. The IUGB contains 17,954 acres of land, and these acres are buildable.
2. The population is expected to increase from 33,000 now to 84,000 in 2000.
3. The land needed for commercial, industrial, residential, and other uses
is 8,000 acres. There is enough buildable land and lots within the IUGB.
4. The existing pattern of development is the single biggest factor in the
location of the IUGB. This pattern bagan in the early 19601s, and has
been built upon since.
5. The IUGB excludes approximately 10. 72 square miles from the urbanizable
area contained in the 1979 boundary previously submitted to LCDC.
6. Areas excluded are designated Urban Reserve and will be zoned as Urban
Reserve -10.
7. There is buildable land in the various land use categories to meet the needs
through 2000 within the IUGB.
B. Energy will be conserved by the IUGB by encouraging the infilling within
the pattern of existing development, and by increasing the density of
development.
9. The provision of public facilities and services will be more efficient with
the IUGB because a smaller area will be served.
10. The IUGB reflects commitments the city and county have made in terms of sewer
service, road construction requirements, and development approval during the
past four years.
11. The IUGB provides compatibility with forest and agricultural lands by desig-
nating intervening lands within the UBG as urban reserve.
12. The urbanization policies will promote infilling and an efficient urban
development pattern.
13. The IUGB is site specific and takes into account existing development, exist-
ing and planned services, major public land ownerships, and development
approvals.
-2-
,
VOL JUPAGE 5'72
14. The city and county management agreement provides for coordination, com-
munication, and review of land use actions within the UGB.
15. The area within the UGB is committed to urban development by the existing
pattern of land use, the existing city limits, existing and proposed
sewer services.
The following pages describe the boundary by section and show the vacant and
buildable areas.
--3-
VOL 36PAGE 573
IUGB - SPECIFIC FINDINGS
A. EAST SIDE
This area is characterized by a mixture of land uses including Pilot Butte
State Park and parcels ranging up to 80 acres in size. Map 1 depicts the
existing development pattern. The City's Phase II sewer and water service areas
cover all but the existing Reed Market and Daly Estates subdivisions. This area
will provide the source of higher density commercial and residential development
on the east side of the community; the majority of the larger parcels have received
the commitment to urbanization.
Acreage: 1839.61
Land Use: Mixed, mainly residential and commercial
Comprehensive Plan Designation: Commercial, standard, medium, and high density
residential.
Soil Classification: Majority is Sb scabland Class VII
Zoning: RS Standard Residential, RM Medium Density Residential, RH HIgh Density
Residential, CL Limited Commercial, CH Highway Commercial, and CG General Commercial
Sewer: Reasonably available
Water: Reasonably available
Other lands on the east side were excluded from the IUGB due to the lack of or
planning for sewer and water service, their location adjacent to areas zoned EFU-20,
and the generally larger parcel sizes. This amounts to approximately 268 acres.
The 268 acres will be placed in a UAR zone until needed for urbanization.
VOL ilanGE 574
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VOL 36ME 5 77
B. NORTH SIDE
The north side contains approximately 2,370 acres of land. The area either
side of Highway 97 is planned for commercial, and existing uses are scattered along
this route. The area east of the railroad and south of Nels Anderson Road is planned
for industrial development. The majority of the land is within the Phase II sewer
and water service areas. Those areas outside of the Phase II area are existing
urban subdivisions and mobile home developments. The area between Highway 20 and
Highway 97 is planned for commercial and industrial development. West of Highway
20, the area contains existing urban subdivisions and small parcels from 1/4 acre
up to 15 acres in size. This area contains the two malls and the majority of light
industrial development that has occured in the last five years. The following data
describes this area.
Acreage: 2,370.23
Land Use: Mixed commercial, industrial, and residential
Comprehensive Plan Designation: Commercial, industrial, standard, and medium density
residential
Soil Classifications: Majority is SB Class VII, with minor areas of Dc Class III -VI
Zoning: RS Standard Residential, CH Highway Commercial, IL Light Industrial, IG General
Industrial, IP Industrial Park, RL Urban Low Density Residential
Other lands have been excluded due to the lack of or planning for sewer or
water service. The parcels range in size from 2-1/2 acres up to 500+ acres. The
IUGB excludes properties that abut EFU-20 zoning, lands that have farm deferrals,
and areas where parcel sizes have not created an urban condition. There are 3605
acres excluded by the new IUGB on the northside.
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VOL J�PAGE �S�
D. SOUTH SIDE
The IUGB on the south side includes a variety of activities from Diamond Inter-
national mill to urban subdivisions like Timber Ridge, Romaine Village, and Home-
stead at the outer edges of the boundary. The pattern of existing urban developments
goes south to the U.S. Forest Service land near Lava Butte. However, most of these
areas were excluded since inclusion would have resulted in two to three times as
much land as currently in the IUGB. Approximately 1/3 of the area is within the
City's sewer and water service areas. Several private utilities supply water in
this area, and one, Juniper Utility Co., supplies water and sewer to land owned by
owners of the.utility compancy. The County has required China Hat Road to be
improved by developers in the south part of the UGB.
Development approvals exist throughout this area in widely scattered locations.
These approvals together with the existing developments, the required street improve-
ments commit this land to urbanization.
Acreage: 5099.73
Land Use: Heavy industrial, light industrial, highway commercial, apartments, mobile
home parks, and urban subdivisions.
Comprehensive Plan Designation: Industrial; commercial; low, standard, and medium
residential; area of special interest
Soil Classification: Majority is SB scabland Class VII
Zoning: RL Low Density, RS Standard Density, RM Medium Density Residential; CH High-
way Commercial; IG General Industrial; IL Light Industrial
Sewer: City system can be extended within Phase II service area; Juniper Utility
Company provides service to Ward's land
Water: Reasonably available
Other lands have been excluded from the IUGB, comprising approximately 497 acres of
land. These areas are generally outside of the existing utility systems and next to
areas that have agriculture uses outside the UGB.
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VOL 36ME 585
C. WEST SIDE
The west side IUGB line follows the existing City limits and property lines of
ownerships that contributed to the construction of the City's Newport sewer inter-
ceptor. The area includes properties that are commited to urbanization by existing
development, such as Entrada Lodge, Sunrise village, First on the Hill, and the
present Cascade Junior High School. The following information describes the lands
within the IUGB.
Acreage: 2038.61
Land Use: Commercial, destination resort, surface mining, demolition landfill
Comprehensive Plan Designation: Residential, industrial, and commercial
Soil Classifications: No detailed classification. General soils map indicates
poor agricultur potential, but some potential for forest uses
Zoning: RS Standard Residential, IP Industrial Park, IG General Industrial, CL
Limited Commercial, RM Medium Density Residential, and RH High Density Residential
Sewer: Reasonably available
Water: Reasonably available
Lands have been excluded that are outside the sewer boundary and not approved
for development, that are underlain by sand and gravel deposits, or that abut the
Tumalo Deer Winter Range. A total of a60.25acres were excluded; this area is
zoned SM Surface Mining and UAR as appropriate.
•
VOL
36PAGE 586
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VOL 36PAGE 589
VACANT LANDS BY LARGE LAND OWNERS
City - Total Vacant Residential Land
Property Owners: Brooks Resources
Clyde Purcell
North Side - Total Vacant Residential Land
Property Owners: Clyde Purcell
South Side - Total Vacant Residential Land
Property Owners: Jan Ward
West Side - Total Vacant Residential Land
Property Owners: Bill Miller
Bill Lundgren
3754.98 acres
2129.78 acres (56.720)
190.04 acres (5.06%)
1067.83 acres
88.37 acres (8.27%)
2829.08 acres
868.61 acres (30.70%)
1644.70 acres
551.86 acres (33.55%)
481.52 acres (29.28%)
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16630 Dwellings 5,543 Dwellings
3.5 D/A = 4,751 Acres - 20 D/A = 277 Acres
COMPARISON
Single Family Multiple Family
1.6 D/A 3.5 D/A Density 20 D/A 40 D/A
2459 6252 Acres Available 444 192
4,751 Acres Needed 277
TABLE 1
VOL
36PAGE
591
IUGB LAND USE AND
ZONING SUMMARY
BUILDABLE VACANT LANDS
UAR7-10
SR-2-j RL
RS
RM
RH
Area 1
43.03
-- 245.44
691.30
12.08
14.66
Area 2
293.86
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477.72
14.26
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Area 3
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5.62
Area 4
_118.49
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719.02
11.48
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Subtotal
672.65
48.38 2459.14
3304.84
42.83
20.28
City
233.50
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.2947.77
401.28
172.43
TOTAL
906.15
48.38 2459.14
6252.61
444.11
192.71
Dwellings/Acre 1.6
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20
40
Potential
Dwellings
3934
21884 8882
7708
% r
25818
16590
42408
X Number
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2.3
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Population
-97538
Land Needed
to House
2000 Population
51,000
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2.3 p/d
22,174 Dwellings
75% SF 25% MF
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16630 Dwellings 5,543 Dwellings
3.5 D/A = 4,751 Acres - 20 D/A = 277 Acres
COMPARISON
Single Family Multiple Family
1.6 D/A 3.5 D/A Density 20 D/A 40 D/A
2459 6252 Acres Available 444 192
4,751 Acres Needed 277
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VOL
r REVISED: 10/20/80
ECONOMICS AND POPULATION
BEND AREA GENERAL PLAN
E X H I B I T B
PART II
36PAGE 59'7
VOL 36PAGE 598
INTRODUCTION
In 1973 Deschutes County and the City of Bend jointly commissioned the preparation
of the Bend Area General Plan. The initial work on the economic element was done by
the consulting firms of Patterson, Langford and Stewart and Al Keisker, Inc. Since
that time the Bend area has gone through one recession and a period of very rapid
growth.
The areas of growth closely parallel the forecasts of the 197+ Part II report.
It is now time to update this report and begin looking at the City and Urban Area
potential, beyond 1985 to the year 2000. This is necessary to comply with the State-
wide Goals to maintain and update the City's comprehensive plan, and due to the rapid
changes that have occurred in the past five years.
These changes have resulted in community concerns about the adequacy of land for
commercial, industrial, and high density lands; and about the community's ability to
keep up with the demand placed on its water, sewer, and street systems. Recent reports
for School District No. 1 forecast needs for new facilities through 2000 at an estimated
cost of over 100 million in 1979 dollars.
This update then is intended to answer the basic needs outlined above and to provide
the community a sense of scale of the changes that are likely to occur, and some estimate
of the facility needs that the City and County are likely to have to fund during the
next 20 years. The first chapter considers the economic situation, trends and projec-
tions. The second deals with population changes and projections; the third chapter
makes an analysis of residential patterns and land needs. The fourth and fifth chapters
deal with commercial and industrial land needs; and the sixth chapter deals with the
capital improvement budget needs of the City, based on the expected employment, popula-
tion, and land use changes.
-1-
VOL 36PAGE 599
Chapter 1
ECONOMIC GROWTH, ANALYSIS AND PROJECTIONS
In 1979, the Bend Area had an estimated population of 33,000 people. The area
and the region have experienced a sustained ten year period of rapid expansion in
economic activity and employment. Recent reports forecast continued expansion of
job opportunities within Central Oregon, Deschutes County, and the Bend Area. As
employment opportunity grows, so too will population. The most recent forecasts, in
1979, indicate that population in the Bend Urban Area is likely to more than double
by the end of the century.
Future growth is likely to be in response to economic development in the area.
This chapter focuses on the local economy. Later chapters assess the population,
housing and land requirements, and public facility infrastructure needs that will
support the expected economic growth.
The Bend Area has historically accounted for 64 percent of the County's popula-
tion, and a corresponding share of employment. The majority of the population growth
has been a direct result of economic growth. A small portion, 10 percent or less,
can be attributed to retirement to the Bend Area. Economic growth has stimulated the
recent period of rapid population growth. Growth in basic employment has led the way
for all other employment growth and the development of the community's economis base.
Consider the definition of the economic base which will provide focus to the analysis
which follows:
"The economic base of any area, whether it be a region, a community or
some other geographic or political unit, is composed of certain "basic"
activites which essentially export products and/or services to points
outside the local area, or find markets for their products and/or services
amount persons or groups who came from outside the area's economic boundaries.
"These activities may take many forms. The growing of food, the process-
ing of food products, and related agricultural pursuits are typically
economic base functions, as are activities which tap natural resources
such as forestry, mining, oil and gas extraction, and commercial fishing.
Finally tourism provides the most common example of an economic base
function resulting from services rendered to persons or groups coming
into the local economy."
-2-
VOL 36POE 600
In the Bend economy, growth in the "basic" sectors has been particularly
strong. Besides growth in manufacturing, tourism and recreation, the Bend Area's
emergence as a regional trade center have contributed to "basic" employment and
subsequent development of the area's economic base. Table 1 presents 1970-78
employment statistics, by industrial sector, which illustrates these trends. Although
for the entire county, they are representative, proportionately, of the changes occuring
within the Bend economy.
Both the labor force and the total number employed approximately doubled, 98.8 .
and 101.6 percent increases, respectively. Manufacturing growth, leading "basic"
employment sectors, posted a 71.8 percent increase. The greatest gains in the
number of new jobs occurred in the lumber and wood products industry. Strong gains
in other manufacturing industries however are indicative of the diversification
occurring within the Bend Area economy.
The growth in the non -manufacturing sectors has been even more dramatic. This
impact has had a two -fold effect. First, greater diversification has occurred through-
out the entire County economy, fostered by increases in "basic" employment. This is
true for manufacturing as well as tourism and recreation and regional trade. Second,
a large share of the County's "non -basic" employment growth has been in the Bend Area,
coincidental with its emergence as a regional trade center. The data in Table 2
compare the distribution of employment for the County, by employment category. These
data illustrate the pattern of diversification occurring within the area's economy,
particularly in the non -manufacturing categories.
Future growth in the Bend Area economy will be affected by and depend upon several
factors. However, recent forecasts envision continued growth in manufacturing, regional
service, and destination tourism. The announcement by Tektronix to locate in Redmond
is considered a precursor to other "foot loose" and support industries moving to the
area to take advantage of the quality of life and untapped labor pool. These recent
studies parallel those of the 197+ forecasts, but carry through to
-3-
•
VOL
36PAGE 60i
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voL 36ME 603
the year 2000. Lumber and wood products are expected to remain strong throughout the
next twenty years. The region's timber supply appears adequate to support existing
production levels as well as to accommodate opportunities for new product development
in the soft pine market.
During recent months, the nation has gone through another gasoline shortage and
major price increases. Many citizens have expressed concern about the effect increased
hortages or higher prices will have on the County and area employment in the future.
Studies(1) conducted for Administrative School District No. 1 (the Bend School District)
analyze the tri -county economy and the Bend Area, with respect to the impact of gasoline_
shortages. These reports are generally optimistic about the area's role as a tourist
destination. While longer range automobile tourism might be affected, the area's
strength lies in its skiing, hunting, fishing, and resorts as destinations. The tre-
mendous growth in the area's non -manufacturing employment from 1970-78 (118.9 percent)
represents a "catching -up" period. Prior to the mid -1970's the area was under -represented
in many of the non -manufacturing categories. This reflects a trade drain from central
Oregon to the Willamette Valley. Bend is now capturing the local trade and beginning
to emerge as a trade and service center. Several recent developments support this
contention:
(1) The addition in 1979-80 of over x+00,000 square feet of new retail space,
most of which is located in two integrated mall developments.
(2) The emergence of the St. Charles Medical Center as a major regional
facility, boasting a staff of more than 90 physicians in the 182 -bed
facility.
(3) The number of firms in the services sector in Deschutes County increased
nearly 50 percent between 1973 and 1977 (Leland and Hobson); most of
this growth occurred in the Bend Urban Area.
(4) Full and part-time credit enrollment at Central Oregon Community College
is nearing 2,000 students, an enrollment threshold which produces scale
economics in operation sufficient to support broadening of the cirriculum
offerings.
(5) The planned expansion of facilities at the Mt. Bachelor Ski Area from
the existing capacity of approximately 8,000 skiers per day to a level
of approximately 12,000 by 1985, and to 20,000 skiers per day by the
end of the century.
Q
VOL 36nu bU4
Detailed analysis indicates that retail trade, finance, insurance, and real
estate services consistently show a concentration in the Bend Area greater than
necessary to support the local population. At the present time it appears that
between 1,400 and 1,500 jobs within a total employment of 18,000 can be directly
associated with non -manufacturing activities supported from outside the area. The
available data do not allow segregation of this share of employment into its com-
ponents. Its basic elements are assumed to be (1) regional demand for trade and
services and (2) the demand for recreational activities. Recreational demand most
likely dominates at present. However, the current rapid growth in the commercial
sector, particularly retail trade in Bend, supports the contention that while recrea-
tional deman will continue to grow and be important, it will soon be out -stripped by
regional demand. This suggests two conclusions: (1) recreational demand will continue
to be an important source of jobs and income for the Bend economy, and (2) Bend is
beginning to establish itself as a full-scale regional center for Central Oregon. As
this continues, Bend will capture a greater share of the regional trade market and
benefit from the resulting diversification.
Several forecasts of future employment in Deschutes County are available. This
plan uses projections derived from a recent study of the Bend Area economy (1) because
they appear to more accurately reflect conditions specific to the County economy.
These forecasts of future employment, 1980-2000, are presented in Table 3. They
are derived from County projections and assume that the Bend Urban Area's share of
total County employment will increase gradually during the planning period from 65
percent in 1980 to 75 percent in 2000. This assumption is consistent with the County
Comprehensive Plan objectives of limiting future development outside of the urbanized
areas in Deschutes County. The recent business and attitude surveys by Dr. Fredrick
Obermiller found that most people in the County, and particularly Bend, felt that Redmond
would be the growth center in the coming years. This is the reverse of what has been
happening.
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VOL 36ME 606
Assuming that the historical average of rate unemployment persists, these data
imply that between 1980 and 2000 an estimated 22,700 new jobs will develop within the
Bend area economy. The bulk of these will occur in wage and salary employment, number-
ing nearly 19,300. The remainder will occur in agricultural and self-employed occupations.
Several conclusions can be drawn from these data:
# Growth in manufacturing employment will average approximately 90 new jobs
yearly in the first decade of the planning period, but at double that annual
rate during the second decade of the period. This implies that industrial
land requirements may become increasingly important as manufacturing employ-
ment expands in the last half of the planning period.
The strong growth in non -manufacturing employment, nearly 16,500 during
the 20 year period, reflects the area's function as a regional trade
center as well as a major recreation/tourist destination.
Wholesale and retail trades employment will increase at an annual average
rate of 4.7 percent. This strong growth will result from the area's con-
tinuing development as a regional trade center.
Dramatic growth in the services sector reflects both the continuing
effect on Bend's role as a regional center as well as the expected
expansion of recreational and destination resort/tourist facilities in
the area.
# Much of the area's future "basic" employment opportunities will occur
within the non -manufacturing sectors.
Clearly, this level of continued growth will present any number of challenges to
viable planning for the area's future; e.g., such impacts as regional trade malls on
the City's outskirts against maintaining the competitive integrity of the downtown
area is already an issue which will require careful scrutiny and monitoring. The
siting of facilities associated with recreational opportunities, especially winter
sports, must be carefully evaluated and coordinated with the long-term development of
adequate public facilities. The provision of adequate land resources to support the
expected growth in employment is essential.
Most importantly, however, is not whether growth will occur in the Bend area,
but how growth will be managed. Recognizing early the potential effects of changes
in the area's economy discussed in this chapter will, at least, improve the liklihood
that the City and County can establish a responsive management policy.
M
vot 36PAGE 607
The management strategy must deal with the constraints and opportunities of the
forecasted development. The following section concludes with a brief inventory of the
apparent opportunities and constraints affecting future economic development in the
Bend area. These are listed below:
ADVANTAGES
* The area's natural resources and recreational amenities will support and
foster continued diversification and growth in the economic base of the
community.
* A large employable labor force of skilled workers will continue to attract
new industries to the area particularly those characterized as "foot loose"
and able to locate where they wish.
* Adequate land is available on the fringe of the urban area to accommodate
industrial development without adversely impacting forestry or agricultural
activities.
* The area's role as a regional trade and services center has begun to be
firmly established and can be expected to continue to develop in the future.
DISADVANTAGES
* The fundamental constraints to effecting future economic development revolve
around the community's ability and desire to finance and develop the necessary
public facilities to support the expected growth. Among the most prominent
factors likely to restrict future development are:
Availability of variety of sites with full services and adequate
access.
Continued congestion on Highway 97 without the construction of
alternatives and major arterials to access new industrial and
commercial areas.
Fiscal budget limitations that inhibit the City and County from
providing necessary infrastructure.
-10-
VOL 36ME 608
Assessing the willingness of the community to meet these challenges is a necessary
ingredient of change which is beyond the scope of this plan. However, if the community
is able to resolve or mitigate the adverse impacts likely to accompany the dynamic
growth expected for the area, the economic future of the Bend area economy appears to
be bright and healthy.
-11-
VOL 36PAGE 609
CHAPTER 2
POPULATION ANALYSIS AND PROJECTIONS
The City, Urban Area, and County have experienced substantial growth in the last
eight years. Table 8 gives the history of population growth for the recent past. This
growth is the result of inmigration. The characteristic of the inmigrants vary with
location in the County. A recent review of people moving to the Bend Area found that
the average household size was 2.87 persons, with an average of one child under the
age of 17 per family. (2)
This household size is generally higher than the 2.7 persons/household found during
a sample survey conducted by Portland State Center for Population and Research in 1977.
Future population size is dependent on household size as well as employment opportunities.
If the household size does not decline as rapidly as forecast by B.P.A. or Pacific
Northwest Bell, the result could be less demand for housing or a larger population in
the year 2000.
The survey also indicated that retirees composed 8 percent of the inmigrants, which
is close to the state average for older (60+) age groups. Perhaps taking this survey
into consideration with such other data as income tax returns, school enrollments,
electrical connections, it is reasonable to say that our current population is larger
than that estimated by Portland State, as shown in Table 4.
TABLE 4
Population
Growth
% Change
1950 1960
1970
1979
1970-79
City of Bend 11,409 11,936
13,710
1319,12
26.0
Bend Urban Area
19,150
33,000"
70.0%
Deschutes County 21,812 23,100
30,442
54, 500 it
79.03.
* Estimates by Portland State and City (July)
## Estimates by City
-12-
VOL 36PAGE 6 6
Table 5 gives the rates of growth for the Urban Area, City and County. As can be
seen, the unincorporated Urban Area has shown the largest percentage of growth, and the
highest rate; 57.6% of the County's growth has occured in the Bend Area. Several factors
in the future will change this trend in the Urban Growth Boundary. Annexations by the
City and the installation of the City's regional sewerage system will cause population
growth to accelerate within the City. The rate of growth within the Urban Area may
decrease, however, the overall growth may increase as the County adopts controls that
encourage urban development and discourage scattered rural subdivision.
TABLE 5
City, Urban, Unincorporated
Portion of UGB and County
1970-1979
Based on the expected employment growth, the opulations forecast for the City,
County, and Urban Area are shown in Table 6.
TABLE 6
Population Forecast
1978-2000
•:M
City of Bend 19,000 23,000
Urban Area 36,000 48,000
County 55,000 73,602
Percent Increase, 1980-2000
Compound Rate, 1980-2000
28,000
Number
Percent
Compound Rate
City
4,202
30.60%
3.020
Urban
13,850
51.30%
6.25%
Unincorporated
9,648
77.35%
12.00%
County
24,048
79.03%
6.60%
Based on the expected employment growth, the opulations forecast for the City,
County, and Urban Area are shown in Table 6.
TABLE 6
Population Forecast
1978-2000
•:M
City of Bend 19,000 23,000
Urban Area 36,000 48,000
County 55,000 73,602
Percent Increase, 1980-2000
Compound Rate, 1980-2000
28,000
37,217
41,600
58,400
71,000
84,000
93,900
108,900
128,200
Bend Urban County
118.95% 131.390 133.09%
4.00% 4.28% 4.50%
-13-
VOL 36PAGE 611
Previously no attempt was made to forecast the City of Bend's population, since
several factors, such as the annexation policy, sewerage design area, and water system
capacities were unknown.
The City has adopted a policy that encourages the annexation of undeveloped
residential areas, the sewerage master plan and service area are known, and the water
system planning encomposes the sewer area. As can be seen, the City's population is
expected to grow at approximately four percent annually, while the county and Urban
Area are expected to grow at a greater rate through 1995, then the rate of growth is
expected to decline.
This forecast closely parallels the forecast done for the school district and by
the County Economic Committee for the County's Comprehensive Plan. These forecasts
all envision much more rapid growth than has been forecast by Pacific Northwest Bell,
Bonneville Power Administration, or various state agencies. These institutional fore-
casts have been historically low for the Bend Area. The forecasts above are based on
local experience, a careful analysis of the local economy, and the expectation for
growth within the economy.
The City and Urban Area have experienced a substantial period of growth in the
70's. The forecast for the 80's and 90's is for continued growth. This forecast
gives the community a tool to measure how much capital expenditures will probably be
needed for sewer, water, streets, etc., to accommodate these changes. The forecasts
also provide a basis to determine land needs for commercial, industrial, residential,
and public purposes.
-14-
VOL 36nu 62
CHAPTER 3
LAND DEMAND AND ABSORPTION RATES
ANALYSIS AND PROJECTIONS
Population and economic projections give us a sense of scale for public
facilities and for different land uses. Using these projections as a base, the
comprehensive plan can allocate land within the Urban Area for the principal uses:
public, residential, commercial, and industrial.
Housing and Residential Land Use
In October 1979, the Bend Area contained a total housing inventory of 12,869
dwelling units. This count was based on the 1974 land use survey, updated by survey
and building records. In 1974, 68.5 percent of the housing inventory was within the
City of Bend. Today, 55.8 percent of the total inventory is within the City.
The majority of the inventory is single family dwellings. Table 7 gives the
breakdown of the inventory for the City, Urban Area, and planning area, and the
changes from 1974 to 1979• The majority of the multiple family units have been with-
in the City, and the majority of the mobile homes have located in the County.
In 1974, 13.2 percent of the total housing in the Urban Area was mobile homes.
In 1979, 15.2 percent are mobile homes. The value of the housing has risen since
1974. The Multiple Listing Bureau reports that the average price of homes sold in
1979 was $53,524; this was up 29% from 1978. Rental rates have also gone up within
the community, reflecting inflaction, the rapid period of growth, and a tight housing
situation.
Against this background, the population forecasts provide a basis for future
residential land needs calculations. The following assumptions are used in the
calculations.
The projections indicate a strong demand for housing, and will result in a sub-
stantial expansion of the total housing inventory.
-15-
CITY
Single Family
Multi Family
Mobile Homes
Total
URBAN AREA - COUNTY
Single Family
Multi Family
Mobile Homes
Total
PLANNING AREA
Single Family
Multi Family
Mobile Homes
Total
voL 36PAGE 613
TABLE 7
Housing Inventory
February 1974 - October 1979 -
1974 1979 Percent
Number
Percent
4,563
76.9%
1,196
20.1%
177
3.0%
3,936
100.0%
5,096
71.4%
of
Number
Percent
Change
5,250
73.1%
15.2%
1,736
24.2%
45.2%
198
2.7%
11.9%
7,184
100.0%
5,096
71.4%
8,300
68.6%
1,273
15.4%
1,962
16.2%
1,092
13.2%
1,835
15.2%
8,271
100.0%
12,097
100.0%
6,236
71.9%
8,987
69.8%
1,284
14.8%
1,976
15.4%
1,150
13.3%
1,898
14.8%
8,690.
100.0%
12,861
100.0%
-16-
44.1%
53.9%
65.0%
VOL 36PAGE 614
Since much of the existing City housing is older, a demand for replacement housing
will exist. This demand will create an increasing dimension for the community in the
next 20 years.
Housing construction will respond to these opportunities; however, the local supply -
demand relationship is expected to remain tight as long as current economic conditions
relating to high costs, high interest, and tight money continue.
Expansion of the size of local housing inventory will continue to produce substantial
outward expansion of the highly urbanized portions of Bend. This will occur in the form
of subdivision development. The location of future residential construction will be
determined primarily by local decisions relating to water, sewer, other utility, and
street services. The sewer service area jointly adopted by the City and County is
expected to receive substantial development in the future.
The City's use of Community Development Block Grant funds will aid in the conserva-
tion of existing houses, preserving some of the lower cost inventory.
Tables 8 and 9 give the building permit history for the City, and the subdivision
activity within the Urban Growth Boundary, respectively. The City has been experiencing
about 45 percent of its housing being built as multiple family units. Within the UGB
multiple family units represented only 18 percent of the new stock. Multiple family
units increased their share from 15.39 percent in 1974 to 16.22 percent in 1979.
The subdivision activity indicates that the majority of the single family lots
created in the Urban Area have been 20,000 square feet or larger. In fact, only 19 of
the 137 subdivisions in the planning area had densities with three lots per acre. This
is due to the predominate use of septic tanks and drainfields, and the necessity for
larger lots to provide adequate areas for the initial, plus replacement, area for drain -
fields. Lots are also bigger due to lave rock outcroppings, and most importantly, the
desire for more space or livability. A review of the preliminary plats that are approved
reveals that some 3,000± lots have received approval during the last five years that
have not been recorded. The vast majority of these lots are in the 1/2 acre parcel
size.
-17-
VOL 36PAGE 615
ME
TABLE 8
ADDITIONS - HOUSING
SUPPLY
CITY OF BEND
1970-1979
Single
Family
Apartments
Total
1970
94
14
108
1971
101
74
175
1972
188
139
327
1973
113
146
259
1974
59
24
83
1975
47
14
61
1976
97
47
144
1977
102
272
374
1978
230
138
368
1979
158
137
295
TOTAL
1,189
1,005
2,134
ME
VOL 36ME W
TABLE 9
1975
Los Serranos lst * 28.7 7 .11
Romaine Village #7 10.07 21 2.10
Sunny Acres 39.92 14 .35
Subtotal 78.69 42 .53
1976
Eagle View lst
Subdivision History
17
.86
Edgecliff
1974 to Present
38
2.38
1974
Acres
Lots
Lots/Acre
Arrowhead Acres *
22.7
11
.48
Cady Addition
5.4
17
3.10
Countryview Estates
32.8
13
.39
Davis lst
29.7
49
1.60
East Villa 2nd
64
36
.58
Golden Mantle II
14,8
10
.71
Golden Mantle III
27.3
31
1.16
Holliday Park
13.9
42
3.02
Homestead 2nd
24
38
1.58
Knoll Heights
10.27
27
2.62
Pinebrook
17.71
26
1.96
Romaine Village #6
10.65
17
1.59
Sunset lst *
17.03
19
1.20
Sunset 2nd *
10.03
11
1.10
Subtotal
250.29
347
1.38
1975
Los Serranos lst * 28.7 7 .11
Romaine Village #7 10.07 21 2.10
Sunny Acres 39.92 14 .35
Subtotal 78.69 42 .53
1976
Eagle View lst
19.68
17
.86
Edgecliff
15.9
38
2.38
Frontier West
8.5
16
1.88
Holliday Park lst
16.79
41
2.44
Homestead 3rd
14.27
17
.98
Kings Forest
39.03
43
1.10
Knoll Heights lst
3.7
8
2.16
Meadow View 4th
3.1
9
2.90
Pinebrook II
21.94
30
1.36
Reed Market East lst
7.2
12
1.66
MZ
VOL 36RGE 617
Subdivision History
1974 to Present
1976 - Continued
Acres
Lots
Lots/Acre
Rimrock III
24.03
22
.91
Romaine #8
28.95
56
1.93
Swalley View
49.08
18
.36
Thomas Acres
14.03
23
1.64
Timber Ridge
52.41
99
1.89
Trap Club Road
8.06
21
2.60
Subtotal
326.66
470
1.43
1977
Airpark
20
36
1.80
Ambrosia
20
30
1.50
Brightenwood
1?,8
29
1.62
Broadway
1
4
4.00
Brycewood
20
5
.25
Choctaw Village
22.3
85
3.80
Chuckanut #1
7.7
23
2.98
Desertwood
49.63
81
1.63
Desert Wood #1
44.8
76
1.69
Hideway
11
24
2.18
Hunters Circle
44.4
89
2.00
Janelo Court
3.3
9
2.72
Kings Forest lst
39.66
48
1.21
Larkwood
22.86
41
1.79
Meadowview 5th
5.26
22
4.18
Nottingham Square
44.75
28
.62
Pinebrook III
18.7
28
1.49
Reed Market :;ast 2nd
13.12
22
1.67
Suntree
20
30
1.50
Vintage Faire
28
45
1.60
Vista Del Sol *
60.27
24
.39
Woodside Ranch III *
96.2
38
.39
Woodside Ranch IV *
56.35
22
.39
Woodside Ranch V *
112
63
.56
Subtotal
779.1
954
1.22
-20-
-21-
VOL
36PAGE 618
Subdivision History
1974 to Present
1978
Acres
Lots
Lots/Acre
Brightenwood Estates II
21.6
39
1.80
Broadway lst 2
3.11
10
3.22
Bluebird
3
12
4.00
Choctaw "A"
4.17
16
3.83
Homestead 4th
42.56
83
1.95
J -D Ranch Estates
40.4
24
.59
Kiwa Meadows 2
14.96
58
3.87
Prophet's Den 2
6.5
8
1.23
Quail Ridge
70
24
0.34
Romaine #9
51.5
93
1.80
Suntree
19.64
32
1.63
Winchester
20.58
77
3.74
Chuckanut E:^tates Phase II
7,75
19
2.45
Brookside
20.9
30
1.43
The Heritage
42
60
1.42
Valhalla Heights I
10.09
21
2.08
Vahalla Heights II
20.76
39
1.87
Woodside Ranchettes *
48.70
9
0.18
Brightenwood Estates III
20.52
26
1.26
Winchester Arms 2
14.44
49
3.39
Woodside VI
48.59
14
0.28
Kings Forest 2nd
17.81
28
1.57
Fairview Acres
8
19
2.30
Ridgeview Park
3.83
12
3.13
S & W Industrial Park 1
3.16
6
1.89
Overturf Butte
20
62
3.10
Matson Park 2
17.96
8
0.42
Eastside Business & Industrial Parki
79
50
0.63
Westpine 2
9,14
29
3.17
Rimrock West Phase 2
4,94
8
1.61
Williamson Park
44.6
61
1.36
Brookside lst
17,1
24
1.40
-21-
VOL 36PAGE 619
Subdivision History
1974 to Present
1978 - Continued
Acres
Lots-
Lots/Acre
Desert Wood III
28.25
65
2.30
Eastmont Estates
40.22
16
0.39
Tamarack Park
35.04
146
4.16
Brinson Park 1
17.24
5
0.29
Whitewing
5
8
1.60
American West
4.4
10
2.27
Tara View
13.2
22
1.66
West Ridge
40.88
45
1.10
East Bluff
11.6
18
1.55
Warrington Add.
4.77
6
1.25
Boyd Shopping Center 1
20.09
10
0.50
Subtotal
978.0
1401
1.43
1979
Ladera
14.1
23
1.63
Thomson Estates
3.39
6
1.76
Marc Estates
10.18
18
1.76
Edgewood South
20.74
35
1.68
Valley View
13
Duncan Heights
6.38
12
1.88
Duncan Heights lst
4.68
9
1.92
Chuckanut Estates Phase I
7.05
15
2.12
Desert Woods IV
31.01
106
3.41
Hawthorne Townhouses 2
.25
4
16.00
Tara View 1st
15.1
22
1.45
River Bluff
29.75
51
1.71
BID IV 1
21.10
22
1.04
Brinson Industrial II 1
9.26
5
0.53
Gemstone
4.53
10
2.21
Reed Industrial Area 1
40.00
21
0.52
Quail Hollow 2
6.7
80
11.87
-22-
Subdivision History
1974 to Present
1979 - Continued
Valhalla Heights Phase III
Medical Center 1
Rolling Hills
Mt. Vista
Star Bright Estates
Juniper Creek
Brinson Industrial Park 1
Stevenson Ranch
Renwick Acres
Chukar Ridge
Homestead 5th
Ranch Village
Tanglewood
East Knoll
Section of Sunrise Village
Morningstar
The Farm *
Replat of Lot 8, Block 1, Eastside
Subtotal
1980 - through February 14
Homestead 6th Phase
Ranch Village 1st Addition
Kings Forest 3rd Addition
Subtotal
1974
1975
1976
1977
1978
1979
1980 - Feb. 14
VOL *Au, 620
Acres
Lots
Lots/Acre
16.96
41
2.41
14.15
12
0.84
8.51
41
4.81
16
25
1.56
3.68
18
4.89
9.75
45
4.61
6.5
4
0.61
160
5
0.03
6.35
30
5.83
3.09
17
5.50
35.5
59
1.66
35.5
48
1.35
19.59
76
3.88
39.61
39
0.98
11.87
16
1.34
14o.64
11
0.07
2.07
4
1.93
9.67
13
1.34
13.2
21
1.59
30.83
46
1.49
53.70
80
1.48
250.29
78.69
326.66
849.1
984.74
53.70
Totals ---
Within 1974 Planning area, outside UGB and IUGB
1 Industrial and commercial developments
2 Multiple family development -23-
347
1.38
42
0.53
470
1.43
975
1.14
1,421
1.44
946
80
ORM
4,281 (1,428 lots in City)
VOL 36PAGE 621
Since February, 1974 the housing distribution has changed as shown below:
TABLE 10
Housing Distribution Change
1974-1979
1974 Percent 1979 Percent
City 5,936 71.8 7,184 59.4
Unincorporated 2,335 28.2 4,913 40.6
Urban Growth Boundary 8,271 100.0 12,097 100.0
Only 1,428 of the 4,281 new lots created in the Urban area were inside the City. In
1978 the City began construction of its regional sewerage system. Annexation, sewer, and
water policies have been altered, resulting in increased subdivision activitiy within
the City. Based on these trends, it is expected that the average density for single
family development will approach 3.5 units per acre. Multiple family development is
expected to approach 20 units per acre by the year 2000.
The density of housing types, together with household size, are used to compute
future housing units needed to house the forecasted population. In most recent studies
of household size the present trend towards smaller size is forecast to continue. The
County's forecast is for overall household size to drop to 2.32 persons/household by
2000. In the economic studies conducted for the school district, it was found, from a
survey of recent immigrants, that the average household size was 2.87 persons/household.
Since the area's population forecast is based on expansion of basic jobs, it seems
possible that the Bend Area will not experience quite as sharp a drop in persons/house-
hold as the County as a whole. Sisters and LaPine retirement areas reduce the overall
figures. Therefore, for a basis of future housing needs calculations, we will assume
that the average household size will be 2.5 persons/household in 2000.
Using the houshold size and density factors above, the following table gives the
housing needs by five year intervals through the year 2000.
-24-
VOL 36?AGE 622
Whether the configuration of the "commercial" workplace, as it relates to employee
densities can or should be changed is a subjective issue. Change can be induced by the
attraction of selected types of commercial activities. For example, a regional or
headquarters office complex or large health care facilities will typically boost employee
per acre ratios. Expansive shopping mall complexes or land -extensive lodging facilities
will tend to reduce these ratios. Both of these types of changes have occurred and are
likely to occur again in the Bend economy. As a consequence, selection of a final ratio
is a mix of estimating the type of employment likely to occur and, by controlling the
amount of land available, making adjustments to the existing ratio of employees per acre.
At present, the employment density for commercial activities, that is activities which
would require land designated commercial, is approximately 20 employees per acre.*
Although this ratio will likely increase for some types of development during the
planning period, it appears highly likely that other sources of growth will offset changes
in the density ratio. For example, a significant portion of the employment growth in
trade and services is likely to occur in a physical setting with densities of 23-35
employees per acre. In contrast, however, the strong growth expected in recreation/
tourist related activates, particularly lodging, is expected to be land -extensive and
have a very low employment ratio. As noted earlier, the major expansion of Mt. Bachelor
will have a profound impact on Bend as a tourist destination. For these reasons, the
land allocations presented below assume that, on the average, the employment density
throughout the planning period will remain at 20 employees per acre for land in commercial
use.
Existing land use data are presented in Table 15. These data identify the type of
land use for each designated zoning classification. Approximately 954 acres are
presently designated for commercial use. Of this amount, the pattern of use is:
399 acres currently used for commercial;
64 acres are in public, institutional, or industrial uses, and;
167 acres are in residential use.
* This ratio is based on a study of site specific employment patterns done by the City
Planning Department staff in 1979.
-25-
VOL 36nu 623
TABU
Housing Needs
Population 2.3 p/h
1980 33,000 12,097
1985 48,000 19,200
1990 58,400 23,360
1995 71,000 28,400
2000 84,000 36,520
Housing Mix: During the past five years, multi family units grew at 3.6 percent
per year. If this rate increased to 6.3 percent per year, there would be 6,825 units
in the year 2000; this would represent 19.7 percent of the total housing stock. For
the purposes of this study, the 25 percent figure appears to be reasonable for the follow-
ing reasons:
(1) The share of multiple family units would increase substantially at nearly
7.5 percent annually, to approximately 8,330 units.
(2) The desire for single family homes will continue to be strong.
(3) The state and federal assistance programs will continue to aid single family
buyers.
(4) Home ownership has increased rapidly throughout the nation during the 70's.
(5) During the past five years miltiple family units represented only 14.86
percent of the new units constructed. (689 MFU's compared with 3,947 SFU's.)
TABLE 12
Housing Mix
-26-
MFD's
SFD's
1980
16.5%
83.5%
1985
19.0%
81.0%
1990
21.0%
79.0%
1995
23.0%
77.0%
2000
25.0%
75.0%
-26-
VOL 36PAGE U4
It appears that the density of housing types will approach the maximum allowable
within the City by the year 2000. For this analysis, the average figure for MFD's of 20
DU/acre and SFD's of 3.5 DU/acre will be used. This will take into account the existing
pattern of lot sizes and approved lots in single family development averaging slightly
larger than one half acre per lot and the development of high density apartment projects
in areas designated for 40 units/acre. Table 13 summarizes the land needed for residential
uses for the year 2000.
TABLE 13
Additional Acres Needed For
Residential Development for 2000
Single Family 4,245
Multi Family 318
Total 4,562
Part of the single family housing growth will occur as mobile homes. In 1974, mobile
homes represented 15.4 percent of the total housing stock, and in 1979 this had increased
to 16.2 percent. During the five year period, 19.4 percent of the new housing took the
form of mobile homes. It appears that mobile homes will continue to represent 20 percent
of the new additions of the housing stock. These could take the form of mobile home
subdivisions, mobile home parks, or planned unit developments.
During the next 20 years, the pattern of residential growth is likely to shift from
predominate growth in the south and southeast to more balanced growth throughout the
Urban Area. The pattern will be shaped to a great extent by the availability of the
City's sewer system.
A large area of new development occuring in the Bend Area is aimed at the second
home/destination resort market. Currently Riverhouse II, Mt. Bachelor Village, and
Sunrise Village, comprising some 300 acres, are being built for this purpose. In part
this is basic employment related activity, however these developments utilize residential
areas. There also exists a demand within the community for second homes, "ski shacks".
The County has estimated that 10 percent of the housing is used in this manner. This will
cause a need for an additional area for these activities; at least another 425 acres of
residential land.
-27-
VOL 36PAGE 625
COMMERCIAL LANDS ANALYSIS
The projected land requirements for commercial activities are based upon the
increase in employment presented in preceding sections of this plan. Two basic
questions must be considered:
(1) What is the expected level of employment, and
(2) Is the configuration, i.e., employment density measured in employees
per acre, likely to change from the characteristics observed at
present?
Although employment gains will occur incrementally, the allocation of land must
occur now, at least in designations that will protect specialized needs for future
use and allow development in a timely manner. Issues of compatibility with surround-
ing uses, efficiency in the provision of public services, scale economies of develop-
ment and acceptability in the marketplace are all important factors affecting the
choice of which and how much land in the Bend Urban Area will be used for what purposes.
The initial step used in this plan to allocate commercial land has been to
determine a likely employment base (see Table 3). These data are used to calculate
the additional workers employed in the community during the planning period. The
results of these calculations are presented in Table 14.
TABLE 14
Incremental Employment Growth in
the Bend
Urban Area,
Commercial Activities,
1980-2000
1980-85
1985-90
1990-95
1995-2000
Total
Trade 91
1,050
1,200
1,280
4,500
Services 1,030
940
1,010
1,210
4,190
Government # 400
380
610
670
2,060
Other 490
1,150
1,360
1,610
4,610
# Government excludes employment in public education categories. The ratio used to
allocate employment to education is 39.4 percent of total government employment,
based on historical patterns in the county and the state.
Source: Derived from Table 3
son
How Used
CN
Vacant
--
Residential
0.22
Commercial
0.75
Industrial
--
Other
--
TOTALS
0.97
-29-
YOL
Mau 626
TABLE
15
COMMERCIAL LANDS SUMMARY
Existing
Land Use by
Zone Designations
CC
CL
CG
CH
CB
1+.30
114.24
16.73
163.80
--
9.27
52.9+
20.76
83.55
0.71
20.99
172.28
12.82
171.16
20.97
0.16
18.6+
4.32
19.28
1.75
0.90
11.26
2.60
1.70
2.89
45.62
369.36=
57.23
455.01
26.32
-29-
voL 36PAGE 627
Within these land use categories, the lands used for commercial and public, institu-
tional, and industrial will not likely change during the planning period. These two
categories account for approximately 463. acres of the existing inventory. Half of the
167 acres in residential use will likely be removed from the 'inventory or converted to
commercial uses. In total, approximately 547 acres of the existing inventory have already
been used; therefore, approximately 393 acres of land within the present inventory is
available to meet future needs.
Using the employment estimates from Table 14, sufficient commercial land must be
allocated to accommodate an expected workforce of 15,400. In total, this will require
an additional 770 acres of commercial land for the 20 year planning period. Final
requirements are determined by deducting from this amount the acreage available in the
existing inventory.393.07 acres. Therefore, during the planning period, it will be
necessary to provide an additional 377 acres of land for commercial uses. These require-
ments are reflected in the calculations and data in the following Table.
TABLE 16
Commercial Land Requirements
In Acres, 1980-2000
Combining existing and future requirements, the Bend Urban Area will require
approximately 1233 acres of commercially designated land by the end of the planning
period. The additional land has been designated on the plan map.
-30-
1980-85 1985-90
1990-95 1995-2000 TOTAL
Base Land Requirement -
20 employees/acre
145 175
210 240 770
Less Land in Inventory
393.07 ---
--- --- 393.07
Additional (net) Land
Required
-0- 175
210 240 376.93
Combining existing and future requirements, the Bend Urban Area will require
approximately 1233 acres of commercially designated land by the end of the planning
period. The additional land has been designated on the plan map.
-30-
VOL 36e4cE 628
INDUSTRIAL LANDS ANALYSIS
The data presented in Table 3 indicate an expected increase in manufacturing
employment of approximately 2,800 workers during the'planning period. This represents
the minimum workforce for which industrial land must be allocated.
A review of industrial activity in the Bend Urban Area at present indicates a
relatively low employment density ratio of approximately 7 employees per acre.* Fore-
casts of future manufacturing employment opportunities for the area indicate that the
first decade of the planning period will conform with the existing patterns. However,
an expected increase in employment in "foot loose" and high technology" industries
during the second half of the planning period will likely increase the ratio to the
range of 15 to 20 employees per acre, averaged for all types of industrial employment.
Thus, the allocation presented in Table 17 uses an employee/acre ratio of 7 between
1980 and 1990, and a ratio of 17.5 thereafter.
TABLE 17
Incremental Industrial Employment and
Required Land base, Bend Urban Area 1980-2000
1980-85 1985-90 1990-95 1995-2000 TOTAL
Employment Growth 310 610 950 910 2,780
Required Land Base
in Acres 45 90 55 55 245
The existing industrial land base, designated for industrial uses, is approximately
1542 acres. The configuration of use, in approximate acreages is:
614 acres are in use for industrial purposes;
218 acres are in non -industrial uses, and;
710 acres are vacant, open, or range
* This ratio excludes the impact of Brooks Scanlon Inc. If included, the ratio falls
to approximately 6 employees per acre. The Brooks Scanlon data are omitted because
the magnitude of its impact tends to distort the analysis.
-31-
VOL 36PAGE 629
There is little liklihood that the 165 acres currently in non -industrial use will
convert to industrial usage during the planning period. This is due to the fact that the
majority of this land is being used by City, County, and State for shops and storage. In
addition, approximately 200 acres of the land vacant is not suitable for industrial use,
due to rock or steep slopes. Much of the undeveloped land that has recently been developed
has been used by heavier commercial/warehousing activities. One is being developed on a
land lease basis, which does not provide opportunities for industries desiring to own
their own sites. The available industrial areas are generally held by three owners, limit-
ing the market. The major deficiency of most sites is the lack of full services and, most
importantly, adequate arterial street access. Currently there are no campus type indust-
rial areas developed; however, the recently approved west side site may fulfill this
option. The 1979 advisory committee study on industrial lands identified larger sites
as the greatest long range need, particularly since the majority of sites within the area
are five acres or less in area.
Because the site requirements for industrial development are typically far more
stringent than for commercial uses, calculation of gross land requirements for industrial
uses must recognize the limited number of ownerships and the lack of larger sites. There-
fore, additional acres have been designated to meet current needs. The justification
for this is the absence of large parcels of industrial land protected by preclusive
zoning. Development patterns will often limit designation of lands for industrial in
the future if not protected now.
o The urban area's existing
inventory is insufficient to meet these needs. As a consequence, 245 acres additional
land is being designated for industrial purposes.
The City and County recognize that most of the analysis used to derive land base
requirements, carefully constructed as it is, is nonetheless based on estimates and fore-
casts of future behavior. Modifications to these data and allocations will undoubtedly
be necessary in the long-term course of the planning process. However, as presented
above, these allocations represent the best professional judgments of planners and econo-
mists familiar with both the City's planning goals and the processes of economic develop-
ment.
-32-
VOL 36ME 630
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THE GENERAL PLAN
INTRODUCTION
YoL 36PAGE 636
REVISED: 10/20/80
In the broadest sense, planning seeks to guide future development of an area
within a framework of goals and objectives which are consistent with the physical
characteristics, attitudes, and resources of the community. The basic aim of the
general plan is to organize and coordinate complex interrelationships between people,
land, resources, and facilities in such a way as to protect the future health, safety,
welfare and convenience of the citizens. The strength of such a plan lies in its
comprehensive approach to the problems of urban growth. It deals with the many public
and private uses of land, setting forth relationships and recommendations in graphic
and descriptive form as a document to serve as a guide for future growth and change.
The general plan provides a basic for coordinated action by enabling various public
and private interests to undertake specific projects with a consistent understanding
of community goals and objectives. The plan functions as a working frame of reference
for government officials and administrators by establishing community policies and by
specifying methods and standards for implementation of these policies. Public facilities,
such as schools, parks, streets, civic areas, libraries, and fire stations, can be
planned, and a program for land acquisition and construction can be prepared in
advance of need so that the services will be available when and where they are needed.
These same community policies serve individual property owners and private interest
groups as a means of evaluating their individual decisions in light of community
objectives. They are able to determine how their individual interests can best be
served in a manner which is consistent with the plan. They are assured by the plan
that once they commit their investment to the land, there will be a reasonable con-
tinuity of land policies which will protect their interests.
The plan also provides a guide to the various public and private utilities charged
with the responsibility of providing services to the community. Future service demands
can be anticipated and facilities planned so that development can take place in the
most economical and timely manner.
In any area, each individual and organization participates in some way in the
planning process. The community planning process is the continuing effort to coordinate
short-range and long-range private and public actions towards the fulfillment of generally
accepted overall community goals. The general plan provides the foundation for the
planning process by establishing long-range goals and objectives and by providing,
through its various elements, an integrated view of future public and private develop-
ment patterns in the community. It is not the last word, nor is it the first. Rather,
it is an important tool to help the community identify problems and to take steps neces-
sary to solve them before the cost of desirable solutions is beyond the community's
economic capabilities to achieve.
The planning process is in itself a means of constantly evaluating the general
plan. It is essential that the plan be adaptable but this must not be interpreted to
permit piecemeal amendments that disregard the basic relationships established by the
original effort. Proposed changes must be carefully considered in terms of possible
overall effects on the entire community. Accommodation of a proposed development
which appears very desirable on the surface may, under a thorough investigation with
reference to the plan, prove costly to both the future public interests and to committed
private investments. Adherence to the policies developed in the plan provides a means
of protecting existing public and private investments and values.
-1-
VOL 36PAGE 63'7
The general plan is not a zoning plan. However, zoning is one of the important
legislative tools available to help implement the plan. Any changes in zoning which
occur are subject to a public hearing and a specific decision by the governing body.
The greatest single problem between the plan and zoning activity is timing. Some
areas suggested in the plan for different kinds of land uses can only be justified at
some time in the future when sufficient population growth has occurred to warrant the
development, or when public facilities are available to support that development. All
zone changes shall be considered in relation to the comprehensive plan, and this serves
as one of the continuing means of evaluating the plan. If zone changes are contemplated
which are contrary to the plan, the community should first amend the policies and concepts
in the plan before a change of zone is made. This process insures that each petition
for rezoning is considered in light of the best interests of the entire community.
The plan recommends appropriate uses for various areas and attempts to provide a
maximum range of choise in the planning area within the limits of community living.
If there is to be a choice, various areas must be guarded against intrusion of other
uses which will limit or destroy the privacy of homes or the proper economic function-
ing of areas of commerce or other special values. If there is to be choice which justifies
a long-term investment in homes or businesses, areas must be set aside for different
types of uses. If all uses are intermixed, there is, in fact, no safe choice for any
individual kind of use.
The plan must be implemented if it is to be of value to the community. The
difference between the plan as an empty gesture of community concern and the plan as
a vital instrument of civic betterment hinges upon the involvement of both public and
private sectors of the community in its realization. It involves extensive daily con-
tact with public groups and individual citizens, the administration of appropriate codes
and ordinances which influence development, capital improvement programming for the
expenditure of local governmental funds, and the continuing refinement of the plan in
special circumstances such as the central business district, park and recreation, or
community appearance. The efforts applied in the continuing planning process extend
the plan from the present to the future accomplishment of its goals and objectives.
The general plan provides basic guidelines with which the community can chart a course
for change with some assurance that the result will be progress. The benefits of
community living that we enjoy today are the result of what was done yesterday, and
the benefits for future generations will result from what we do today.
GENERAL GOALS AND OBJECTIVES
The purpose of this plan is to attempt to describe a pathway into the future. It
is more apparent now than ever before that the future will be as different from today
as today is from yesterday. Change is with us constantly and occurs at a rapidly in-
creasing rate. Our choice is not whether change should occur, but rather how and where
it should happen. In our society, communities are created over a period of time as the
combined result of thousands of apparently unrelated individual decisions. Lacking
some overall frame of reference or goals, the results most often have been disorder,
confusion, pollution, waste, congestion, and ugliness. There are exceptions to this
rule, but, unfortunately, they are few.
The goals and objectives set forth in this plan are directed toward establishing
a means of recapturing the character and the quality of the Bend Area. It is hoped
that they represent a means of retaining the character of Bend as future growth occurs.
Although rapid growth in the Bend Area has created many problems, it need not destroy
the quality and livability of the area. However, action must be taken immediately if
the Bend Area is to preserve the unique qualities which have made it one of the most
livable communities in the state.
-2-
von 36PaGe 638
The several goals and objectives that served as a framework in the preparation
of this plan are set forth below. All of the policies and recommendations made in
this plan were weighted against those interrelated concepts for the future. The goals
and objectives are:
1. To retain and enhance the character and quality of the Bend Area as growth
occurs.
2. To provide a sound basis for urbanization by establishing proper relation-
ships between residential, commercial, industrial, and open land uses.
3. To encourage city and county cooperation in the provision of urban services
in order to bring about a more orderly development pattern and thereby avoid
unnecessary tax burdens and excessive utility costs usually associated with
scattered, unrelated development.
4. To recognize and respect the unusual natural beauty and character of the
area so that the feeling of Central Oregon can be retained within the com-
munity as growth occurs.
5. To significantly improve the appearance of the community, particularly along
Highway 97, as one means of recapturing the individual and distinct identity
of the Bend Area.
6. To provide a safe and coordinated transportation and circulation system to
bring about the best relationships between places where people live, work,
shop, and play.
7. To bring about a general increase in population density throughout the
community in order to facilitate future public transporation systems as
energy supplies diminish.
8. To retain and enhance desirable existing areas and to revitalize, rehabilitate
or redevelop less desirable existing areas.
9. To continually strive for excellence in all private developments and public
services within the constraints of economic reality. Economic reality should
not be interpreted as maximum profit for minimum investment or as maximum
local budgets for maximum services.
10. To encourage and promote innovations in development techniques in order to
obtain maximum livability and excellence in planning and design for all new
developments.
11. To continually explore, within the limits of the public health, safety, and
general welfare, innovations in development or regulations in order to promote
maximum livability for the people of the community.
This plan is based on goals and objectives which will not be easily attained. They
will demand a continuing search for excellence in public and private activities and will
require the cooperation and support of the people in the community as well as a willing-
ness to work together on the part of all agencies of local government. The preparation
of this plan as a joint county -city effort indicates that the commitment necessary to
realize these goals is possible. This plan can become a means of directing community
efforts toward sound future growth, better understanding between private and public
efforts, and a more beautiful and livable community to the benefit of the people of the
area both individually and collectively.
-3-
VOL 36?AGE 639
INTERPRETATION
o
J
As used in this plan, the word "shall" is mandatory and the word "should" is
directory, unless the context requires otherwise. However, in all cases, the plan
shall be interpreted in accordance with the requirements of law and rules of statutory
construction. The word "should" is not intended to bind the city or county governing
bodies to a course of action, but provide a basis for such action when it is determined
that it is in the public interest to carry out a particular action.
TIMING FOR GROWTH
The Bend Area General Plan designates most areas for Urban Development. The
timing for urban growth shall always be related to the availability of adequate, neces-
sary community services, and have some continuity with other existing developments.
GENERAL POLICIES AND RECOMMENDATIONS
The following major policies and recommendations relate to the goals and objec-
tives of the plan. In the body of the report these basic policies are further refined
for each of the various elements of the plan.
1. Urban development shall be encouraged in areas where urban services can be
provided and in a manner which will minimize tax costs related to necessary
urban services such as schools, parks, highways, police, garbage disposal,
fire protection, libraries, and other facilities and services.
2. Standards for development within the urban growth boundary shall be prepared
jointly by the city and county.
3. Future development and local development standards shall recognize and respect
the character of existing areas. Maximum flexibility in development should
be encouraged in undeveloped areas.
4. Residential developments should be located so that they are convenient to
places of employment and shopping facilities, and they should be developed
in ways which are consistent with the character of the topography and soils
on the site.
5. Residential areas should offer a wide variety of housing types in locations
best suites to each, and shall be developed in a way which will not create
healty or erosion hazards. Densities recommended on the plan shall be recog-
nized in order to maintain proper relationships between proposed public
facilities and services and population distribution.
6. Commercial facilities should be allocated in a reasonable amount and in a
planned relationship to the people they will serve. Efforts shall be made
to separate commercial and noncommercial uses through the use of walls, fences,
or landscaping, and open space.
7. Strip commercial uses should be directed to those areas where a commercial
development pattern of this kind already exists. Any future expansion of com-
mercial strips, if any, shall be very carefully considered so that they do not
cause unnecessary traffic congestion and do not detract from the appearance
of the community.
-4-
VOL 36PAGE 643
Industrial areas of the community shall be located where necessary services
can be provided and with good access to transporation facilities. Continuing
efforts shall be made to upgrade the quality of existing and future industrial
developments as the area grows.
9. Schools and parks shall be located to best serve the anticipated population
and provide maximum service for the greatest economy in terms of expenditure
of tax dollars for both present and future residents. Sites should be acquired
in advance of need so that the best are available for these vital public faci-
lities.
10. Streets and highways should be located and constructed in a manner which will
accommodate both current and future traffic needs, and they should be designed
to maintain the character and quality of the areas through which they pass.
11. Off-street parking shall be provided in adequate amounts so that traffic lanes
of streets will not be unnecessarily congested by parked vehicles during peak
hours. Parking lots shall be surfaced and landscaped to make them attractive
to use rather than their being simply open, barren expanses of asphalt.
12. Mass transit, bicycle, and pedestrian transporation and circulation systems
shall be recognized as legitimate and desirable future alternatives or supple-
ments to complete dependence upon the automobile.
13. Community appearance shall continue to be a major concern and the subject of
a major effort in the area. Street -tree planting and landscaping, sign regu-
lations, and building improvements will all contribute to an improved environ-
ment, particularly along Highway 97. Major natural features, such as rock
outcrops or stands of trees, should be preserved as a community asset as the
area develops. This can be accomplished in subdivisions through careful siting
of houses and streets.
THE GENERAL PLAN
Throughout most of its history, the Bend Area has been a quiet community in Central
Oregon. However, since about 1965, the community has experienced an extremely rapid
growth rate which has significantly altered the character and quality of the Bend Area.
Traffic congestion and strip development along 97 have provided obvious examples to
everyone that growth can create very real problems. In fact, the apparent character
of the community has changed radically since Wall Street was the entrance to downtown
and the most obvious asset in the community was Drake Park. It is partially in response
to these changes that the community chose to prepare a comprehensive plan. This same
general concern has led to the formulation of the basic objective of this general plan
which is to retain and enhance the character and quality of the Bend Area as growth
occurs.
In order to plan for the future of any community, it is necessary to evaluate the
existing factors and influences and to make carefully considered assumptions of what
the future may hold in terms of quality and quantity of growth. The more important
factors and influences affecting planning considerations in the area are the natural
features and existing development pattern, and the role of Bend as an urban center in
Central Oregon. Another very important factor is the availability of services within
the Bend urban area. The influence of natural features and the character and quality
of the existing development patterns are discussed in length in Part I of this plan,
Existing Conditions.
-5-
VOL 36ME 641
The availability of community services is usually a strong determinant in the
location and intensity of urban land uses. Water and sewer service customarily `
combine to make development possible at urban densities. However, in the Bend Area,
water service and unusual geology have made urban development possible. Lack of
easily accessible surface water and a very deep ground watertable lying beneath layers
of rock have encouraged development of community water systems.
The fact that the entire area is underlain with rock has discouraged installation
of sewers. the nature of the underlying geology has led to the extensive use of drill
holes as a means of sewage disposal. This method appeared to be quite satisfactory for
many, many years. However, recent rapid growth in the community has raised serious
questions regarding future pollution of the regional water table. The State Department
of Environmental Quality has directed the City of Bend to provide a sewer system. In
county areas outside of the city, drill holes are no longer permitted. This change in
sewage disposal methods presents the community with the difficult and costly problems
which will greatly influence future development in the Bend Area.
The General Plan for the Bend Area is a comprehensive plan. It includes approx-
imately 43 square miles of land and is a single plan which relates proposed land uses to
each other, both inside and outside of the city. In addition, it ties both the city and
the urbanizing area of this part of Deschutes County together with an integrated net-
work of major streets and roads. A map showing the General Plan is included with this
report.
There are many land uses in the plan ranging from open, rural areas of the county
to the many urban uses in the City of Bend. The plan recommends appropriate uses of
various areas and attempts to provide a maximum range of choice in the planning area
within the limits of community living. If there is to be a range of choice, various
areas must be guarded against the intrusion of other uses which would limit or destroy
the privacy of homes or the proper and economic functioning of areas of commerce or
industry. If there is to be a choice which justifies a long-term investment in homes
or businesses, areas must be set aside for different types of uses. If all uses are
intermixed without proper standards or consideration for their surroundings, there is,
in fact, no safe choice for any individual kind of use.
Land Use
The kind, location, and distribution of land uses is a basic element of any com-
prehensive plan. Although the public facilities and circulation elements are important
and should be developed in concert with land use, their numbers and characteristics
are directly related to future residential, commercial, and industrial areas. The
land -use element of the plan should reflect to some degree the population and economic
forecasts made for the planning area. However, it is not possible or reasonable to
show on the plan the exact amount of land needed to accommodate anticipated residential,
commercial, or industrial growth. If this were done, the plan would indicate only land
in the area that could be used for any given purpose and would create a land monopoly
for designated properties. In addition, most population and economic forecasts made
for periods of ten to twenty years in the future are made to provide a "sense of scale"'
or "level of expectation", rather than to serve as a definitive statement concerning
future growth.
_ . von. 36PAGE 642
Most comprehensive plans are prepared for a time when the area is fully developed
or "saturated", and for a specific time in the future, usually twenty years, and both
methods have advantages and disadvantages. In the case of both the saturation and
forecast period plans, it is recommended that the plans be reviewed and revised every
two years. In this way, the total requirements for schools, parks, and other public
facilities can be estimated and the sites acquired well in advance of need. However,
the time span between the present and full development is most often so great that the
plan may be largely meaningless as it relates to the more immediate future, and thereby
loses its validity as a useful guide for community action. Further, in an era of accel-
lerating change such as ours, a plan which attempts to project present development
methods and social conditions 25 to 50 years into the future may well be foredoomed
at its conception.
General plans based on forecasts for a specific time in the future usually cover
a much shorter period than do saturation plans. This eliminates some of the problems
of potential change in technology and gives some sense of scale of the magnitude of
problems which the community will face. Such plans also imply, if not state, a rate
of growth which can be translated into probable priorities for community action relating
to various major elements of the plan. However, many forecasts are made for a period
of 20 years or longer, and history has proved very few to be accurate. Influences
which are impossible to foresee such as an individual management decision on the part
of one major employer to enter or leave an area can significantly alter growth patterns
in smaller urban centers. In addition, plans based on a forecast for a specific future
year usually do not look beyond that year, and if the growth rate exceeds the forecast,
the plan is no longer a useful community guide.
The Bend Area General Plan is not a saturation plan nor was it prepared for a
specific future year. The population and economic forecasts included in Part II of
the plan were made for 2000 and do provide a sense of scale for future growth. These
forecasts were used as a point of beginning in the allocation of land uses and public
facilities. However, past zoning and planning decisions made by the county and city,
the availability of community services and the existing development pattern greatly
influenced the recommendations contained in the plan. For example, residential uses
and subdivisions have been scattered over the planning area and have committed various
sections to residential use. The plan recognizes this commitment but the resulting
area exceeds the anticipated population growth. In most cases, the need for public
facilities has been related to the population forecasts rather than to the holding
capacity so that, in some areas, the number of schools or parks does not seem approp-
riate to accommodate the amount of residential development shown on the plan.
Development pressures and future needs for public facilities will not be the same
throughout the area, and an attempt has been made to recognize these variations in
the general plan.
In addition to variations in anticipated growth pressures, there are also sig-
nificant differences in the characteristics of the existing development patterns in
various parts of the planning area. These differences should be recognized and should
be one of the factors considered relating to the character of future development. If,
in any area, development has been sufficient to have established a particular character,
this character, if desirable, should be protected. Any new growth in an established
area should recognize and respect its particular character and should not be so at
variance with surrounding developments as to cause the nature of the local environment
to materially depreciate in character, appearance, value, or residential privacy. This
consideration should include residential, commercial, and industrial districts, or even
an entire acknowledged, identifiable community or neighborhood within the planning area.
-7-
VOL 36PAGE 643 a
Local codes and ordinances should include standards similar to those in force at
present for established areas as a means of protecting the character of these areas.
Local regulations should not discourage variety in design in established areas so
long as it is compatible with existing development patterns. The present use of planned
unit developments with public hearing procedures is a useful and effective means of
permitting variety and, at the same time, of recognizing the need for capability.
However, in order to encourage variety in undeveloped areas, procedures should be
simplified if possible so that no unnecessary steps are involved that will excessively
extend the time required for review and approval as compared to that needed for a more
standard development concept.
In keeping with the foregoing discussion of general land use considerations in
the planning area, the following policies were used to guide the preparation of the
land use element of the plan:
1. All new developments should recognize and respect the particular character
of established areas in which they locate.
2. Innovations in concepts and flexibility in design will be encouraged in new
developments in those more undeveloped sections of the planning area where
no particular urban character has been established.
Open Lands -
The open land section of the plan deals with three basic types, forests, urban
area reserve, and areas of special interests - private and public open space.
Areas of Special Interest - Private and Public Open Space
1. The banks and canyon of the Deschutes River shall be retained as public or
private open space throughout its entire length within the planning area
except in the intensively developed central part of the community.
2. Major rock outcrops, stands of trees or other prominent natural features
shall be preserved as a means of retaining the visual character and quality
of the community.
Outside the Urban Growth Boundary the policies and requirements of the Deschutes
County Year 2000 Comprehensive Plan shall apply. Decisions along the boundary that may
impact natural resource lands outside the boundary will be coordinated with the County,
and preference will be given to the protection of such adjacent resources through the
development review process. Areas of special interest identify lands along the banks
of the Deschutes River. These areas are also basic habitat. The following policies
and goals shall also apply.
Fish and Game
The primary goals for the protection of the fish and wildlife habitat within the
urban area are:
1. To conserve the existing riparian zone along the Deschutes River.
2. To provide for public access to this scenic and attractive resource.
3. To provide more park and trails along the river.
VOL 36PAGE 644
~ 4. To allow the community flexibility in reviewing development proposals
within the areas of special interest that would award superior design;
that grant public access and dedication of land to the public; that grant
scenic or development easements to a public body or recognized conservation
organization; and still maintains the scenic resources and protects or
enhances the wildlife habitat or that can be judged to be a reasonable
trade-off in values for the public.
Strategies and Policies:
1. The city and county shall preserve areas of the banks and canyons of the
Deschutes River in public or private open space throughout its entire length
within the Urban Growth Boundary, except in the intensively developed central
part of the city. Areas so preserved will allow residential densities to
be higher in the developable portion of the parcel affected.
2. The city and county shall review development proposals that include land in
areas designated as areas of special interest for the public benefits that
can be gained under preservation or development. The City and County may
allow those developments that are not subject to natural hazards; that would
not inflict irreversible harm to the riparian zone; that would enhance public
open space, parks, and access; that have excellence of design, provide via
easement or fee title access for the public to the river, either as park or
trails; and carry out the intent of the plan to enhance the variety and
livability of the Bend Urban Area.
3. Any development within 100 feet of the water's edge shall be subject to a
conditional use and design review procedure, taking into account the goals
for the areas of special interest and the protection of fish and wildlife
habitat.
4. The county and city shall apply the requirements of the deer winter range
overlay zone to any development in the urban reserve area adjacent to or
within one mile of the WA designation on the county plan or zoning maps.
The Deschutes River represents a significant sensitive area within the Urban
Growth Boundary, and the upmost care shall be taken in any development that occurs
so that the public is benefitted by any changes that may occur in the existing character
of the river or riparian zone.
Located within the extreme southwest corner of the Bend Area General Plan and
Urban Growth Boundary is a 322 acre parcel of land under single ownership. This pro-
perty may be generally described as the south one-half of Section 13, Township 18
South, Range 11 East, Willamette Meridian. The property was originally planned as a
development alternative area allowing development to half acre densities, but at the
request of the owner was zoned in 1979 to UAR-10.
The owner of the property wishes to preserve and manage the westerly 177 acres of
the property as a natural wildlife habitat. This portion of the property includes
approximately one mile of the Deschutes River and is inhabited by a multitude of wild-
life species indigenous to the area. (See Exhibit "A".) Preservation and management
of the area in its present unspoiled condition would be a unique benefit to the Bend
Area because of its proximity. It would further constitute direct fulfillment of
Goal 5 requiring local jurisdictions to conserve open space and protect natural and
scenic resources.
VOL 36PAGE 645
Neither Deschutes County nor the City of Bend has the funds necessary to purchase
the property and manage it as a wildlife preserve. The current owner of the property
is willing to perform this valuable service.
To enable the preservation and management of the westerly 177 acres of the property,
proper development of the easterly portion consisting of approximately 145 acres must
occur. This area may be generally identified as the southeast quarter of Section 13,
Township 18 South, Range 11 East of the Willamette Meridian.
At the present time the area is bordered on the east by three separate single
family residence subdivisions at half acre densities. It is anticipated that as
occupancy increases within these subdivisions, the frequency of intrusions into the
wildlife area will be increased.
Experience indicates that an intensively managed open space area is an effective
hindrance to intrusions from domestic pets and persons that can adversely affect wild-
life habitat.
Portions of the southwest quarter of Section 13 are ideally suited for develop-
ment asa golf course. Development of these portions of the property for such use
would provide the managed open space necessary to effectively buffer the westerly 177
acres.
To encourage development of this area in this manner and to provide funds needed
for the preservation and management of the wildlife preserve, further residential
development shall be permitted on the easterly borders of the southwest quarter of
Section 13. Such development shall occur under a planned development concept provid-
ing for open space (golf course, etc.) necessary to properly buffer the wildlife
preserve. Densities within the planned development shall be consistent with suburban
residential development, but shall be computed based upon the easterly acreage (145
acres) contained in the present ownership.
Although no specific present need for the new housing units may be demonstrated,
the public interest in protecting and preserving the westerly 177 acres of the property
as a wildlife preserve without the necessity of expending public funds warrants the
planned development. Planning of an area in this fashion will effectively prohibit
its parcelization into parcels of ten acres, which would occur if the property were
to be designated as an urban reserve area or were to be placed outside the urban growth
boundary.
To carry out the purposes and intent of the plan, the westerly 177 acres shall
be designated as an area of special interest and no further parcelization shall be
permitted therein. The uses permitted shall be those existing and wildlife management.
The easterly 145 acres shall be designated suburban residential subject to the restric-
tions imposed by the intents and purposes of this plan.
Areas of special interest represent potential private or public open space. These
areas have special characteristics and should be preserved as growth occurs. The main
area is a strip along the Deschutes River which is intended to include the canyon of
the river. The scattered areas are mostly rock outcrops or ridges common on the east
side of the Bend Area. These high points break the line sight so that the area retains
a feeling of undeveloped open space. The intent is to retain this character as the
community grows. These open areas could be retained in private ownership as part of
a development and included in housing density estimates so that developers are not
penalized for preserving them. They could also be dedicated to the public as undeveloped
parks or open space sites. The largest single area in this classification is the Bend
Country Club, and this facility should remain during the period included in this program.
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VOL 36PAGE 646
Forest areas are shown on the plan in three different locations. The area in
the southwest is owned by Deschutes National Forest and will be managed as a multiple
use area with very little timber cutting. It serves as a buffer to the urban area,
provides scenic views enroute to the Cascades to the west, and is used for recreation
by residents and visitors to Central Oregon. The other two areas symbolized as forest
are the silvaculture research laboratory north of Portland Avenue and the nursery north
of Butler Market Road. Both are expected to remain in use for the period covered by
this general plan.
A review of the best information available (U.S. Forest Service soils maps), and
photo interpretation resulted in the identification of Class 5 and 6 forest sites
east of the river and south of Powers Road, and west of the river up to Shevlin Park
Road. The area east of the river is substantially developed now, or is contained in
the area designated as special interest. The area on the west is underlain by pumice
and aggregate materials in many areas. Much of this western area is within the city's
sewer service area, and property owners have paid the city to enlarge the interceptors
throughout the City to provide service to their land. Many areas of the west side have
been mined and no longer have any forest potential.
Policies:
1. The city and county shall retain forest site classes in larger lots in order
to be compatible with adjoining U. S. Forest Service lands, and deer winter
range needs until these areas are needed for urbanization.
2. Those areas underlain by commercial deposits of sand, gravel, or other
materials can be used for mineral extraction provided a reclamation program
is part of the mining process.
Urban Area Reserve lands cover extensive areas along the western side of the
Urban Growth Boundary,along the north, and small amounts along the east and southeast
edges of the UGB. This classification is intended to serve as a holding category and
to provide opportunity for tax differentials as urban growth takes place elsewhere in
the planning area. Most of the area has little or no agricultural value. However,
some of it does have deeper soil than found elsewhere in the planning area and does
have good future potential for urban development.
The area also has some potential for destination resorts and recreational develop-
ment. The Bend Area and Central Oregon are desirable recreation places and developments
such as Sunriver and Black Butte Ranch have become valuable assets to the area. Open
lands west of Bend have potential for similar or smaller recreational developments and
related activities which can be developed in concert with the general goals and objec-
tives of this plan.
Research laboratories or other similar activities not including manufacturing or
fabrication may desire a site not in traditional industrial areas. Their location in
an undeveloped area is possible with appropriate review to assure compatible relation-
ships with adjoining properties, streets, utilities, and the expected character of the
area. Such facilities would need to meet the highest standards of design, appearance,
and control over environmental impacts. They would need to be reasonable in time and
location with respect to the goals and policies of this plan.
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VOL 36PAGE 647
The western side of the Urban Growth Boundary has been a source of pumice, dirt,
and some sand and gravel. The inventory in Exhibit "B" covers these resources. Areas
actively mined are zoned SM. The classification will help isolate these resource
extraction operations from incompatible urban uses. Other areas included in this
category are located at the extreme north and south ends of the planning area. The
northern site is owned by the Bureau of Land Management, and it is designated as a
location for future industrial area. The county shall actively seek an exchange of
land with the BLM to bring this land into an available status. The southern area,
like the western section, may have some potential for development beyond the time
considered in this program.
Urbanization
The city and county are expecting rapid growth during the next 20 years. This
growth will bring more dramatic changes to the community than have occurred since
settlement began approximately 80 years ago. Some 51,000 new people are expected to
reside in the area, several new schools will be needed, any miles of streets, sewer,
water, and electrical lines will have to be installed. Much of what is now open space
will become housing, commercial, industrial, or other urban uses. These changes offer
both opportunities for community improvement and for degredation of the area.
The basic elements of this plan dealing with urbanization are intended to take
advantage of the opportunities and create a better place to live in the future. Some
of this growth will create a base for wider cultural activities, more employment, and
better economic conditions. It may also lead to greater traffic congestion, deteriora-
tion of air and water quality, more noise, less open areas, and higher crime rates.
To some extent, there will be trade-offs as growth occurs. How well the community
manages this process will depend on the desire of the community to fund necessary
capital improvements. Obviously, the larger the urban growth boundary the community
has to deal with, the greater the area the limited funds will have to be spread over.
The purposes of the urbanization policy and urban growth boundary are to promote
efficiency in the future growth and development, and to conserve resources by infill-
ing the existing urban area, increasing densities which will allow alternative trans-
portation systems to become viable.
The city and county prepared an urban growth boundary in 1973 which was amended
in 1974, 1976, and 1978. This boundary contains 42.3 square miles. A review of the
statewide Goal 14, which requires each city to adopt jointly with its surrounding
county an urban growth boundary to separate urban from rural lands, has revealed that
the existing boundary does not comply with the seven factors for establishing an urban
growth boundary. Therefore, the community has decided to establish an initial urban
growth boundary, "IUGB". The IUGB is located within the existing urban growth boundary.
The IUGB was established after reviewing factors (1) and (2) of Goal 14 for demon-
strated need for land to urbanize through the year 2000, and a comparison with the
buildable lands available within the UGB. After it was determined that sufficient
buildable lands were available, then factors (3) through (7) were applied to the UGB
to determine which lands were most suitable to be within the IUGB. The existing developed,
committed, and approved areas were mapped; the forest site classes, irrigated, farm
deferred lands, and agricultural soil classes were identified; and the city limits
and Phase II sewer service area were mapped. Using this information, and information
gained through public input processes, the IUGB was established.
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VOL 36PAGE 6 O
The IUGB contains approximately 20,433 acres of land. The boundary is mainly
established on the last five factors of Goal 14, the concepts of public facilities
contained in Goals 11 and 12, and the buildable land needs of Goal 10. For a major
portion of the boundary, existing urban development, committed lands, or approvals
for development by the city and county were used to establish the boundary. The
community removed areas from the IUGB that were last added to the UGB, that were
vacant in large ownerships,.that were being used for surface mining, and areas that
were irrigated and/or were acreage homesites with a generally established lot size
that didn't appear likely to be useful for redivision in the next 20 years.
Within the IUGB, the following policies will apply to the conversion of urbaniz-
able land to urban land.
Assumptions:
1. New development should bear the burden of paying for costs of the development.
2. New development should locate in areas where facilities are available or
can be provided at least cost.
3. New development can occur anywhere in the IUGB, provided that it pays for
necessary facilities.
4. Developments must pay the full cost of urban services if they occur on
developable lands prior to the city's or county's planned capital improvements.
Timing:
1. Within the IUGB, vacant lands passed over by development shall be encouraged
to develop prior to other lands within the boundary.
2. Growth in the Bend Area shall be managed through the cooperative efforts of
the City of Bend and Deschutes County, and shall be in accordance with the
plans, timing, phasing, and financing of public facilities and services.
3. Future urban development shall be contained within the geographic limits of
the IUGB.
4. All parties shall work toward the most efficient and economical method for
providing specific urban services to the area within the IUGB. In the long
run, the city is the logical provider of such services.
5. The plan shall encourage the development of vacant lands that have urban
services before the extension of services beyond presently served areas.
6. No new service districts shall be created within the IUGB to provide sewer
or water service without the concurrence of the city and county.
It is the intent of the city and county to consider land between the IUGB and
the UGB first for inclusion within the IUGB if development occurs faster than expected,
uses more land than expected, can be demonstrated as needed, and can be furnished urban
services. The IUGB will be evaluated on a periodic basis to determine if more land is
needed, and where it would be appropriate to include such land. Factors one through
seven of Goal 14 and the exception process of Goal 2 shall be followed in any.JUGa or
UGa boundary change.
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S�
r
Residential Areas VOL 36PAGE 649
The residential section of the general plan is based on the following general
policies:
1. All new residential developments shall comply with housing densities shown
on the plan, regardless of type, site size, or timing as related to other
developments.
2. Appropriate areas shall be designed for various residential densities to
provide a maximum range of choice with properly related amenities and
facilities.
3. All residential areas shall be provided with services and facilities neces-
sary for safe, healthful, convenient urban living consistent with the density
of development.
4. Residential development shall be coordinated with other land use elements
and community faciliites which are consistent with projected housing densities.
5. Variety in types of residential uses consistent with the housing density and
character of the area will be encouraged.
6. Various kinds of residential uses shall be protected from the intrusion of
incompatible uses in order to preserve and stabilize values and the character
of the area.
7. High density residential developments (1,000 square feet per dwelling unit)
should be permitted only in areas with community water and sewer services
and their locations should have good access to major streets and be near
3 commercial services and/or public open space.
8. Rehabilitation or redevelopment of older residential areas should be
encouraged.
9. Efforts shall be made to provide safe, sanitary housing for low and moederate
income families and the elderly.
10. Outlying residential developments shall be consistent with the physical
characteristics of the terrain and soil on which they are located and there-
by avoid the creation of health hazards, excessive erosion and blight.
A major objective of this general plan is to establish residential areas that are
safe, convenient, healthful, and attractive places to live which will provide a maxi-
mum range of residential choice for the people in the planning area. The plan also
recommends a moderate increase in the overall housing density within the planning area.
This increase in density is intended to recognize the unusually high cost of providing
community services and to encourage slightly greater concentrations of population in
order to reduce travel distances and conserve energy in the future. The development
of desirable residential areas applies to maintaining or improving existing districts
as much as to proper development of new sections. The term density describes the
quantity or area of land per dwelling unit regardless of housing type. A 10 acre tract
of land may contain ten separate single-family homes, or it may contain one ten -unit
apartment building. In either case, the density is one dwelling unit per gross acre,
and the number of units per acre obviously is the governing factor for population dis-
tribution.
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a,
VOL 36PAGE 650
• Density is a basic unit of measurement in determining future requirements relating
to the number of schools and parks, the capacity of water and sewer systems, the
volume of traffic on streets, the size and amount of shopping and service -commercial
facilities, and the number of electrical power and telephone connections. Once the
several densities have been agreed upon indiscriminant changes of or within areas can
cause serious imbalance in the services and faciliites mentioned above. The most
common mistake is to increase density, because this can lead to overcrowded schools
with no undeveloped land available for expansion or for a new school, lack of open
space, undersized sewer and water systems, and traffic congestion on streets that are
loaded far in excess of their design capacity. Conversely, a significant decrease in
density can lead to a considerable waste of community capital resources and facilities
if they are not needed or used by the resulting smaller population.
The moderate increases in density recommended in the general plan are slightly
smaller single-family lots than are now permitted, a greater amount of area for duplexes
or garden apartments, and a greater concentration of population in apartment develop-
ments in selected locations than is permitted at present. Smaller single-family lots
and a larger number of apartment developments within the community should facilitate
the installation of community water systems. sewer systems, streets, and other utilities
including electric power, natural gas, and telephone services. Local costs relating to
the installation of underground utilities are exceptionally high because of the ever-
present rock. If lots are smaller and population more closely grouped, water lines,
sewer lines, and other utility lines will be shorter and will require a smaller capital
investment on the part.of the people in the community. In addition, fewer miles of
streets will be required and travel distances will be shorter. In this way, energy
consumption can be reduced and possibilities for providing some sort of public trans-
portation will be greatly enhanced.
The several residential classifications are intended to guide the future growth
of the community, but in the process, to encourage variety in housing types, particularly
in undeveloped areas. The 10 acre example given above, resulting in one dwelling unit
per gross acre, is a case in point. Another example could be a five acre parcel of
property located in the 6,000 square foot density range. The plan would permit a
typical lot size of approximately 6,000 square feet per dwelling unit. Five acres of
land converted to square footage terms is 217,800 square feet. If the five acres were
subdivided into conventional 6,000 square foot lots, approximately 25 percent of the
gross area would be developed into streets. This would result in approximately 54,500
square feet of the original 217,800 being "lost" for residential development. The net
area would be 163,300 square feet of land available for houses and would amount to
about 27 lots at 6,000 square feet each.
If, on the other hand, the five acres were not developed as a conventional sub-
division but instead were developed using a condominium concept with a single build-
ing or several buidlings, the entire original 217,800 square feet could be mathematically
divided by 6,000 to yield a dwelling unit count of 36, a gain of 9 units over the conven-
tional approach. The latter example assumes that the property is accessible to adequate
roads where land for additional streets would not be required. The resulting housing
density possible under a planned unit development or condominium concept yields the
same number of dwelling units for the five acre tract as would be possible with a
conventional subdivision at a 4,500 square foot per dwelling unit density standard.
Zoning standards should recognize this possibility and establish appropriate density
requirements which will lead to developments generally in conformance with the resi-
dential standards of the general plan.
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VOL 36PAGf 651 ,
n
The location of different residential densities designated on the plan was made '
on the basis of population growth and distribution estimates, existing development
patterns, natural features and conditions, general accessibility, probability of com-
mercial services, and previous land use and zoning decisions made by the city and county.
The degree to which these factors or combinations of factors influenced residential
density designations on the plan varies throughout the planning area. The probable
availability of community water and sewer services also had a strong influence on
distribution of higher residential densities. The five ranges of densities recognized
on the general plan are as follows:
Residential Density
Gross
Acres or Net
Units
Per
Designations
Square
Feet Per Unit
Gross
Acre
Urban Area Reserve
2 1/2
- 10 acres
0.4
- 0.1
Urban Low
20,000
- 40,000 sq.
ft.
2.2 -
1.1
Urban Standard
6,000
- 20,000 sq.
ft.
7.3 -
2.3
Urban Medium
2,000
- 6,000 sq.
ft.
21.7 -
7.3
Urban High
1,000
- 2,000 sq.
ft.
43.0 -
21.7
Urban reserve - Areas within the urban growth boundary but outside of the IUGB.
These areas shall be considered first for inclusion in the IUGB area when need for
additional urbanizable land occurs. The density shall be - one dwelling per
2 1/2 to 10 acres or larger. The 2 1/2 acre designation reflects the existing parcel
size of an area. The 10 acre density applies to largely undeveloped areas, and takes
into consideration adjacent agricultural zoning, forest lands, and deer winter ranges.
In those areas abutting the Tumalo winter range, the standards of the county's winter
range overlay shall apply. These areas are also potential destination resort sites
and should be considered for such usage, as resorts are a component of the area's
basic employment base.
Urban low density residential areas are intended to provide large urban lots for
development with a community water system and individual sewerage disposal systems.
These areas occur in the eastern and southern parts of the planning area and would be
excluded from areas planned for community sewerage disposal systems.
Urban standard density residential areas are intended to provide for the most
common urban residential densities in places where community services will eventually
be available. The areas shown on the plan now have some kind of community water service,
are in areas which can be readily served by a community sewer system, or reflect an
existing development pattern. In undeveloped areas, the greatest latitude in develop-
ment type should be encouraged, and a bonus for density given to developments that
use passive solar design throughout the development.
Urban medium density residential areas are intended to provide for lower density
multiple -family developments, and all shall make provisions for both water and sewer
services prior to development. Most of these areas reflect existing development or
zoning patterns in the area. The largest new locations for medium density develop-
ment are on the east side north of the new hospital, and east of Pilot Butte. Both
of these areas should provide for community water and sewer facilities as they develop.
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VOL 36?AGE 652
Urban high density residential areas are intended to provide for the greatest
concentration of population in the planning area. All shall provide for community
water and sewer services before development occurs. These areas are located in the
central parts of the community, near Central Oregon Community College, and near the
new hospital. High density residential areas are also intended to accommodate business
and professional offices in a residential setting and some limited medical facilities
such as pharmacies or small laboratories.
Background to Residential Policies
virtually all the planning area is characterized by a shallow soil cover over
lava rock. This condition leads to exceptionally high costs for installation of under-
ground utilities. The nature of the lava flows and complex underlying geology has
also led to the extensive use of dry wells as a replacement for septic tank drain
fields. This system is so simple and apparently successful that only about nine per-
cent of the city is connected to a sewer system. However, in recent years there has
been a growing concern that this practice will lead to pollution of underground water
supplies.
The city has almost completed installation of a city-wide sewer system. It is
anticipated that the State requirements will become progressively more restrictive
in the future. As areas urbanize and lot sizes are reduced, individual sewerage
disposal systems become less desirable.
In some cases areas can be served easily by the city sewer system. In other areas
septic tanks and drinafields will work well on larger lots. In still others, septic
systems are not satisfactory because of shallow soils, slope, or both. In the Ward
development south of Bend, the developer has installed a sewerage disposal system
and treatment plant to serve his development. Areas in that section could easily be
converted to urban densities by extending the sewer lines. However, it is a privately
owned system and cannot be used by the general public. Consideration should be given
to the extension of this system to provide service to the areas surrounding this
development. This will require a joint agreement by the city, county, DEQ, and Ward
on service area and standards.
The wide variety of conditions and problems make specific policy statements
difficult. The city will be in a position to provide sewer service to much of the
area in the near future. If all goes well, the entire city should be served by 1982
so that lines could be extended outward from the city limits.
The county has just begun to consider becoming involved in this problem and with
good reason. Historically, there have been few problems with septic tank drainfields
or drill holes in the county. Recently, changes in State regulations have eliminated
the use of drill holes for new development unless it is in areas where such development
can connect to the Phase I system.
The city and county have many problems to consider and much to do in the process
of planning and establishing sewer service in the urban growth area. As mentioned
earlier, a small area east of Pilot Butte could be served now. To provide service
over fairly extensive areas would require formation of a Local Improvement District
and several years of planning and construction. Since there is no apparent problem
in the area now, it may be very difficult to get voter approval of a sewer district.
The most difficult part of this entire situation is that the problems all lie in the
future and there are few, if any, indications of them today.
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VOL 36PAGE 653 •°°�
However, the purpose of any plan is to look to the future and attempt to fore-
see and avoid problems. If the plan is to be successful, problems must be solved in +
a context acceptable to the people of the community today.
There are some things we do know about the future. The rock will continue to
make construction costs higher than normal. The rock will probably continue to require
blasting. The Bend Area will continue to grow. Growth pressure will increase land
values and reduce lot sizes. Smaller lots will not work as well for individual disposal
systems. Sanitation problems will result and, eventually, sewers will be required.
It is not a question of whether or not sewers will be necessary, but rather, how to
minimize the cost.
The solution to services and increased housing densities must be a joint public
and private effort. If services are to be provided, the city and county must participate
by doing those things which individual property owners or small developers cannot do
for themselves. Facility planning for systems, establishment of districts and unifica-
tion of standards are examples of functions and responsibilities of local government.
As the city and county proceed with these activities, standards may change for some
areas as additional engineering data becomes available.
The development of desirable and stable residential areas is a major objective
of this general plan. In urban residential areas, public and private services are
necessary and desirable for safe, convenient and healthful living. Community water
and sewer services are basic to all residential areas developed to urban standards.
Once these more basic considerations are met, considerable attention and effort should
be directed to establishing and maintaining the most desirable living areas possible
within the economic constraints of each development.
This philosophy should be extended to the enhancement or rehabilitation of older,
less desirable existing residential areas. These areas should be identified and
examined individually to determine the exact needs of each and the most appropriate
programs or courses of action to solve their problems. Some action has already begun
by the city through their community development program. The rehabilitation of exist-
ing areas, together with a concerted community effort to provide adequate, safe, and
sanitary housing for low and moderate income families and for the elderly, are high
priority programs for future community action.
An important concept of this plan is that a range of choice in residential living
alternatives in terms of location, density, and housing types should be encouraged
within the planning area. Although the plan does not recommend frequent intermixing
of densities, it does indicate some variety in densities in many sections of the plan-
ning area. It does, however, strongly recommend encouraging variety in housing types
throughout the planning area. It also recommends the preservation of natural elements
of the landscape such as rock outcrops or stands of trees which will interrupt the
otherwise continuous urban development pattern. Without some effort to alter this
pattern, the planning area will be filled with single-family houses, each single story,
each the same distance from the street, each with a two -car garage, and each with a
double driveway filled with cars, campers, or boats. It is possible that a less rigid
and stereotyped development pattern will find increasing favor in the future. The
increasing costs of housing construction has led to an increased use of mobile homes as
living units within the planning area. It is possible that future growth will also
include a higher percentage of apartments, townhouses, or other types of housing which
can be constructed at lower costs than the standard single-family house. If other than
single-family housing types consistent with designated densities are encouraged, they
can add interest and variety to the urban scene. However, the location of mobile homes
within the community should be given special consideration as part of the zoning pro-
cess in order to reflect prevalent community attitudes as closely as possible.
Elm
s ' '''' VOL 36PAGE 654
r
W
The character of the planning area will change by 2000. The population fore-
cast made as a part of this general plan indicates a population increase of about
51,000 people over the next 10 years. This population increase could amount to
about 25,300 new dwelling units in the area over that period. With the exception of
the more intensively developed close -in sections of the city, the character and liva-
bility of the Bend Area will be as strongly influenced by what happens between now
and 2000 as by what exists in the community today.
Future development can recognize the preferred single-family housing development
in a variety of forms. One of the more significant aspects of residential neighbor-
hoods is the street pattern. The street system in new areas should be designed so
that is provides easy access to each lot from major streets and does not encourage
traffic movement through quiet residential neighborhoods. Street alignments should
also provide easy access to schools, parks, and convenience shopping areas. Schools
and parks should be located within the residential service areas and away from major
streets. These public facilities should be easily accessible to the people in the
area which they serve without having to cross heavily traveled streets. This kind of
neighborhood development should be encouraged in new developments within the planning
area. It is difficult to superimpose this development pattern on existing areas, but
it can be used as a frame of reference for redevelopment or future expansion of exist-
ing residential districts. Variations in street patterns and relative merits of each
are shown on Plate 1 Those patterns which leave open space within the residential
neighborhood have several advantages and would be particularly adaptable to the un-
even terrain in the eastern part of the Bend Urban Area. Obviously, it cannot be
strictly applied to rural or open areas where population is widely dispersed. However,
the basic road network for the planning area does establish a framework for future
development of these relationships. The smaller lot size of a well designed planned
unit development does not increase the density in the overall area of the subdivision
necessarily, but it does offer advantages in economy and livability. Aside from the
assets of usable open space, variety, and safety, some of the practical advantages
are less land removed from tax roles and lower construction and maintenance costs
through reduced street area and utilization of natural terrain in order to avoid
problems of drainage and difficult sites. Such developments will also enhance surround-
ing residential neighborhoods. Plate 2 shows variations in housing types and major
street access possibilities for residential development.
Some of the anticipated new growth will occur in areas where the addition of new
housing units will be a problem because of existing development and property owner-
ship patterns. Sections have been developed or segregated into relatively large
residential properties ranging from one to ten acres in size, and there will be a
continuing demand for some properties in this size range. However, as the area con-
tinues to grow, history shows that taxes and the pressure for more land for development
will generate a strong demand to create additional lots and building sites from these
larger properties. The manner in which the original properties are subdivided and
where buildings have been placed will become of tremendous importance to the long-
range efficient use of the land. In many cases, major land -use problems are built
into the original subdivision and, if care is not taken with similar areas in the future,
identical situations will again be created.
-19-
VARIATIONS IN HOUSING TYPE
AND MAJOR STREET ACCESS
CONVENTIONAL
0 uSTREET LOOP
CLUSTER
STANDARD
CUL DE SAC
VOL 36PAGE 656 "" - . -1
PLANNED UNIT
FRONTAGE
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LOCAL WREST
BACKUP LOT
PLATE 2
a � r
s " VOL 36hGE 65'7
A common problem in suburban areas outside of cities is found with the so-called
deep lot or "picture frame" developments that were created at the time when the area
was rural or at least on the fringe of the iriginal city. Lots 100 to 200 feet in
width by 300 to 1,000 feet in depth with frontage on existing roads are fairly common.
A home and accessory building are usually built in the middle of the lot and set back
20 to 30 feet from a narrow road. Time passes, new conventional lot subdivisions come,
roads become more congested, the area is no longer rural, and land values increase
significantly. The older homes remain, often with well maintained yards adjacent to
the house. However, the rear 200 to 700 feet of the once rural haven is given over
to weeds and no practical method is available to use the "wasted land" that suddenly
has real economic value if it could be developed.
In order to illustrate these problems and to recommend reasonable solutions, a
sequence of drawings which include an illustration of a means by which these areas
can be further developed. Each example is an existing site within the planning area.
The problems treated are an existing large lot subdivision and an example of preplanning
for a large undeveloped site.
An example of the resubdivision of an existing large lot development is shown on
Plates 3 and 4. The area is located south of the City of Bend south of the intersection
of Brosterhous Road and Parrell Road. Plate 3 shows the area as it is at the present
time with deep lots ranging in size from 1 to 5 acres. Houses generally are near the
street, and some of the original parcels have been further subdivided.
Plate 4 is an example of how the property could be developed as a conventional
subdivision at standard residential densities. The proposal recognizes existing
property lines as much as possible, and the ownership pattern in effect dictated the
design. Street access to open rear portions of properties was governed by the absence
of houses and the development proposed would obviously require cooperation between
property owners or their willingness to combine and sell their properties as one parcel
to an interested developer.
The kinds of problems encountered in further subdividing this site are located
in various places in the planning area. Although resubdivision design is possible
in many cases, the difficulty of obtaining agreement between property owners as to
what happens to which properties and when is often insurmountable. Efforts should
be made by public agencies to encourage integrated designs for these kinds of areas
so that development does not always occur in the form of small, unrelated subdivisions
with no continuity to the street system which may serve to further isolate remaining
undeveloped properties.
Many kinds of problems can be avoided by sensible preplanning of the original
acreage site in conformity with the future densities shown on the general plan. Plates
5 and 6 show an example of how this can be done for large acreage properties located
on the south side of Neff Road east of Arnold Market Road. Using this preplanning
concept, the property could be subdivided into small acreage residential sites now,
adn then be resubdivided within a planned context at some time in the future when
development pressures indicate a sufficient demand for urban size lots. Future urban
subdivisions would occur according to a pattern determined prior to the time of
purchase by the owners of the small acreage residential lots, and all would have been
on notice as to what the future potential of their property was at the time of purchase.
Plate 5 shows the site and conditions as they exist at the present time. In addition
to existing circumstances of ownership and terrain, there are other factors to be
considered as the area develops. Neff Road is indicated as a major street and additional
right of way will be required as the area develops. Plate 5 shows the first phase of
development by subdividing the larger area into smaller acreage residential sites
-22-
RE -SUBDIVISION STUDY
EXISTING CONDITIONS
N-
0 too bo
'oo ao 'oo wo
SCALE IN FEET
VOL 36PAGE 658
PLATE 3
VOL 36ME 959
RE -SUBDIVISION STUDY
PROPOSED SUBDIVISION PATTERN
1 -
PLATE 4
s_
r '
VOL 36ME 959
RE -SUBDIVISION STUDY
PROPOSED SUBDIVISION PATTERN
1 -
PLATE 4
VOL 36PAGE 660
Q ,
ranging in size from two to ten acres. If the most desirable living area at the '
ultimate housing density is to be obtained, it must be designed before larger lot
subdivisions occur and unplanned property segregations prohibit a good design for
the future. In areas such as this, preplanning can also increase the value of
properties with an efficient design which will enhance the future livability of the
site.
Plate 6 shows a further subdivision of the property to urban density standards.
The area may not reach this density initially, and larger residential acreage lots on
Plate 5 were designed in a pattern and configuration of ownership which can later be
reduced to smaller lot sizes according to this overall plan. Future streets and usable
lots can be retained by constructing the initial housing on sites so that each will
occupy a lot in the final design. In this way, the area can develop to urban densities
in an orderly manner with access retained to each parcel in the final design. Pre-
planning not only simplifies future lotting to an ultimate housing density, it also
facilitates provisions for future major streets, trails, school, and park sites, and
other general plan considerations. Although the entire study site is shown as the
conventional subdivision, parts of the area could be developed as other than single-
family housing as long as the housing density remains the same and enough of the street
plan shown is retained to provide proper access to other properties.
There are other situations within the planning area where undeveloped tracts ranging
from five to 10 acres have been surrounded by development. Consideration should be
given to encouraging other than single-family developments on some of these parcels.
Residential uses in other forms than standard single-family subdivisions can often make
better use of difficult sites. In cases such as this, increased setbacks from adjacent
properties and adequate access can lead to a very desirable living situation. However,
in instances such as these, housing densities should conform to those designated on
the general plan.
There are several other factors and considerations which contribute to the liva-
bility of any area. Certain public and private nonresidential uses are necessary for
the convenience of residents to serve their daily needs., others can be very compatible
with a residential setting and provide open space or visual breaks in the residential
pattern while serving a neighborhood or general community need. However, all non-
residential uses in residential areas should recognize and respect the area in which
they locate and be designed and developed accordingly.
Certain kinds of commercial uses should be permitted in residential areas for the
convenience of the nearby population. These include those services which are used on
a frequent basis, such as a small grocery store, laundry or dry cleaning pickup agency,
or a beauty or barber shop. These facilities and services should be carefully located
and their siting and design subject to thorough review to insure compatibility with
their surroundings. Larger commercial centers can include more extensive commercial
services, but would not enjoy the same freedom of location as the small convenience
centers. Their locations would be restricted to major or major and collector street
intersections, but their siting and design should also be subject to thorough review
as would be the case for a neighborhood commercial development. The need for these
kinds of commercial uses in residential areas in the Bend Area will be fairly limited.
The location and distribution of major commercial areas along Highway 97 and along the
major east -west arterial should provide for most of the commercial needs of the area
within the period of time considered in this general plan. More specific information
relating to commercial areas is given in the commercial section of this plan.
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VOL 36PAGE 661
PRE -PLANNING STUDY
EXISTING
CONDITIONS
LARGE LOT-
FUTURE
OT-FUTURE PATTERN
PRE -PLANNED
PLATE 5
VOL
PRE - PLANNING STUDY
FINAL URBAN PATTERN
36PAGE 662
PLATE 6
.
VOL 36PAGE 663
Other private or semi-public uses such as churches, golf courses, riding academies
or tennis clubs can add variety to the residential development pattern. However, these
kinds of uses should be carefully sited both in terms of traffic circulation and their
relationship to their immediate neighbors. Most uses of this type generate traffic
at times when many people are enjoying the quiet of their homes, and sites should direct
as little traffic as possible on to local residential streets. Many of these uses also
create noise or other problems and should be sited so that as little as possible of
the activity on the site is unwillingly shared by the neighboring properties.
There are public uses such as schools and parks which contribute greatly to the
livability of residential areas. Schools, particularly elementary schools, are often
so attractive as an environmental consideration that they often stimulate growth in
their immediate vicinity. Because they do often direct growth, the location of schools
shall be subject to approval of the city or county. Although parks do not often generate
development, they exert considerable influence toward maintaining values in areas where
they are located. Both schools and parks are vital to living areas and should be encour-
aged. However, both kinds of uses and facilities should recognize the character and
quality of the areas in which they locate and should be designed to be as compatible
as possible with the residential surroundings.
Other public facilities such as fire stations or community buildings also can and
should be functional parts of living areas. Through careful siting and design, they
can be blended into the residential pattern and, at the same time, provide their essential
services to the community. Each location should be considered individually, and each
facility tailored to fit the need and to fit its environment.
The nature of street and other off-site improvements will significantly influence
the character of any residential area and its convenience as a place to live. Major
streets in residential areas should be located and designed to enhance rather than dis-
rupt the areas through which they pass. The natural landscape should be respected as
much as possible, and cuts and fills kept to a minimum consistent with traffic safety.
This is particularly true of hillside developments. Major street rights of way should
be defined before adjacent development occurs so that they may be oobtained at the time
of development in a manner which will minimize acquisition and improvement costs to the
general public.
The street and circulation system should provide for --other means of movement than
the automobile. Major or collector streets should be able to accommodate routes and
stops for mass transit vehicles. Pedestrian and bicycle walks and trails should be
provided in street rights of way or along routes designated and developed for this purpose.
New residential developments shall consider the need for pedestrian and bikeway facilities
in all new developments, particularly as indicated on the general plan. Standards for
these facilities are indicated in the circulation section of this plan. Community effort
should also be made to provide these facilities in existing residential areas.
Other off-site improvements can significa4tly influence the appearance and liva-
bility of an area. Perhaps the most visible of these are overhead utilities and street
trees. No overhead utility lines should be permitted in any new development, and a
long-range program should be initiated to bury these lines in existing areas. In
addition, all above -ground utility installations such as transformer yards, gas, water,
or sewer pumping stations should be designed to fit into residential areas or screened
if necessary.
CEO
VOL 36PAGE 664
4
Street trees can add beauty, character, charm, and shade to any section of the .`
city, and are particularly valuable in residential areas. Many of the older sections
of the community have mature street trees, and these trees have contributed to the
value and long-range stability of these sections. A tree planting program should be
developed for established parts of the community which are without trees, and encouraged
in all new developments. In addition, insofar as possible, all existing mature trees
on undeveloped properties should be preserved as development occurs. The preservation
of the area's native juniper and pine trees in new subdivisions can greatly enhance the
livability of these areas and retain some of the natural charm of Central Oregon.
As the area grows, all new residential sections should be -fully improved at the
time of development if possible, in order to reduce initial and long-range costs to
the general public. These improvements should include present requirements plus street
signs, street lights, trees, and provisions for pedestrian and bicycle circulation.
Many of the foregoing comments also apply to medium and high-density residential
areas and to mobile home park and subdivision developments. Although usually smaller
in extent, many similar amenities are desirable in all living areas. However, medium
and high density residential developments should also be subject to certain locational
standards and considerations. Community water and sewer service shall always be avail-
able before medium or high density developments are constructed, or some provisions
shall be made to accommodate these facilities when they are developed. In general,
these areas should be easily accessible by means of major streets, and should be located
on sites which are near commercial services and/or public open space. They should be
situated so that the higher residential densities do not generate excessive traffic
through single family areas. The general plan also concentrates medium and high density
housing in parts of the central sections of Bend and along 4th Street to locate popula-
tion concentrations in areas with maximum convenience to a commercial center or public
open space. The plan also recommends medium and high dnesity residential areas east
of Pilot Butte in response to the construction of the new hospital and as a means of
encouraging extension of sewer services in the area near the old Bend sewage treatment
plant.
-No--speci-fic- -are as- -have--be en-desigrrat-ed--for -mobil e - home- -park - development.--- It --is
recommended that they be considered as a residential use and subject to the same density
standards as other residential uses. However, individual mobile homes, because of their
different character, should be located in mobile home parks or mobile home subdivisions,
or on larger individual lots in some of the more undeveloped sections of the planning
area. Individual mobile homes or mobile home parks should be treated as a conditional
use in standard residential areas, and their location subject to a public hearing. Mobile
home parks should be permitted in medium and high density areas, subject to site plan
review.
As mentioned earlier under the general discussion of land use, the Bend Area General
Plan is not a saturation plan or a plan for a specific period in the future. Rather,
it is intended to provide a realistic guide for future community action, and treatment
of land uses varies in different parts of the total project area. Population forecasts
of 84,000 people indicate an increase of approximately 51,000 between now and 2000.
Land allocated in the general plan for residential development will accommodate
larger populations than estimated by 2000. This is caused by existing land -use patterns
which have already committed undeveloped lard, previous planning, and zoning commitments
made by the county and the city, and a clear trend in development that will occur by
2000 which will be sufficient to cormit the development pattern of an area to residential
use beyond that time.
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• VOL 36ME 665
a
Anticipated growth in the Bend Area will have as significant an influence on the
character of the area as what exists today. If the character and quality of Bend are
to be retained as this growth occurs, it will require considerable effort and a constant
concern on the part of the people to make this happen. Good development standards,
respect for the natural environment, proper public services and facilities, and concern
for the appearance of the community are all essential to the retention of the character
and quality of Bend. The future quality of the area as a place to live will depend to
a large degree on decisions made now which will guide future growth. The statements
which follow set forth guidelines for future residential areas in the community.
Residential Areas - Statements of Intent of the Plan
1. The basic and most important single development criteria for residential areas
is housing density.
2. Residential densities indicated on the general plan shall be respected and
reflected in city and county codes, ordinances, and development policies.
The intent of the plan is to indicate housing density rather than type of
building construction permitted within various density areas.
3. All new housing developments shall conform with the designated housing density,
regardless of building type, site size, or timing as related to other develop-
ments.
4. All residential developments shall respect the physical characteristics of the
site relating to soils, slope, geology, erosion, flooding, and natural vege-
tation.
5. In all residential areas, consideration shall be given to designing areas for
living, rather than directing the major effort to a development which is simple
and economical to build.
6. All residential areas developed to urban densities on lots of less than five
acres shall be provided with community water service.
7. The minimum lot size for new lots without community sewer service shall be
14,000 square feet, and provide for further segregation to the density desig-
nated on the general plan.
8. Residential development standards within the urban growth boundary shall be
the same for areas of similar densities or topographic conditions, both inside
and outside the city.
9. New developments in existing residential areas shall respect the character and
quality of the areas in which they locate.
10. New developments in areas without an established character or quality shall
be permitted maximum flexibility in design and housing type consistent with
densities and goals and objectives of the general plan.
11. Consideration should be given to simplifying review and approval procedures
for non -single family housing in undeveloped or newly developing areas, such
as staff review and approval of proposals conforming to general plan densities,
etc., with appeal procedures to planning commissions and governing bodies by
either the applicant or surrounding residents.
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VOL 36PAGE 666 ;
12. Hillside areas shoul be given special consideration in site design by both
the developer and local regualations. Building sites, streets, and other ,
improvements should be designed and permitted in a manner which will minimize
excessive cuts and fills and other erosion -producing changes such as concen-
tration of rapid storm water run off in inadequate facilities.
13. Areas of older or poorer quality housing within the community should be located
and identified and effots made through redevelopment programs to rehabilitate
or redevelop these sections.
14. Medium and high density residential developments should be located where they
have good access to arterial streets and are near commercial services or
public open space.
15. Higher density areas should be concentrated along 4th Street for convenience
to commercial services and public open space.
16. Higher density residential uses should be concentrated in closer -in areas to
downtown to provide maximum convenience to highest concentrations of population.
17. Mobile homes should be considered as a type of residential development and be
subject to the same density regulations as other residential areas.
18. Mobile homes should be permitted as part of a mobile home park, or part of a
planned unit development, or on individual lots in areas designated by city
and county zoning regulations.
19. Mobile homes located on individual lots other than planned unit developments
should be subject to special siting standards.
20. Mobile homes should not be permitted on individual lots in areas already
developed with conventional housing at urban densities unless mobile homes
were part of the original development concept.
21. Certain private and public nonresidential uses are necessary and should be
permitted within residential areas for the convenience and safety of the
people.
22. All nonresidential uses shall recognize and respect the character and quality
of the residential area in which they are located and be so designed.
23. Neighborhood commercial shopping areas may be located within residential dis-
tricts and shall have development standards which recognize the residential
area.
24. Development standards shall be established for those commercial uses which
will provide off-street parking, landscaping, access control, sign regulations,
and design review.
25. In many cases, home occupations are a legitimate use within residential areas,
and should be permitted provided that the use displays no outward manifestations
of a business.
26. Of necessity, nonresidential uses will have to abut residential areas in dif-
ferent parts of the community, and in these instances, any nonresidential use
should be subject to special development standards in terms of setbacks, land-
scaping, sign regulations, and building height.
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27. Recreational vehicle storage facilities should be permitted in residential
areas and these facilities should be improved, landscaped, and screened from
adjacent residential uses.
28. In new residential developments, parking for recreational vehicles should be
provided in common storage facilities or in the rear yard area of each build-
ing site, with clear access to a street or alley.
29. Certain private recreational uses, such as golf courses or riding stables, can
be successfully integrated into residential areas provided the location, design,
and operation are compatible with surrounding resideRtial developments.
30. Schools and parks should be distributed throughout the residential sections
of the community, and every dwelling unit in the area should -be within walking
distance of a school or a park.
31. Because schools can encourage or direct residential development, their locations
shall be subject to the approval of the city or county.
32. All new residential developmentshall provide public, semipublic and/or private
open space as part of the developmentp or money in lieu of land.
33. Area dedicated or provided as public, semipublic, or private open space as
part of a residential development should be counted as part of the total area
when computing residential densities for any given development.
34. Fire stations are necessary in residential areas, and their location and design
should be compatible with their surroundings.
35. Community buildings including community recreation buildings or health and
social service buildings could be permitted in residential areas where those
services are necessary or desirable, and such facilities should be compatible
with surrounding developments, and their appearance should enhance the area.
36. Except for major and collector streets, street patterns in residential areas
should be designed to provide convenience access to each living unit, but not
encourage through traffic.
37. Major and collector streets, particularly rights of way, shall be secured as
development proceeds so that a reasonable circulation pattern will result with-
in residential areas.
38. Streets should recognize natural terrain features as much as possible to avoid
unnecessary cuts and fills.
39. Streets should be designed to carry anticipated traffic volumes and to provide
space for an adequate planting strip and sidewalks or bikeways.
40. Sidewalks shall be required in all new urban standard, medium, and high density
developments, and on all streets and roads providing or that will provide access
to schools, parks, or commercial areas, unless the developer plans an acceptable
alternative system of walkways and trails to provide adequate pedestrian cir-
culation within residential areas.
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VOL 36PAGE 668 .<'.
41. Efforts shall be made to complete or connect existing walks along routes to
schools, parks, or commercial areas.
42. Bikeways should be considered as both a circulation and recreation element
in the plan, and adequate facilities should be obtained for this purpose in
all new development.
43. Efforts should be made to extend trails, pedestrian ways, and bikeways through
existing residential areas.
44. Bicycle traffic should be permitted on sidewalks in &1 residential sections
of the community in order to separate bicycle traffic from automobile traffic.
45. Provisions should be considered which will permit mass transit vehicles on
arterial and collector streets within residential areas in the future.
46. All on and off-site improvements in residential areas should add to the character
and quality of the area as a place for people to live.
47. Efforts should be made over a sustained period of time to place utility lines
underground in existing residentialareas.
48. All public utility facilities such as power, telephone, and cable TV should
be located underground in new urban density developments.
49. Above -ground installations, such as power transformer yards or natural gas
pumping stations, should be designed to recognize the character of the area
in which they are located.
50. Water and sewer pumping facilities and other above -ground installations should
be designed to blend with the residential areas in which they are located.
51. Street lighting should be provided in all new subdivisions developed at urban
densities, and ornamental street lights approved by the city or county should
be installed at the time of development.
52. New techniques of providing adequate lighting such as ornamental yard lights
should be considered as alternate or supplemental facilities to the normal
street lights at intersections.
53. Street signs of a type approved by the city or county shall be provided for
each new residential development.
54. All residential areas should include other amenities as development situations
permit, such as landscaped traffic islands or extra -width planting strips.
55. Street trees should be those which are suitable to the climate of the Bend
Area, add color and beauty to the community, and have a root system which
does not interfere with underground utilities, curbs, and sidewalks.
56. Natural tree cover should be retained along streets in new developments insofar
as possible to retain the natural character of Central Oregon within the urban
area as the community grows.
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VOL
36PAGE 669
57. Efforts should be made to design a tree planting plan for the existing areas
of the community, and to plant approved trees.
58. All residential development should respect the natural ground cover of the
area insofar as possible, and all existing and mature trees within the community
should be preserved.
59. Fire access shall be considered during any new residential development.
60. Street names shall be unique within the postal and fire districts.
Commercial Areas -
The following goals establish a framework for the commerr Al section of the general
- - _ -__plan;_._..------- ------------
--- --------
1. "Concerted community efforts shall be made to improve the appearance of existing
commercial areas, and similar considerations encouraged in all new developments_
2. New commercial areas in outlying sections shall be developed as centers rather
than as strips along major roads.
3. Development standards should be established for all commercial areas and par-
ticularly for those which will be adjacent to residential districts.
4. A limited number of neighborhood commercial developments should be permitted
in residential areas as a convenience to the residents, and these uses shall
conform to the character of the areas in which they are located.
5. Concerted efforts shall be made to rehabilitate or redevelop older commercial
areas in order to retain their values to the community.
Commercial areas designated on the plan generally recognize and reinforce exist-
ing development and zoning patterns within the planning area, and suggest locations for
additional commercial development. Most existing commercial uses in the urban area
occur as part of a more or less continuous strip along the major north -south and east -
west routes through the city and in downtown Bend. These commercial areas account for
most of the commercial land use in the planning area. Although the plan recognizes
the existing strip commercial development along major highways in the area, it strongly
recommends that new commercial developments occur in centers rather than as strips or
extensions of the existing strips along major highways.
One of the most difficult problems in the planning process is the designation and
regulations of commercial land uses. Most areas are reluctant to limit locations for
business use for fear of discouraging competition and growth. This attitude is also
based on a desire to allow each individual the opportunity to realize maximum gains
from their property. However, time and experience have proven that this concept yields
uncertainty, mixed land uses, and development patterns which are so unstable as to
threaten all investments. In fact, zoning as it existing today has resulted from
abuses of complete freedom of land use which have ultimately endangered life, health,
and property values in many areas.
It is not the intent of the general plan to limit commercial activity, but rather
to direct it into areas where it can develop harmoniously with the rest of the com-
munity. The plan proposes relationships between commercial uses and other elements of
the community which can be achieved with minimum conflicts among uses. The responsi-
bility for land -use decisions rests with the City Commission and the County Commissioners,
and careful use of this authority will make the entire community more attractive and
economically sound.
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VOL 36PAGE 670 ;
Aside from the economic role, commercial areas have a tremendous impact on the
appearance of the community. Since they are almost invariably located along traffic i
arteries or at major intersections, they are seen by more people each day than any
other parts of the community. They do in fact create for most citizens and visitors
the visual image of the city, even though they occupy less than 5 percent of the land
area. The appearance of Highway 97, Franklin and Greenwood streets, and downtown
Bend play a very strong role in establishing the visual quality of the area. Improving
the appearances of these sections, particularly that of Highway 97, shall be a major
community objective.
As the population increases, the need for commercial land., -will also increase.
The general plan recognizes six types of commercial areas: neighborhood, convenience,
limited, highway, general, and central business district commercial. The location and
distribution of these areas are related in part to existing land -use and zoning commit-
ments, and to anticipated service areas and functions. The paragraphs which follow
treat each of the various commercial classifications in terms of principal use, loca-
tion within the project area, and special considerations of problems.
Neighborhood commercial areas are intended to provide locations for small businesses
and services which fit into the residential development pattern and provide a convenience
to residents in the immediate neighborhood. A small grocery store or mini -mart, a
barber or beauty shop, a dry cleaning pick-up agency, or a laundromat are examples of
appropriate uses. Neighborhood commercial areas should be located on major or collector
streets, and have a site size of from 1/4 to 1/2 acre. In order that the centers remain
small, commercial floor area should have between 5,000 and 10,000 square feet. All
possible centers are not shown on.theggeneral plan because of their small size, but
they should be from 1/2 to 3/4 miles apart, and new locations should be based on
realistic economic projections which demonstrate a need for the facility.
Convenience commercial areas are intended to provide for the frequent shopping or
Service needs of nearby residential areas. They will consist principally of a relatively
wide range of small.retail and service uses, the largest of which would be a grocery
store. Uses such as a grocery store, drug store, small bakery shop, specialty shops,
and offices would be typical of these areas. These areas are located on the plan along
Greenwood on the east side, and on Galveston, 14th, and Newport on the west side.
As time passes, there may be a need for convenience areas not shown on the plan.
If this happens, new convenience areas should occur as centers, rather than as commer-
cial strips along major streets or highways. Convenience centers should be located on
major or collector streets, preferably at or near an intersection with another similar
street, and have a site size of from 2 1/2 to 4 acres. In order that convenience centers
remain oriented toward serving nearby residential areas and do not expand to serve much
larger parts of the community, commercial floor area should be limited to 35,000 to
55,000 square feet. They should be spaced from 1 to 1 1/2 miles apart, and new loca-
tions should be based on realistic economic projections which demonstrate a need for
the facilities.
Limited commercial areas are intended to provide locations for a wide ran e o°
retail, service, and
such things as retail
service stations, etc
north overpass south
and Deschutes.
g
tourist commercial uses in the community. Uses would include
stores, offices, banks, restaurants, motels, automobile agencies,
These areas are shown on the plan along 3rd Street from the
to Cleveland, and along the old city entrance on First, Division,
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VOL 36P4GE 671
• There may a need for additional limited commercial areas in the future which
are not shown on the plan. New areas should be located as centers rather than as
commercial strips. They should be located at intersections of major streets, and have
a site size of from 12 to 20 acres. There may be suitable sites adjacent to or part
of existing commercial areas along the highway. If centers are developed in situations
related to the highway, extra care should be taken to guarantee excellent access to
the site, and development plans should include proposals for solving congestion problems
which may be created at highway access points. If new limited commercial centers are
developed, uses in these centers should not include auto agencies or motels_
Highway commercial areas are intended to provide for those uses which have large
site requirements, or are oriented to highway access, or provide service to the travel-
ing public. Uses could include motels, auto agencies, building material sales, mobile
home or trailer sales, equipment sales and rental. In addition, highway commercial
areas could include uses described for limited commercial areas as well as commercial
recreation facilities, such as bowling alleys, drive-in theaters, miniature golf courses,
or similar activities. ,
Because highway commercial areas are located on the plan along major entrances to
the community, special consideration shall be given to landscaping, setbacks, access,
and signing. These areas will form the first impression of the community, and can have
a significant impact on the traveling public.
General Commercial areas include a broad mixing of commercial uses in older close -
in sections of the community. Uses should include retail, wholesale distribution, and
service uses such as retail stores, plumbing supplies, cabinet shops, tire sales, auto
repair, etc. These areas are shown on the plan between 1st and 3rd north of Thurston,
generally east of downtown between Greenwood and Franklin, and from Hill to the rail-
road south of Franklin. New areas are shown on the plan adjacent to industrial areas
and in centers.
Central business district commercial is downtown Bend. Uses are mainly retail,
financial, and service activities located on small, individual parcels.. This area is
symbolized separately because of different development problems. Here, individual
properties are small, and most are developed. Buildings occupy most of their sites
so that building setbacks or off-street parking on each lot are impossible. Any major
new developments in the Bend Central Business District will require the cooperation of
downtown merchants and property owners and the city.
There is a potential for new retail commercial development in the Bend Area. Where
it locates will have a strong impact on downtown. If another location is selected, it
will greatly reduce the success of downtown as a retail center. The usual problems
Of multiplicity of ownership and tenants, small lots, lack of parking, and inadequate
traffic circulation are all obstacles in the path of a healthy future for the central
area. Solution of these problems must be recognized as an extremely sensitive and
difficult task. It will take the active interest and cooperation of downtown property
owners, businessmen, and the people of the City of Bend to accomplish any program to
revitalize this central area.
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VOL 36PAGE 672
As with other land uses; the general plan must recognize major existing develop-
ments even though under similar locational circumstances they may not be recommended
as a future development pattern. Strip commercial developments cause many problems
in terms of traffic congestion, mixed uses, and visual chaos. Each business along the
street becomes a point of turning movements which can greatly reduce the traffic capacity
of the streets as well as increase by many times the number of potential accident situa-
tions. The length of the commercial strip, which is often backed by residential develop-
ment, greatly increases the number of land -use conflicts between property owners. The
businesses are designed to face the street, and site improvements and beautification, if
any, are usually done in the front part of the property. Little or no thought is
given to the rear yard areas which abut back yard outdoor living spaces of adjoining
residences. very often, commercial strips are so long that available property exceeds
the commercial demand, and residential uses are often intermixed along the street to
the detriment of both.
The visual chaos created by strip commercial areas is so much a part of the ugli-
ness of American cities that it is largely taken for granted. Like a bad odor, we
have become accustomed to hundreds of signs fighting for a dwindling place in the sun,
with utility poles suspending their wires over the clutter of obsolete, converted,
added on to buildings by signs. All that we normally ask is that this visuallitter
be kept far enough back from intersections so that we can see the oncoming traffic
when we try to drive out on to the streets. There are individual exceptions to this
pattern, but they are too few and too far between to alter the picture.
Since these areas cannot be removed, steps should be taken to solve some of the
problems. Median strips can solve or relieve some of the traffic problems, and special
site development standards relating to setbacks, fencer; and screening can reduce con-
flicts with residential uses. Reduction of the number and size of signs would do a
great deal to restore some sense of visual order. These conditions are found along
virtually the full length of 3rd Street, and to some extent, on Greenwood Avenue.
Development along Highway 97 through the area has significantly changed the character
of Bend.
If the community is to retain its character and quality as gorwth occurs, signi-
f icant improvements must be made in its present commercial area. Action by the city
regulating signs in the central business district has altered the appearance of that
area. Additional steps should be taken regarding sign regulations in other sections
of the city as well. Another step is to initiate a major effort to beautify streets
in commercial areas with street trees, landscape medians where possible, and landscap-
ing on existing commercial properties along the streets through the cooperation of
local businessmen in all parts of the community. These steps alone can change the
face of the city in a few short years and recapture some of the charm of Bend. The
statements which follow set forth future policies for commercial areas in the commu-
nity:
Commercial Areas - Statements of Intent of the Plan
1. Strip commercial developments shown on the plan along highways shall not be
extended.
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. • `? VOL 36ME 673
2. No new strip commercial shall be permitted along major or secondary streets.
3. Commercial uses along major streets and highways shall be subject to special
development standards relating to landscaping, setbacks, signs, and median
strips.
4. On Highway 97, 3rd Street, and Greenwood, efforts shall be made to obtain
landscaping along the street frontage and landscaped median strips within
the street right of way in order to soften the appearance of existing com-
mercial developments and better channelize turning movements on these streets.
5. Zoning for commercial centers other than those shown on the plan should be
allocated on a basis of apparent need, and this need should be supported by
"real world" data by the applicant.
6. Care should be taken to control the size of these centers so that excessive
zoning does not require the addition of other kinds of uses which would
generate traffic from well beyond the service area.
7. All commercial shopping centers shall be subject to special development
standards relating to setbacks, landscaping, physical buffers, screening,
access, signs, building heights, and design review.
8. Neighborhood commercial centers are small developments which serve the frequent
needs of the people in the immediate area and should consist of uses such as
a mini -mart, barber or beauty shop, or a laundromat. They should be between
1/4 and 1/2 acres, have between 5,000 and 10,000 square feet of gross floor
area, serve a population of from 400 to 1,000 people, and be from 1/2 to 3/4
miles apart.
9. Care should be taken to control the size of any other new commercial develop-
ments that may be required as growth occurs. Sites should not be oversized
to a point where additional uses which would generate traffic from outside
the intended service area are necessary to make the development an economic
10. Any regional shopping center should be located in the central business district,
or as identified on the plan.
11. Commercial developments which abut residential zones or residential uses should
be subject to special setback and screening provisions.
12. In all existing commercial areas, sign standards with appropriate amortization
provisions shall be adopted in order to change the face of the city.
13. A concerted effort should be made to revitalize the central business district
through rehabilitation or redevelopment of existing areas.
14. Buildings in commercial areas in the central section of the community should
be limited to three stores in height to retain the character of the area and
preserve views of the mountains.
IM
VOL '06PAGE 674 '<
15. An area has been symbolized for highway commercial with a flexible
boundary south of Murphy Road on the west side of Highway 97. This
area should be approved for development only when a system of highway
widening, frontage road, and limited access control is created that
will insure the protection of the capacity and safety of Highway 97,
and limit the points of access in this area.
16. North of Cooley Road on the west side of Highway 97 is an area desig-
nated for highway commercial, currently zoned UAR-20. This area should
not be rezoned until a system of frontage roads is created that will
provide access to the properties, rather than direct access to Highway
97. The property owners in this area have suggested such a plan. A
copy of these plans is available in the Bend Urban Area Advisory
Committee minutes. Further development in this area will necessitate
highway improvements that should be borne by the area.
Commercial Areas - Statements of Intent of the Plan
1. outlying commercial areas must provide for uses that do not generally
locate in retail centers. Such may be auto dealers and repair shops,
extensive recreational uses, such as bowling alley or driving range,
building materials, sign shops, electrical supplies, motels, restaurants,
and facilities serving tourists.
2. Some of these uses will have to locate on major highways, some will
locate in areas with access to the urban arterials. However, access
control, frontage roads, landscaping, and good design can minimize the
physical and visual impact.
3. It is the intent of the comprehensive plan to avoid problems associated
with strip development, i.e., congestion caused by turning movements,
too much access to the arterial street or highway.
4. It is the intent of the plan to allow commercial development adjacent to
arterials and highways, provided that the developments access onto frontage
roads or interior roads, and that access on to the highway or arterial
will be limited. Points of access will be encouraged that provide for
adequate and safe entrances and exits and that favor right turns and
merging over the use of signalization.
5. The zoning and subdivision ordinances are intended to provide the city
and county the tools to regulate the growth of the Bend Area in a positive
way. In the use of these tools, the city and county shall apply access
control, dedication for wider streets, wider setbacks, street improvements,
such as left turn refuges, medians, frontage roads, and reverse frontage
to maintain the function of the collector, arterial, and highway to
improve traffic.
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.o.. YOL 36PAGE 675
Industrial areas -
The industrial section of the general plan was prepared in conformance with
the following general policies:
1. Community efforts shall be directed toward preserving prime industrial
lands for industrial purposes.
2. Industrial areas shall be rpotected from incompatible commercial and
residential uses.
3. Adequate traffic circulation, off-street parking, loading, and service
areas should be considered as essential to industrial development.
4. Community efforts should be directed toward improving the general appeara-
nce of industrial areas so that they make a positive contribution to the
environment of the community.
5. Industrial development that will not impair the quality of surface or
ground water nor air resources is encouraged.
Most of the existing industrial development in the planning area is located
south of the City of Bend in the Diamond International complex or along the north -
south corridor through the city which has rail or highway access. The general plan
recognizes this basic pattern and adds considerable amounts of industrial alnd on the
west side and at both the north and south edges of the city east of Highway 97. The
industrial area to the north adds considerable acreage to the section being developed
by the Bend Industrial District. Areas for heavy industrial development are symbolized
in this section because the site is of sufficient extent to permit lighter industrial
uses or open spaces as buffers between heavy industrial development and surrounding
industrial uses. Additional industrial areas recommended south of the city are
designated for light industrial development. These areas are adjacent to the rail-
road and have good access by means of arterial streets.
The general plan recognizes the existing development pattern, and in addition,
reflects some zoning and land -use commitments previously made by the county and the
city. Much of the proposed industrial land is held in large ownerships by relatively
few property owners.
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VOL 36PAGE 6'76
Industrial park areas are intended to accommodate those industrial or distribution
uses which seek fully improved sites and protection against incompatible industrial
uses, and are willing to abide by site improvement requirements and performance standards.
These areas should provide industrial sites in a park -like environment. Industrial
park sites recommended on the plan are located east of the Sisters Highway south of
Cooley Road, and another is located west of Overturf Butte in the vicinity of Skyliners
Road. The Skyliners Road development would be within the Phase II sewer boundary as it
now exists or may be determined that service can be extended. It shall be tied into
one or both of the major new streets crossing the river; Colorado and/or Arthur Avenue.
It shall meet the highest environmental standards, and the design of the park shall
contain an undeveloped vegetative buffer between the industrial uses and any adjoining
development. The uses contemplated for this area would not include any use emitting
any obnoxious odor, even though such might be within the existing State Department of
Environmental Quality standards.
The BLM land east of the railroad and north of Cooley Road should be preserved as
a future industrial site. The county should take the necessary steps to acquire this
site for possible future development. If this area is designated as industrial and
so zoned, a natural buffer of trees and natural features shall be included in the
development of the area.
Light industrial areas are intended to provide for heavier commercial and light
industrial uses devoted to wholesaling, warehousing, light fabrication, and repair.
Extensive areas for light industrial development are shown on the plan. Most have
rail access or good highway access and are extensions of existing industrial areas.
General industrial areas are intended to provide for a wide range of industrial
activity including basic manufacturing industries. The areas shown on the plan reflect
existing development or zoning patterns and all have existing or potential rail access.
Mineral extraction - There are some areas designated for industrial use in out-
lying sections of the community. These uses relate to gravel or pumice mining, and
must occur where the resource is available. Gravel despoits are rare in the planning
area, but pumice is available in many locations west of Bend. These operations can
be carried out in the urban reserve areas with little adverse affect on adjacent uses.
However, sites shall be restored to some usable form after the resource has been
extracted.
In the past, the community has made a continuing effort to attract industrial
development to the Bend Area. This effort has been reasonably successful, but little
or no attention was given to the manner in which new industries developed their sites.
Future industrial development activities should concern themselves with quality of
industrial development in the planning area, and efforts should also be made to improve
the appearance of existing industrial sections.
The statements which follow set forth future policies for industrial areas in the
community:
Industrial Areas - Statements of Intent of the Plan
1. Industrial areas shall be provided for new industry in a park -like setting.
2. Industrial developments along highways shall be subject to special development
standards relating to setbacks, landscaping, signs, and outside storage.
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VOL 36PAGE 677
3. Continuing efforts shall be made to upgrade the appearance of existing
industrial areas and to eliminate adverse waste discharge and air quality
conditions.
4. New industrial development shall be encouraged to locate in areas where
community services can be provided.
5. Wherever industrial uses abut residential uses or residential zoning, special
development standards relating to setbacks, screening, signs, and building
height shall be established.
6. The community shall retain its policy of attempting to diversify its indust -
trial base.
7. The sawtooth pattern symbolized on the general plan indicates a flexible
boundary between uses.
8. Since it has been established that the quality of the air may be adversely
affected by additional discharges, the development of new industrial sites
will be closely monitored in cooperation with DEQ to prevent substantial
degredation of the air shed.
Public Facilities -
Public facilities are those areas and improvements which accommodate or provide
various government services to the people of the community. These include schools,
parks, fire stations, and other facilities, such as public buildings, shop areas,
solid waste disposal sites, sewer and water systems, etc. Adequate public facilities
are essential to well ordered community life, sustaining and enhancing the health,
safety, educational, and recreational aspects of urban living. In many ways, the
adequacy, character, and the quality of public facilities express the community's
collective opinion of itself and its environment.
Schools -
Identifying the location of public schools is an important function of the general
plan. The need for new schools is closely related to residential development and housing
densities in the community. It is possible, therefore, to estimate the number of school-
age children for each type of school which will be required to serve anticipated
residential developments in various sections of the planning area. It is extremely
important that schools be located with reference to the development pattern indicated
on the general plan. Elementary schools in particular can have a significant influence
on the location or direction of growth in any given area, and will in themselves attract
residential development. They should be centrally located with reference to their
service area and spaced in a way that will permit reasonable locations for future schools
as the area continues to urbanize. The responsibility of providing schools rests with
the local school district, and the purpose of this plan is to recommend a comprehensive
plan for location of various types of schools consistent with anticipated development
patterns.
The school section of this plan has been prepared in cooperation with the staff
of the Bend School District. Future enrollment estimates are based on the population
forecast for 2000. Plate 7 shows existing and projected elementary, junior, and senior
high school enrollment for the total project area and for each planning area. It can
be seen from the data on this plate that total enrollment is expected to increase to
about 15,910 students by 2000. Based on this estimate, a plan was prepared for the
type and location of schools necessary to accommodate future anticipated enrollments
for various parts of the project area.
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VOL 361 AGE 678 s4
The school section of the general plan is shown on the general plan map. It
is anticipated that there will be a need for three additional elementary schools,
two new junior high schools, and one new senior high school in the planning area by
2000. This requirement is based principally on increases in population, but also
includes the phasing out of older schools. The school requirements indicated in
the general plan are based on a 6-2-4 grade structure existing in the Bend School
District. Modifications in grade structures or year-round school could alter school
facility requirements as indicated in the plan. For this reason, the school element
of this general plan may be subject to revision and amendment as the school district
proceeds with its deliberations relating to modifications of educational policies.
The school section of the general plan was prepared in conformance with the
following general policies:
Schools -
1. Schools in the planning area should be developed according to the policies
of Bend School District No. 1, and the Oregon State Standards, which are:
Enrollment Site Size
Elementary School 400 15
Intermediate 750 25
Senior High School 1,200 40
2. The School District shall participate in providing necessary street, pedes-
trian, and bike facilities adjacent to the school sites as new schools are
erected.
3. When a majority of a school's expected attendance will reside within the
IUGR, the School District shall make every effort to construct such school(s)
within the IUGB where students can walk to the school.
4. The city and county shall require major new developments to reserve land for
school purposes in conjunction with the School District's plan.
Parks -
Exhibit "C" contains a needs assessment and inventory from the Metro District
Park Plan.
The park section of the general plan applies the following general policies:
1. Develop a park system that expresses the community's personality.
2. Park and recreation development is a vital part of the future livability of
the area, and efforts shall be made to keep these facilities abreast of growth.
3. Park sites should be acquired well in advance of need so that they can be
reserved for community use before the cost of acquisition becomes prohibitive.
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VOL 36PAGE 679
r 4. Parks should be located within walking distance of every dwelling unit in
the community.
5. Parks should be centrally located and easily accessible to the areas they
are intended to serve.
6. The park district should initiate a regular program for acquisition and
development of park and recreation facilities.
Throughout the country and the northwest, development of parks and recreation
facilities has become increasingly important in recent years. Over a period of time
the demand for these facilities has been brought about in part by a higher standard
of living and the resulting increase in leisure time. Such things as shorter work
weeks, earlier retirement, and increasing life span have added many leisure hours to
the lives of a growing segment of the population.
Park development has also become increasingly important because of the trend
toward urban as opposed to rural living. As featured in the urban landscape, parks
will improve the chracter of existing neighborhoods and tend to stabilize property
values. Many businesses and industries seek locations with a high level of environ-
mental quality as a means of increasing their ability to attract and retain a stable
and productive work force. With the improvement of transportation systems giving
greater flexibility for business and industrial site selection, a well developed park
and recreation system can be an important factor in attracting such developments to
the community.
The general plan recommends a park and recreation system which would place a
neighborhood park within walking distance of every residential unit in the community,
as well as take advantage of natural sites within the area both inside and outside of
the city. As the area grows, other opportunities will occur in addition to those
shown on the plan. Each should be evaluated in terms of conformance with policies and
objectives of the community.
The general plan also recommends school parks be developed wherever possible. A
park facility located adjacent to a school has essentially the same service area as
the school. This approach to park planning has several advantages. The combined
school and park make a year-round center for educational and recreational activities
and utilize parts of the school facility which might not otherwise be used during the
summer months. The park is immediately available during the school year for school
activities and provides a larger, more usable, and more attractive school site than
would otherwise be practical. The combined school -park site is somewhat larger than
either a neighborhood park or an elementary school site individually. This larger
combined site leads to better design of park and school facilities and allows more
space to provide activities for age groups other than those served by the school.
The school -park method can also afford opportunity for substantial savings through
sharing of the cost of acquisition, development, and maintenance of the site between
the school and park districts. It also eliminates duplication of facilities. For
example, the apparatus area and paved court customarily built with an elementary school
also serve as park facilities on a combined site. Accessibility to the school from
the park eliminates the need for construction of a separate recreation building for
indoor activities. Some of the development costs can be shared by the school district,
the park district, and the local government, particularly the cost of improving streets
adjacent to the site. Agreements between the school district and the park district
which would spread the maintenance cost between the two agencies would reduce the cost
to each.
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VOL 36PAGE 680
The Deschutes River flowing through the community represents one of the out- _• •�
standing recreational opportunities in the community. Several parks have been
developed along the river, and continuing community efforts shall be made to acquire
property as it becomes available. In addition, the plan recommends the development
of a trail system along the river wherever possible in an effort to provide public
access to this outstanding natural feature. An effort was made to design a system
of trails and bikeways which would interconnect schools, parks, and various sections
of the community. The park plan shown on Plate 8 and the general plan shows the park
system and the trail system proposed in this plan. The consultants are indebted to
the PTA's of each elementary school in the planning area for the contributions to the
bicycle and pedestrian routes shown on the general plan. The bikeway and pedestrian
routes proposed on existing streets and the trails on the general plan provide a
comprehensive system for bicycle and pedestrian movement throughout the planning area.
Improvement standards for trails and bikeways can vary considerably depending
upon the circumstances under which each is constructed.
One of the basic assumptions in the preparation of standards for bikeways is that
bicycle traffic should be physically separated from automobile traffic. Sidewalks can
be used by bicycles in all but the most congested parts of the central business dist-
rict, and standards recommended in this plan indicate wider sidewalks on most streets
to serve as bikeways. On short, quiet residential streets, bicycles can safely use
automobile traffic ways.
Each bikeway on each existing street is an individual problem and must be evalu-
ated. If adequate, safe bicycle routes are developed and maintained, they will offer
a reasonable alternative to many present auto trips, particularly those necessary to
transport children to and from their many activities. Bikeways may also encourage
cycling to work much of the year and thereby reduce peak -hour congestion. However,
if they are to function well, they must be carefully considered, safe, and convenient,
and not treated as a passing fac, which, hopefully, will go away. Other special
facilities such as neighborhood recreation centers, district maintenance yards, adult
leisure centers, etc., have not been treated in this plan. Some of these kinds of
facilities may be included as part of some park area and may not need a special site.
However, they should be considered in the process of developing a more detailed plan
for park and recreation facilities. Refining the park elements of this plan should be
a cooperative effort between the park district, the school district, the city, and the
county, if it is to solve the problem without duplicating efforts and facilities.
The ideas in this plan are general and often represent or illustrate concepts
which must be further refined. For example, site size standards for parks are in-
tended to serve as a guide for all sites but, in the final analysis, the sizes may
vary considerably from park to park. The plan also shows a trail system and symbolizes
parks at some locations along the trails. Each recommended trail should be examined
and refined as to alignment and appropriate width along its route.
At the time of the preparation of this plan, the people of the Bend Area have
established the Bend Metropolitan Park and Recreation District. The policies and
statements of intent contained in this plan were developed in conjunction with the
Park and Recreation District staff.
ment•
The statements which follow set forth policies for park and recreation develop -
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Parks and Recreation - Statements of Intent of the Plan
1. Retain a humanistic attitude toward serving the public so that services
never become impersonal or "institutionalized".
2. Work from the wishes of the people as a basis for developing park and recrea-
tion systems and programs.
3. Facilities and programs should be kept abreast of growth and change.
4. Provide community leadership in beautification by example on Park and Recrea-
tion facilities.
5. Publicly advocate and coordinate activities relating to beautification and
landscaping throughout the community.
6. Consider neighborhood interests in the process of designing neighborhood parks.
7. New concepts of mixing public recreation activities with revenue -generating
commercial uses such as restaurants or other concession activities should be
explored in order to help finance recreation programming, park acquisition,
and maintenance.
8. Provide facilities first where population is concentrated rather than in out-
lying areas.
9. Insofar as possible, provide a similar or equal level of service throughout
all areas served by the District.
10. Neighborhood parks will provide the foundation of a system for services to
the people.
11. A neighborhood park should be developed within walking distance of all resi-
dents of the District.
12. Neighborhod parks shall range from 3 to 5 acres in size.
13. Land acquisition should be the highest priority for the expenditure of capital
improvement funds.
14. Park sites should be acquired in advance of need so that they can be reserved
for community use before the cost of acquisition becomes prohibitive.
15. Larger parks and recreation facilities should be equally accessible as possible
to areas they are intended to serve.
16. Other parks should be centrally located and as easily accessible as possible to
areas they are intended to serve.
17. Opportunities may occur for development of small parks not shown on the plan,
and if the site is useful, should be obtained.
18. A trail system for bicycle, pedestrian, and in some cases, equestrian use
shall be developed, and wherever possible, interconnect schools, parks, and
open spaces within the District.
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19. All trails developed by the District should have recreation value and not be
merely replacements for sidewalks which would otherwise be located elsewhere.
20. Wherever possible, trails should be developed along the Deschutes River and
along major canals so that these features can be retained as an asset in the
local environment.
21. Concerted community efforts shall be made to preserve and develop as much as
possible of the bank of the Deschutes River and Tumalo Creek for park and
recreation uses.
22. Local codes and ordinances shall be amended so that park land can be acquired
through the subdivision process, and a fee in lieu of land dedication estab-
lished as a policy of local government.
23. The park and recreation element of the plan should be further refined to more
carefully identify potential park sites and trails and to establish a program
for priorities and acquisition and development of these facilities.
24. No public land declared surplus by a local governing body shall be disposed
of without first having been reviewed by other governing bodies for public
use.
25. The community shall make a concerted effort to preserve access to the river
and to augment the river park system whenever possible.
Fire Stations -
The fire station section of the general plan was prepared in conformance with the
following general policies:
1. Fire protection in the planning area should be provided in accordance with the
recommendations of the National Board of Fire Underwriters.
2. Fire protection in the planning area shall be considered as a common problem
by the city, county, water districts, and the fire protection district.
3. Fire stations shall be designed to accommodate a variety of fire fighting
apparatus to reflect future changes in requirements relating to development
within service areas.
The general plan recommends two new fire stations to provide protection for the
project area. The need for these stations is based on standards of the National Board
of Fire Underwriters. The plan shows the existing stations and proposed fire station
locations, and coverage from each station for high value areas (1 mile), high density
residential and apartment districts (1 1/2 miles), and single-family residential areas
(2 miles).
The existing central fire station will provide adequate protection for most of
the close -in central part of the community in the future. Additional stations are
located to provide coverage for areas north and south of the central area along Highway
97. In addition, one station is located near Central Oregon Community College, and
another near the new hospital. These stations will cover those facilities and surround-
ing residential developments. The fifth station is proposed southeast of the city to
provide coverage for industrial growth in that area as well as new residential develop-
ment.
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Each new station should be designed to accommodate a wide variety of fire pro-
tection equipment. Current Underwriters standards relate fire protection needs to
a series of complicated criteria which can only be determined after the area develops.
For this reason, equipment requirements for the various stations must be determined
at some time in the future.
Public Buildings and Shops -
Both the city and county will require additional public building and shop space
as the area grows. The three basic public buildings to be considered are the county
courthouse, the city hall, and the public library. All three are now located in or
near the central business district and have relatively convenient locations. There
are several sites for expansion or relocation of these different uses within the
central part of the city. The eventual disposition of Cascade Junior High School
and the old hospital can affect future site possibilities. It is recommended that
the city hall and courthouse be retained in or near the central business district,
and that the location of each facility be agreed to by both the city and the county.
The library can be expanded at its present location by acquisition of additional pro-
perty in the same block. It could also be incorporated into a civic center should
the city and county select a common location for joint development. The county has
just completed new shop maintenance facilities.
The following policies are recommended with reference to public building and
shop facilities:
1. New county courthouse and city hall facilities should be located in or near
the Central Business District.
2. There are several alternative locations for courthouse and city hall facili-
ties in the central area, and the location of each should be agreed upon
by both the county and the city.
3. Efforts shall be made to group public offices in a more or less common
location as a convenience to the public.
4. Efforts should be made to encourage federal and state agencies to locate in
or near the Central Business District, preferably near city or county offices.
Solid Waste Disposal -
There are two solid waste disposal sites located within the planning area: a
building material dump located off Century Drive on the west side of Bend, and Knott
Pit at the intersection of Arnold Market and Knott Roads. The demolition dump is near
its capacity, and the county has proposed to expand to the west, using old pumice pits
as disposal sites. The Knott. Pit sanitary landfill may have a life of 10 to 20 years;
however, with the increase in population expected, this may be shorter than expected.
A survey of this site should be made to determine capacity, and new sites will need to
be identified. Exhibit "D" gives the background for the following policies:
1. The county shall begin to assess the useful life of Knott Pit and begin to
identify and designate new site(s) for sanitary landfill purposes.
2. The county shall endeavor to take into account adjoining uses and screen,
reduce dust and blowing refuge in order to insure as few impacts as possible
from these necessary facilities.
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VOL 36ME
3. The county shall begin investigation of the expected life of the Knott sani-
tary landfill and the Bend Demolition Dump.
4. The county shall identify alternatives for expansion or a new site for both
of these activities for public discussion and approval. After public hear-
ings, such sites as are environmentally sound and compatible with adjacent
land uses shall be added to the plan.
5. The county and city shall work out an alignment for Simpson Avenue to be
extended through the county demolition dump land as a major street providing
additional east -west access.
6. The county and city shall continue to encourage recycling as an alternative
to landfill disposal.
7. Since there are many lots within the county that will have to rely upon
septic tank and drainfield as disposal means, and since there may be a
limit on how much pumpage can be handled at the sewage plants, the county
should investigate a means of disposal of septic tank pumpings over the
long run.
Sewer and Water Services -
One of the most important problems that will be faced by the community in the
future is the provision of water and sewer services. At the present time, about
nine percent of the City of Bend is served by a sewer system, and the State Department
of Environmental Quality has ordered the city to provide service for the entire city.
The city has proceeded with construction of a sewer system. The new system is about
80 percent complete, and has a facilities plan for a sewer system which can serve the
city and some of the surrounding areas. There is a private system located in the
Ward development southeast of the City of Bend at the present time. These are the
only two areas in the community which currently have sewer service.
The cost of providing sewers is exceptionally high in the Bend Area because of
the underlying rock. This cost is increased substantially if the sewers are installed
after the area develops. For this reason, it is extremely important that every possible
community effort be made to provide for these services prior to development.
The city now has a complete water system, and there has been fairly extensive
development of private water systems in areas outside of the city. The systems outside
of the city are small and will present problems in the future as urban densities in-
crease and additional users are added to those systems. Action should be taken toward
consolidating these various water systems into a single systems, or developing common
improvement standards so that they may be consolidated at some time in the future.
The city and county should consider a joint action program to solve these major
problems of community services. The general sequence of action outline included here-
in lists steps which the county may follow to provide urban services within the urban
growth area. The list is intentionally general because there are many courses of
action open to the county. There are possibilities for federal grants or matching
funds for several of the steps, and the city has developed or is now developing infor-
mation and engineering data for a sizable section of the urban growth area. This
information can be used by the county should the Board of Commissioners choose to pro-
vide urban services to unincorporated areas within the urban growth boundary.
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t Any county program should be closely coordinated with the city to avoid unneces-
sary duplication of services or facilities. The two areas should also have similar
land development standards and system design and construction requirements to avoid
confusion or encourage development in the area with lower requirements. Obviously,
the county and city should carefully coordinate their programs and jointly develop
standards acceptable to both.
The urban services treated herein are sewer and water services. They are listed
separately because the alternatives and problems facing the county are different in
each case even though many steps and procedures are the same.
Sewer Services -
The following outline identifies the decisions the County would need to make if
it chooses to provide urban services within the Urban Growth Boundary.
1. Make policy decision that the county will become involved in providing
urban services within the urban growth boundary.
2. Identify total area in which these services will eventually be provided.
3. Identify priority areas based on need, ease of providing service or prob-
ability of development.
4. Evaluate organizational alternatives for providing services: county service
district, special service district, annexations to city.
5. Make policy decision relating to treatment facilities: provide county treat-
ment facilities, contract with city for treatment, join with city to construct
facility.
6. Prepare preliminary sewer service plan to determine need, areas to be served,
and general cost estimates. (Some information already available from work
done for the city.)
7. Based on items 1 through 6, define district and hold election to establish
district.
8. Assuming district is formed, establish preliminary phasing for providing
service.
9. Obtain aerial mapping of area and prepare facilities plan for areas to be
served in foreseeable future.
10. Prepare detailed phasing plan relating to areas served, cost, and funding.
11. Explore probable operation and maintenance costs using County Public Works
Department as responsible agency.
12. Prepare detailed engineering plans for construction of first projects, call
for bids, and construct part of system.
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VOL 36PAGE 688 `" -
13. Review county zoning and subdivision policies and standards in view of the =_
availability of sewer services with reference to lot sizes and sanitation
requirements.
14. Modify zoning and subdivision standards as necessary in light of potential
service areas.
Water Services -
Within the UGB, the City of Bend is the major water supplier. The city has two
wells that can pump six million gallons per day, and its main source of water is Bridge
Creek, from which it receives 13.2 million gallons per day. Average use during winter
months is 5 million gpd, and during summer months, use peaks at 18 million gpd.
The city has 11 million gallons of storage in the following reservoirs: Overturf,
Awbrey, College, Pilot Butte No. 1, Pilot Butte No. 2.
The city has a non -metered single family residential system with approximately
7,000 customers. The water system, together with the Fire Department, has given the
city a Class 4 fire insurance rating.
The city is presently preparing a water master plan for the next 20 years. When
it is complete, it is expected that a capital improvement program for needed improve-
ments will be adopted.
Within the urban area there a number of private water systems: Juniper Utility,
MRS, Roats, Avion, Crum to name a few. The majority of these obtain their supply from
wells, and supply domestic service. These systems generally do not meet the city's
standards in terms of fire flows, reliability, or materials.
Policies:
1. The city and county agree that the city is the long term provider of urban
services.
2. The development of new areas with utilities should be consistent with the
city's water system.
3. The city shall continue to monitor its supply, reservoir, and systems needs
to keep them adequate to the growing community's needs.
4. Efforts shall be made by the city and county to develop standards for water
systems, in order that the future systems are compatible and eventually inte-
grated into a whole.
The steps involved in providing sewer and water services apply mainly to the county.
The city has taken most of these steps for at least part of the community at some time
in the past. If both agencies are to participate in these services outside the city,
the city will also have to do certain things if a joint program is to be possible. The
city will have to:
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VOL 36?a 689
1. Agree to extensions and connections to the city's system in areas outside
the city limits.
2. Agree to use of city's water supply outside the city.
3. Agree to use city's sewerage treatment plant for county system.
4. Agree to common land development standards inside and outside the city.
5. Agree to common system design and construction requirements inside and
outside the city.
6. Make engineering data and plans available to the county.
7. Consider county needs when developing priorities for areas to be served
inside the city.
The city and county have already agreed to an urban growth boundary. The Bend
Area General plan was formulated and financed by a joint city -county effort, and the
provision of services to areas within the growth boundary is a logical extension of
these joint efforts. Common standards and services for areas developing at urban
densities can actually save the people of the community millions of dollars over the
next ten years along. It will not be easy for either the county or the city to join
together in this effort. Both will have to alter long-standing policies and concepts
if there is to be any hope of success. It can be done, and retaining the unique
character and quality of the Bend Area should make the effort well worthwhile.
Storm Drainage -
The City of Bend has a combination of storm drains (mainly on the west side of
the Deschutes River) and drill holes used to control surface drainage. Currently,
the most noticeable problem with storm drainage is the flooding of the Franklin Avenue
and 3rd Street underpasses. While these are a continuing nuisance each year, the
more important problem faced by the city is property damage to homes in areas where
drainage was not adequately addressed in the past.
The city is now experimenting with a type of dry well on the west side of the
Deschutes River. Due to the difference in geologic formations, drill holes do not
function well on the west side. The development of Awbrey Butte will require special
treatment to handle surface drainage also.
Throughout the east side of town, streets are drained to drill holes and catch
basins within the streets. New parking lots and buildings are required to control
surface drainage on their property.
The city plans to continue using dry wells and storm drains as appropriate to
control surface drainage.
Policies:
1. The city and county shall require all new developments to contain storm
drainage upon their property.
2. The city and county will utilize storm drainage methods that are the most
cost effective.
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VOL. 6UGE � O
Police Services -
s
The City of Bend provides police services to the city. The police force is
made up of 43 people. The enforcement problems have grown rapidly due to both
growth in the area and growth of tourist and recreational use of Central Oregon.
Outside the city, the urban area has police service from the county's sheriff's
department and Oregon State Police. Exhibit "E" gives the background for police
services for the county.
In recognition that, as the area grows, there will be increasing demands on
police services, the following findings and policies are adopted:
Findings:
1. Police and correctional services will need to grow in relation to the area's
growth.
2. Crime rates can be reduced by providing employment, recreational, and voca-
tional opportunities, as well as additional manpower.
3. The city's jail facilities will not be adequate over the planning period.
4. The city and county should investigate the possibility of joint use of jail
and activities that may be cost effective for both jurisdictions.
Policies:
1. The city and county should work cooperatively in the provision of police
and correction facilities.
2. The city and county shall continue their crime prevention educational
programs.
Circulation -
The circulation section of the general plan is based on the following policies:
1. The circulation system shall provide safe, convenient access to each parcel
of property in the community.
2. Streets and highways should recognize and respect the characteristics of the
natural features over which they pass, and wherever possible be designed to
minimize adverse effects on these features.
3. Streets and highways shall also recognize the land use characteristics of
the area through which they pass, and should be designed so that they are an
asset to the community rather than a disruptive influence.
4. Streets shall be designed to serve their anticipated function with variations
in design standards possible within the limits of sound engineering and
planning.
5. The legitimate role of public transportation, bicycle and pedestrian circula-
tion systems as viable future alternates or supplements to total dependence
upon the automobile shall be recognized.
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VOL 36PAGE 661
The circulation plan sets forth a system of streets and roads necessary to move
people and goods safely and conveniently within the planning area. The present circu-
lation system has two major problems, an insufficient number of east -west crossings
through the community, and heavy traffic volumes on various sections of Highway 97.
Consideration was also given to the possibility of some sort of urban transit system
for the Bend Area. At this time, there is little or no possibility that a public
transportation system could be put into operation and survive in the community. The
general plan does recommend a general increase in housing density throughout the
planning area as a means of making public transportation more feasible in the future.
However, it is reasonable to assume that any local transportation system would await
some type of state or federal financial assistance before it could become a reality.
The general plan does recommend expansion of the present bus terminal in the downtown
area. This is one of several alternate locations which could be used depending upon
future detailed plans for the central business district with reference to city, county,
and library facilities.
As mentioned previously, major congestion problems in Bend result from an in-
adequate east -west circulation system and from heavy traffic volumes on various parts
of Highway 97 as it passes through the community. Franklin and Greenwood are the
only two routes in the community with any east -west continuity. They also are the
only two grade separations with the railroad track. Because of this, these streets
are the focal point of most east -west traffic in the community and also serve to con-
gest 3rd Street in the central part of Bend. General traffic movements in the area
are significantly increased by vehicles moving from Greenwood to Franklin on 3rd
Street as part of an east -west movement.
There is also a concentration of traffic on Franklin between downtown Bend and
the railroad underpass. However, there is considerable movement relating to the
industrial area to the south and downtown to the west. If parking were removed from
this section of Franklin, some of the congestion would be alleviated. However, at
some time in the future it will be necessary to widen the Franklin underpass to four
lanes.
The general plan makes several recommendations in an effort to improve east -
west circulation. Arterial connections are proposed north of Bend between Highway 97
and Boyd Acres Road which would also eventually extend easterly to the Bend -Deschutes
Market Road and beyond. These routes would provide access to the east side of the
community without having to proceed into the central part of the city before moving
east.
Additional or improved grade crossings are proposed at Underwood, Revere, Portland -
Olney, and Hawthorne Avenues. All of these improvements collectively would relieve
the pressure on Greenwood and Franklin as east -west routes. The Portland -Olney -Penn -
Neff connection would provide an alternate east -west route across the entire community
and will provide excellent access to the new hospital. This route passes by Pilot
Butte Junior High and Juniper Elementary School, where there are already problems
with traffic and children going to school. There is a need now for safer school
crossings, and the problem will be further aggrevated by future increases in traffic
volumes. Consideration should be given to pedestrian over -crossings on Neff to
reduce the hazard to children going to school. This route has several problems, but,
generally speaking, is the only possibility for such a connection.
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VOL JE)PAGE692
The grade at Greenwood Avenue should be lowered under the railroad overcrossing =`
to permit adequate clearnace for all vehicles on this major street. The intersection
of Greenwood, Newport and Wall has been improved, providing better east -west move-
ments. The Revere and Hawthorne crossings will also provide alternate movements
across the central part of the community. However, railroad switching activity in
the central part of the community will continue to limit the utility of these improve-
ments. Every effort should be made to encourage the railroad to move their switching
activities out of the central part of the city.
If urban development occurs to a significant degree on Awbrey Butte, Revere
should be extended west across the Deschutes River to provide an alternate route
across the central part of the community for population in that area. This improve-
ment would appear to be directly related to future growth possibilities in the Awbrey
Butte area.
The plan proposes a connection between Century Drive and Colorado Avenue in the
southwest section of the City of Bend. This will provide an alternate to Galveston
and Franklin in the central part of the city. This new route should also connect to
Simpson Avenue, and Simpson should continue west to the west -side arterial.
Several street extensions and connections are recommended in the southeast part
of the community to provide greater east -west continuity. Franklin should be connected
to Bear Creek Road in the cemetery area, and Alden Avenue should be extended from 4th
to Bear Creek Road. Wilson Avenue has been extended from Diamond International indust-
rial area easterly to Ferguson Road. All of these connections would increase east -
west mobility in the community and tend to relieve the need for using 3rd Street and
Highway 97 as parts of east -west traffic movements.
The extension of Arthur, westerly across the south end of the industrial area to
connect with Century Drive will provide an alternate means of access to Mt. Bachelor
from the south, and could be used as an alternate route to the residential areas of
the west side of Bend.
Chase Road shall be extended from Brosterhous westerly to the proposed north -
south arterial west of Highway 97. This connection could relieve some of the conges-
tion at Brosterhous and 97, one of the more congested intersections on the south
highway. It would also provide an alternative route through the industrial areas in
the southern part of the community. Hamilton/Murphy Road shall be extended to Ferguson
Road.
The extension of Anderson Road from O.B. Riley Road across Highway 97 to Boyd
Acres and then easterly to Yoeman as a new east -west arterial will provide an alterna-
tive access to the two malls from the east.
The principal north -south congestion problems occur on 3rd Street near Greenwood
and Franklin, and on Highway 97 from south of the underpass to Brosterhous Road, and
north of the overpass to the Highway 20-97 intersection. The recommendations made
relating to improvements in the east -west streets should relieve some of the conges-
tion on this major north -south route.
The general plan proposes additional north -south routes as a means of reducing
congestion on 3rd Street. A west side alternative is proposed on lst and Division
Streets which extends southerly to Hayes at Highway 97.
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A connection is also shown from Division to Highway 97 by way of Scott and 2nd
Streets. These connections will reduce the need to use Highway 97 or 3rd Street as
a means of access to downtown Bend or the industrial area to the south.
There are several alternatives available to reducing congestion on Highway 97
and 3rd Street through the planning area. The State Highway Division is in the pro-
cess of widening 97 from Cleveland Avenue south to Murphy Road. It appears that
$3-4 million will be allocated to the area by the Oregon Transportation Commission
in the next six-year highway program. These monies would be used to improve Highway
97 from O.B. Riley Road in the north to Brosterhous in the south. The project should
look at all the alternatives that have been discussed: (1) widen existing structures;
(2) new and more signals; (3) couplets; (4) expressway, etc. The project should be
developed within a framework that recognizes that Highway 97 is an urban arterial,
and that any expenditures should be made with the concept that the urban area traffic
circulation as a whole be enhanced, not just the north -south movements through the
community.
The extension of 4th Street south along Railroad Street and Baer Road to connect
with Ferguson Road will provide an additional route to relieve congestion on Highway
97.
An additional north -south route is recommended on the east side by connecting
8th Street to 9th Street, and 9th to Baer Road south of Wilson. This route would
provide for north -south circulation without having to travel into the central section
of the community.
Other major and collector north -south routes on the east side can accommodate
north -south traffic through the area and provide alternate routes for access to the
new hospital from both the north and south.
Most of the major street systems shown on the west side of the planning area
lie some time into the future. Alignments are shown as a means of indicating general
locations and should be used to preserve right of way for future development. Addi-
tional collector routes are needed and should be developed as part of the planning
for the development of the area.
The circulation plan is shwon on the plan map. It symbolizes the major and
collector streets. It establishes a system that will be adequate to accommodate
anticipated major traffic movements in the planning area and will significantly im-
prove both north -south and east -west movements. Collector streets are intended to
move traffic within commercial, industrial, or residential areas to the arterial
street network. Standards for street developments in the IUGB are given in Table 1
The new street locations and alignments indicated on the plan are not exact,
and a more detailed study will be necessary to determine the best precise alignments.
Most standards for major streets in developed areas will be minimums because of in-
adequate right of way and tremendous costs of acquiring abutting land. However, in
many cases, slight increases in right of way can be obtained without excessive damage
to adjacent uses. It is extremely important that adequate right of way be secured
before development occurs along streets in new areas, particularly as minor and major
partitions take place. These streets shall be secured as part of the subdivision
guarantee process or purchased through local government agencies. Money spent in
advance of need for street rights of way will be returned to the community many, many
times over as the area continues to grow.
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Outside of the central area, most recommendations for major and collector streets
were made to obtain continuity in future alognments and a spacing of streets which
would serve anticipated growth. Local streets become a strong element in the character
and quality of the residential areas they serve. They should recognize the character
of the natural landscape through which they pass, and modification to design standards
should be possible when necessary to preserve this character. In addition, variations
to a standard residential street should be considered as a means of relieving visual
monotony in residential areas. However, any design modification must accomplish the
same results as would a standard street. Changes in design standards should not be
permitted simply as a means of reducing right of way or paving requirements.
Plate 9 illustrates a means of reducing the visual width of paving by placing
landscaped areas in parts of the parking lanes. In this case, sidewalks are at the
curb and landscaping extends into the street and leaves two full traffic lanes. Inter-
sections become green spaces and yet have ample space for turning movements. It also
illustrates a local street design which provides parking bays and landscaping within
the street right of way. This design requires a 54 or 58 foot right of way and pro-
vides two 12 foot moving lanes and 15 parking spaces in 3 bays along the street.
Parallel on -street parking along the curb of a standard section of this length would
yield about 20 spaces. If an occasional house were sited far enough back from the
street to accommodate more cars in a double drive -way, the difference in available
spaces would not be significant. This kind of street may have special application to
parts of the east side of the planning area where rock outcrops and sharp changes in
terrain elevations may lead to special consideration for street standards. These two
examples of variation in street design can add variety and interest to single-family
developments and make the street more compatible with living areas.
Hillside areas also require special consideration in street design. Major or
collector streets with controlled access can reduce the number of lanes and parking
areas required, and thereby reduce the width of the street which must be constructed
on the hillside. Divided roads with different elevations for each direction of
traffic can also reduce the scarring of the hillside. Small one-way loop streets
providing service to limited numbers of houses will also minimize cuts and fills on
hillsides.
The circulation element of this plan provides for movement within and through
the project area and is extremely important. The safety, character, and quality of
the streets and highways has been a tremendous influence on our daily lives. Emphasis
on the engineering aspects of streets and highways historically has been so strong
that no additional comment is needed in this report. However, other aspects have not
been so carefully considered. For example, landscaped median strips in 3rd Street and
Greenwood could considerably improve the appearance of both of these facilities and
of the City of Bend. Plate 10 illustrates a median strip in Greenwood east of 3rd
Street. It should be noted that the proposed landscape islands have little or no impact
on access to adjacent property. However, they would be visually landscaped. This same
technique could be used on 3rd Street wherever the continuous left -turn lane exists.
The ease or confusion of driving affects our attitude and frame of mind, and the
areas through which we pass can be pleasant or ugly. For example, the entrance to down-
town Bend along lst and Wall Streets into the central business district provides a
completely different "sense of place" than does a drive down 3rd Street. The entrances
to the community from both the north and the south bare no resemblance to what people
think of as "Bend". The variety of business signs, billboards, street signs, traffic
signals, and brightly colored, unrelated buildings rising from the desert creates the
.=
STREET MODIFICATION
PARALLEL PARKING
VOL 36KE 696
PARKING BAYS
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entrances to the community. It is hard to imagine that this is the same community
where several lovely parks grace the banks of the Deschutes River. The appearance
of 3rd Street through the heart of the community is similar, but newer. Approxi-
mately 25,000 cars pass through this splendid view each day.
The daily experience of moving about the community on major arteries does in-
fluence attitudes and values, and streets should be more than just a place to drive
cars. They should compliment the environment through which they pass and should be
attractive as well as safe. This will require good street design as well as control
of adjacent land uses. Major streets in new areas should have controlled access wher-
ever possible, and development should be designed to minimize unnecessary intersections
and other turning movements. The installation of landscape medians and traffic islands
on new and existing arterials can serve both safety and beauty, and can be done in a
variety of ways that will not unduly affect the function of the street.
The statements which follow set forth policies for the circulation system in the
community:
Circulation - Statements of Intent of the Plan
1. Concerted community efforts shall be made to improve east -west circulation
patterns in the central part of the community.
2. Wherever possible, rights of way for major streets and highways shall be
obtained as part of the development process.
3. Efforts shall be made to acquire parts of rights of way necessary for the
correction of intersections, excessively sharp curves, or to complete the
continuity of alignment prior to development so that the cost of acquisition
to the public will be minimized.
4. Access control shall be part of the design standards for collectors and
arterials wherever possible.
5. Building setback lines shall be established along existing major arterial
streets to protect necessary future rights of way from encroachment by
Buildings.
6. In residential areas, development shall have side yards or rear yards along
arterial streets as a means of reducing congestion through turning movements
in and out of driveways.
7. Streets and highway rights of way shall be adequate to allow for sidewalk,
bikeways and reasonable and effective planter strips.
8. Arterial streets should have landscaped median strips wherever possible
together with left -turn refuge lanes.
9. Public transportation routes should be encouraged throughout the area, and,
if necessary, special provisions made in street design to accommodate bus
stops.
10. Local street patterns and residential areas should be varied and interesting
wherever possible. Street widths should be studied to determine if alterna-
tives can be developed that meet the public need for a safe, convenient, and
cost effective transportation system.
-63-
VOL 36PAGE 699
11. Special development standards should be developed for hillside areas to
avoid unnecessary scarring of hillsides.
12. Special consideration shall be given to all residential streets where appro-
priate to save rock outcrops or trees as a means of retaining natural chara-
cter of the area.
13. Loop streets and cul-de-sacs shall be encouraged as a means of discouraging
through traffic and increasing residential privacy.
14. Cul-de-sacs which end in a turn -around other than a circle should be considered
as a reasonable design solution, particularly in hillside areas.
15. Bikeway and pedestrian circulation plans shwon in the general plan shall be
adopted and implemented as soon as possible.
16. Trails, bikeways, and pedestrian ways shall be developed into a coordinated,
integrated system for local movements throughout the planning area.
17. Pedestrian and bicycle traffic should be physically separated from vehicular
traffic wherever possible.
18. Trails and bikeways should be designed in a manner which will make walking
or cycling safe and interesting.
19. Any necessary revisions to community codes and ordinances to permit bicycles
on sidewalks, particularly along arterial and collector streets outside of
the central business district, should be made.
20. The circulation system of trails, bikeways, and pedestrian ways, shall inter-
connect all schools and parks within the planning area.
21. Alterations to the community's design standards for curbs should be made to
permit bicycles to negotiate curbs at inter$ections.
22. Interurban transportation facilities should be located in or near the central
business district.
23. Special consideration is needed to evaluate public transportation needs and
possibilities within the urban area. The city and county will need to con-
tinually evaluate public transportation feasibility.
Community Appearance
The community appearance section of this plan was prepared in conformance with
the following general policies:
1. To retain and enhance the character and quality of the Bend Area as growth
occurs.
2. To make a concerted effort to improve the appearance of the community, par-
ticularly in commercial and industrial areas.
3. To initiate a community action program for the purposes of developing an
awareness in the citizenry of the appearance of the community, both good
and bad.
-64-
VOL 36PAGE 700
t
4. Community action programs should be to evaluate community appearance and
develop specific programs for its improvement.
5. To attempt to identify those characteristics which give the community its
individual identity and to preserve and expand those characteristics as
growth occurs.
The basic objective of this plan is to retain the character and quality of the
Bend Area as growth occurs. Fundamental to the achievement of this objective is the
appearance of the community. One of the principal problems in the community is that,
for many years, growth occurred at a very slow pace. However, in the mid -sixties,
the rate of growth increased to a pace of six to eight percent per year and radically
cahnged the time available for decision making in the community. This growth has
brought many new people and new businesses to the community. The anticipated 51,000
new people will bring more new business and new industry in the future A deliberate
and continuous effort will be necessary to see that the thousands of decisions made
in the process of growth collectively constitute progress toward retaining the liva-
bility of this lovely community.
The residential sections of the Bend Area are generally quite pleasant. However,
efforts should be made to improve streets and to improve some of the older housing
areas. However, care should be taken to retain valuable environmental features such
as mature street trees in older sections as improvements occur. In new residential
developments, street trees should be required along with other improvements to help
establish and retain values in living areas. A plan for street trees should be
prepared for both older and newly developed areas as part of a community beautifica-
tion effort. In addition, new development should respect the natural environment in
terms of rock outcrops and existing tree cover as development occurs.
It must be assumed that, in general, residential areas reflect the values of the
people who live in the community. They have invested their money, time, and effort
in establishing and maintaining these residential districts. There is a tremendous
difference between the apparent values expressed in residential areas as compared to
those of commercial or industrial districts. Industrial developments in the community
have given little or no consideration to their appearance. Almost without exception,
they exist as patches of ugliness wherever they are found in the community. Since
these are places where workers spend about half of their waking life, it seems only
reasonable that some consideration should be given to making their surroundings more
pleasant.
The commercial sections of the community also largely ignore their impact on the
appearance of the area. Located as they are along major streets or at major inter-
sections, they are seen more often by more people traveling within or through the
community than any other areas. It seems only reasonable that because of their loca-
tion, their appearance should be at least equal to other sections of the community.
The principal causes of ugliness in most commercial areas are lack of order or
relationship among buildings, lack of landscaping, hundreds of signs which completely
dominate any field of vision, and the ever present utility poles with their overhead
wiring. Most commercial buildings were built one by one, lot by lot, along the street
with complete disregard for the appearance or use of other nearby buildings. Each
was intended to stand alone on its site to fulfill its original commercial function.
There was little or no thought given to their individual or collective impact on the
community. At present the only exception to this is downtown Bend. Here, a community
-65-
VOL 36PAGE 7®1
effort has been made to reduce the size and number of signs and it has greatly im-
proved the appearance of the area. However, the full length of Highway 97 through
the community reflects the general lack of concern for other nearby buildings or
uses, and the result is a typical jumbled string of structures and uses so common
along highways everywhere. This single highway has done more to change the historic
image of Bend than any other single factor.
The lack of landscaping through the area is a major problem. Commercial build-
ings are usually separated from the street by areas of asphalt of varying widths.
Again, there are exceptions and the exceptions prove what a difference landscaping
can make in these commercial areas. It can soften the harshness of the paved environ-
ment and can become a means of tying together the jumble of unrelated buildings. The
landscaping must be maintained, and this appears to be an insurmountable problem,
even though landscaping is maintained continuously in residential sections. It is
possible to develop landscaped areas which are easily kept and which strongly influence
the quality of the visual environment. Evergreen shrubs, small trees, and ground covers
can all be used to interrupt the continuous paving and make commercial areas a great
deal more attractive than they are at the present time. The city and county now have
site plan review procedures as a means of encouraging landscaping in new developments.
The community should consider design review and should increase their landscaping
requirements in new developments. The city and county should participate in the beauti-
fication process by adding landscaped median strips and traffic islands wherever possible
in major streets.
Although building relationships and lack of landscaping are problems, signs are
the greatest cause of visual chaos. They occur by the hundreds and completely dominate
the appearance of most commercial areas. There are so many that competition for space
reduces their effectiveness. As this competition increases, signs must become larger
and larger to be seen.
If the only signs along the streets were those which identified a business, the
problem would be substantially reduced. The principal signs are accompanied by many
lesser messages relating to trading stamps, credit cards, prices, products sold, etc.
Competition for space has driven traffic directional signs and signals out over the
street itself so that they may be seen. To further clutter the view, traffic signals
are often placed over each traffic lane even though there is no difference in traffic
movements.
If Bend is to retain its character and quality which made it one of the most
attractive communities in the State of Oregon, a major effort must be made to improve
its appearance. Sign regulations should be adopted which would not only control new
signs, but establish a reasonable amortization period for the removal of existing
signs which would not comply with the regulations. The standards contained in the
regulations should be such that signing would be consistent with other values in the
community. Such standards would greatly improve the appearance of the area and would
be consistent with the character and quality of Bend.
Utility poles and overhead wires are also very prominant features in the city-
scape. Both the city and county have taken steps to require that new facilities be
placed underground. However, this does not solve the problem in existing areas.
Efforts should be made to develop a systematic program for undergrounding part of
the existing system each year. Utility poles and overhead lines have a tremendous
impact on the appearance of the community, and every effort should be made to hasten
their removal.
gum
VOL 30PAGE 702
The preceding paragraphs have been critical of the appearance of commercial •_
sections of the community. The consultant would invite the reader to walk or drive
through these areas and observe conditions as they exist. People are accustomed
to things as they are and no longer respond to what they see. A goal for the busi-
nesses within the project area should be to improve the appearance of their districts
so that they are at least equal in quality to the values expressed elsewhere in the
community.
In order to treat the appearance of major streets individually, the plan symbolizes
landscaping along those that will be most heavily traveled. In some cases, the treat-
ment may only be a ten foot landscaped strip along the road. In others, it may be
a scenic corridor to protect entrances to the community or areas of special visual
quality. Development of concepts and standards for treatment of major streets and
highways should be the subject of a special study as part of continuing community
efforts to refine this general plan.
The Deschutes River has long been an important element of the appearance and
quality of life in Bend. Efforts should be made to protect this lovely river as the
community grows. Special consideration should be given to changes and new development
along the river as urban growth increases pressures for more intensive development.
It is recommended that a "scenic corridor" or a special design review procedure be
established on both sides of the river.
If the appearance of the community is to be retained and improved, the people
should be involved. Community action programs should be initiated to evaluate com-
munity appearance and develop programs for its improvement. These could include
concerted efforts to improve the appearance of streets and highways by establishing
tree planting programs in existing and developed areas; landscaping of traffic islands
and median strips; establishing sign regulations for the entire area; encouraging
private property owners in both residential and business districts to maintain and
upgrade their properties; work toward placing utility lines underground in existing.
area; protecting open areas from the intrusion of billboards and signs not relating
to those areas; removal of debris from public and private properties throughout the
project area; and developing improvement standards which will insure that future growth
occurs in a manner which does not detract from the natural beauty of the Bend Area.
All of these elements play a part in the overall appearance of the community, and
continued efforts by local government and its citizens can preserve and enhance the
natural beauty and the livability of the area.
The statements which follow set forth guidelines for the improvement of the
appearance of the community:
Community Appearance - Statements of Intent of the Plan
1. Sign regulations shall be adopted which limit the size, location, and number
of signs in commercial and industrial areas and have amortization provisions
to remove existing signs within a reasonable period of time which do not
conform with the regulations.
2. Old or obsolete signs should be removed at the time of a change in use.
3. Consideration should be given to prohibiting all off-site advertising signs
in all commercial and industrial sections of the the city.
-67-
��. VOL 36PAGE 103
'. 4. Special design and landscaping requirements shall be established along the
Sisters Highway; Highway 97 and 3rd Street; Greenwood and Highway 20; Franklin;
Riverside opposite Drake Park; Galveston from the river to 14th; Century
Drive to the Deschutes National Forest boundary, and 4th Street from Alden
to Webster.
5. Landscaped median strips should be installed on Highway 97 and 3rd, and on
Greenwood wherever possible.
6. Special design consideration should be given to development on those parts of
Awbrey Butte visible from developed areas, and from Highway 97 within the
Bend Area.
7. Consideration should be given to limiting building heights in the central
area to preserve the views of the Cascades to the west.
8. Commercial and industrial areas should be separated from residential areas
by physical buffers or screens.
9. All development along the Deschutes River should be subject to design review
in order to protect this priceless community asset.
10. Consideration should be given to establishing design review for all new
development in the community with the exception of single-family houses and
duplexes.
11. Efforts should be made to encourage the upgrading of existing commercial
uses through painting or other remodeling programs.
12. Older sections of the community should be carefully evaluated, and efforts
made to rehabilitate or redevelop those areas requiring special treatment.
13. Concerted community efforts should be made to place existing overhead utilities
underground in all parts of the community.
14. Special efforts should be made to preserve large rock outcrops and stands
of trees as the area grows to preserve the character and quality of the Bend
Area.
Implementation -
This general plan is the result of a concerted effort by the people and govern-
ment of Deschutes County and the City of Bend, and its policies were developed at
numberous meetings with citizens, committees, and local officials. If the plan is to
have any meaning, it must be implemented. Effectuation of a general plan is not an
easy process and requires constant vigilance on the part of local government and
citizens. As growth occurs and conditions change, the plan will need to be reviewed
and updated so that it remains a viable and useful tool for guiding growth and develop-
ment. The various processes for implementing the plan are as closely interrelated as
the elements of the plan itself.
IM
VOL 36PAGE 704 .�=.
Public information and participation is essential if the plan is to succeed. •�
This plan was prepared with the assistance of many citizens in the community, and
efforts must be made to continue this involvement. The plan should be kept before
the public as a basis for community action. By involving citizens and by keeping
the plan current, it can become an effective tool for guiding future community
development patterns in a manner consistent with the goals and objectives of the
people.
In the fall of 1973 the City and County Commissions jointly appointed the Bend
Urban Area Advisory Committee. This committee met once a month throughout 1974 and
the first part of 1975 in reviewing the draft materials that became the Bend Area
General Plan. After the committee made a recommendation on the plan, the City and
County Planning Commissions held joint hearings on the proposed plan. After this
review, it was recommended to the City and County Commissions, who also held joint
hearings.
The Bend Area General Plan was adopted on June 2, 1976, by both commissions.
Since then a new zoning ordinance was prepared and adopted by both the city and county
within the urban growth boundary.
Every two years the plan calls for a review to be made in February. These reviews
have resulted in additional work by the Bend Urban Area Advisory Committee as parti-
cular items have been discussed. The use of the committee in plan updates is a long-
standing tradition of citizen involvement within the community.
Citizen Involvement Policies -
1. The city and county will continue to use an advisory committee(s) in their
planning process, members of which are selected by an open process, and
who are widely representative of the community.
2. The city and county will utilize other mechanisms, such as planning commis-
sion hearings and public heetings to provide an opportunity for all the
citizens of the area to particpate in the planning process.
Adoption of the plan as a statement of community policy is essential to its
effectiveness. When the plan is officially recognized as a guide to future growth
patterns, public and private community actions must be evaluated in terms of the
general plan. Action contrary to the plan shall not be taken unless the plan is first
amended to reflect the change in objectives or or policy.
Revision of codes and ordinances is an important step in effectuating the plan.
The zoning ordinance shall reflect and refine land -use relationships and development
standards recommended in the general plan, and zoning issues shall be evaluated in
the context of the plan. Subdivision and partitioning ordinances shall also reflect
improvement requirements and other development standards included in the plan.
Capital improvement programing is an important process in the implementation of
the general plan. It consists of three basic elements - listing of necessary public
improvements, determination of priorities, and a financial analysis. A listing of
all capital improvements that will be needed in the foreseeable future is first estab-
lished. Based on evaluation of the projects and their relative urgency, a priority
is assigned to each project based on the apparent need. A financial analysis is
Qs�
r
VOL 36PAGE 705
•• prepared to determine existing and anticipated future sources of revenue which can
be applied to the capital improvement programs. From these projections, it is possible
to estimate the amount of revenue available annually for capital expenditures and to
allocate these funds to appropriate projects. Capital improvement programs are usually
prepared on an overall basis for 20 years in 5 -year increments, and they are revised
annually as funds are expended and priorities change. Developing a realistic capital
improvement program and applying it to the city and county budgeting process can be
one of the most significant and beneficial steps which the community can take to guide
its growth in an orderly manner. There are many federal and state programs which can
be applied to the community's capital improvement requirements. These programs cover
a wide variety of problems and these sources of assistance should be fully explored
and used as necessary to implement the plan.
Plan Amendments will be necessary as time passes and conditions change. As
stated at the outset, this plan is intended to be a guide for the future growth of
the community. It should be subject to periodic review and should be flexible, but
not so flexible as to be meaningless as a statement of community policy. Changes in
the plan should be made in light of considerations relating to all or part of the
community, rather than to who owns the property and is he a "good" guy or a "bad"
guy.
Procedure -
The Planning Commission shall review and report every other year on the adequacy
of the plan to the governing body. The report may include, after appropriate hearing,
such recommendations as seem necessary to insure that the plan continues to function
as a guide for community development. Individuals may petition for changes or amend-
ments to the plan by filing with the Planning Department on forms prescribed by the
Commission, a request for plan change. The governing body may initiate a change to
the plan by referring such a change to the Planning Commission for review, hearing,
and recommendation. The governing body and Planning Commission shall hold one or
more hearings, giving notice of the hearing to consider the proposed change to the
public in general, and in the case of individual map changes, the the area particularly
affected. The Planning Commission shall recommend to the governing body approval,
disapproval, or modification of the proposed plan change.
Plan changes shall be consistent with the goals, objectives, policies, and state-
ments of intent of the plan, or these guidelines shall be first changed or amended
to reflect new policies. An individual requesting a change shall demonstrate that
the change is warranted due to changed conditions, a mistake, or other specific facts
that demonstrate a public need and benefit for the change.
The governing body shall maintain records of all amendments to the plan in a form
convenient for public use.
-70-
VOL 36?hGE 706
AN I14VENTORY
OF
FOREST PRODUCTIVITY
BEND URBAN RESERVE AND SURROUNDING AREA
DOCUMENTATION
PREPARED BY
JORDAN B. MALEY
ASSOCIATE PLANNER
DESCHUTES COUNTY PLANNING DEPARTMENT
FEBRUARY 12, 1980
VOL cJ wE 707 i , I
e
The inventory of.productive forest land, according
to cubic foot site classes,'within the Bend Urban Growth
Boundary was based upon the following methodology.
Cubic foot site class information was assembled for
areas of the Deschutes National Forest which are in the
vicinity of the proposed Bend Urban Growth Boundary.
This data was derived from the Deschutes.NF Soil Resource
Inventory document and map atlas generated in 1976.
Map units were located, then compared to information in
the SRI table (2) of Vegetation Characteristics of
Landtypes, where associated cubic foot site classes were
identified. Map units were then color -coded on the
Soil Map according to their indicated productivity.
In most instances, map units were composed of
various plant communities, whose components could be
identified on the ground. This became an important
factor in the interpretation of aerial photographs. In
order to provide a base for the selection of.ground
sample sites, interpretation from the sites, and mapping
of data; photographic frames were selected from 1:125,000
scale infrared aerial photography, for interpretation.
For the photographic frame which includes all of the
urban reserve area, an overlay was produced to include
information on the location of the Bend City Limits,
Urban Growth Boundary, and productivity units of adjacent
National Forest lands. Based upon a correlation of
productivity.mapping and aerial imagery, comparable ground
sample sites were identified within the urban reserve
area for field assessment. The sites were additionally
located on road and street maps of the city, as well as
on a 1:24,000 scale infrared aerial photograph of the city.
Each ground location was visited, photographed, and eval-
uated for it's general plant cover types, site condition,
and percent vegetative cover.
Upon completion of ground work, field notes were
reviewed to determine which plant communities occured on
1
VOL 36PAGE 708
each site, and whether a site's productivity was affected
by topography or slope aspect. Based upon the location,
productivity of plant communities, and aerial image of all
ground sites; productivity mapping units were extrapolated
through stereo photointerpretation from the National Forest
boundaries to encompass land within the Bend Urban Growth
Boundary.
Cubit foot site class boundaries were transferred
from the 1:125,000 scale aerial photo overlay to an iden-
tical scaled USFS Soil Map. Map unit boundaries were then.
drafted onto a 1:84,480 scale Soil Map where site classes
had been previously color -coded for. National Forest lands.
New site class data for the Bend urban reserve was color
coded, and the map completed with a legend.
Material Sources:
1:125,000 scale infrared high-altitude aerial
photographic film -positive, flight number 78-107B,
2 August 1978, Airborne Missions and Applications
Division, National Aeronautics and Space Administration,
Ames Research Center
Plant Communities of the Central Oregon Pumice
Zone, R6 Area Guide 4-2, January 1976,.USDA, Forest
Service, Pacific Northwest Region
Soil Resource Inventory, Deschutes National Forest,
1976, Pacific Northwest Region, USFS-Soil Map -R6
(document and map atlas)
E
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Name
Apple Orchard
Old Apple Tree
Bend Athletic Club Building
Bend Bruck Yard
(Bend Brick & Lumber Co.)
Bend Water and Light Co.
Power House
Bend School Landmark
Bend Woolen Mill
Boyd Homestead
Brooks Scanlon "Mill All
VOL 36PAGE 71®
Historical Sites
Location
O.B. Riley Road, near Sawyer State Park
Sawyer State Park
NW Wall Street - between the old Cascade Jr. High
and Reid School
2.8 miles west of Bend on Shevlin Park Road
NW of SW 1/4 of Section 25
Deschutes River, 200 yards below Newport Ave. bridge
T. 17 S., R. 12 E., NE 1/4 Section 32
17-12-32
East side of NE lst Street between Revere and Thurston
O.B. Riley Road, east of Highway 97, north of Swalley
Canal - 17-12-21
Brooks Scanlon Office (.Administrative School District Office) 17-12-32
Central Oregon Pioneers Pioneer Park
Landmark 17-12-32
Chapel of the Cascades Originally First Presbyterian Church - SE corner of
Franklin and Harriman
Drake Park 17-12-32 BC, BD, CB - east side of Deschutes River
Emigrant Grave O.B. Riley Road - next to Fix Trailer Court
Kelly, J.H. House
Lumberman's Hospital South end of Broadway near east side of Deschutes
River and adjacent to Brooks Scanlon mill properties
McCann, Thomas house 440 NW Congress - Lots 1, 2, 3, & 4, Block 12, Park
Additon.
O'Kane Hugh Building South side of Oregon Avenue between Wall and Bond
17-12-32 AC, Tax Lot 6200
Oregon Trunk Depot 17-12-32
Oregon Trunk Freight Warehouse 17-12-32
Pagent Park North of Harmon Park, west side of Deschutes River
17-12-32 BC
Patterson Drug Co. 953 Wall Street - West side of Wall, south of Oregon
Avenue
Historical Sites
Page 2
Pilot Butte Inn
Pioneer Museum Building
Pioneer Hotel
Reed, James E. house
Reid School
1813 Rock
Rockwell, Kathleen house
(Klondike Kate)
Sheep Bridge
Shevlin Hixon Mill Site
Shevlin-Hixon Lumber Shed
Shevlin Park Landmark
Smith Building
U.S. Post Office Building
Water Tank Hill
Weist Homestead House
Weist, John Building
VOL 36ME 711 ' + . "4
Corner of Wall Street and Newport Avenue - location
of Pacific Northwest Bell offices
17-12-32
17-12-32
1527 NW Division
NE 1/4 SW 1/4 Section 31, T. 17 S., R. 12 E.
NW Wall Street, south of old Cascade Jr. High building
South of Bend - east side of Deschutes River,
T. 18 S., R. 12 E., approximately the center of Section 7
231 Franklin Avenue - South side of Franklin, between
Chapel of the Cascades and the IOOF Hall
Portland Avenue
18-12-6
17-11-23
937 Wall Street - west side of Wall, south of Oregon
Avenue
SW corner of Wall and Franklin
Old St. Charles Hospital Site
1352 NE 2nd, at Norton Avenue
GOAL 6. AIR, WATER & LAND RESOURCES QUALITY VOL 36PbGE 712
INTRODUCTION
The quality of air, water and land resources
considered to be very good. Maintaining or
for a healthful and desirable environment is
-will be addressed in this chapter. An overy
land quality data will be presented along wi
that are associated with population growth a
county can do to minimize negative impacts o
environment.
AIR QUALITY
(A) GENERAL SOURCES AND TYPES OF POLLUTANTS
in the Bend Area is
improving this quality
one of the goals that
iew of air, water and
th expected impacts
nd what the city and
n the Bend Urban Area
Air pollutants come from many sources - - most of them man-made,
.some natural. Air pollution is defined as "any air contaminant
that is present in the atmosphere in sufficient quantities as are
or are likely to be injurious to public welfare, to the health
of human, plant or animal life or to property, or(ip interfere
unreasonably with enjoyment of life or property." A list of
pollutants .is shown in Table I. Most pollutants are the result
of incomplete combustion, as in automobiles, industries, and
agricultural field or slash burning. Some are from natural
sources, such as wind or agriculturally raised dust or pollen.
Most air pollutants cause or aggravate respiratory and heart
problems, particularly in the elderly and those with chronic
disease. Some cause damage to plants or crops and some are cor-
rosive to metals and stone.
(B) AIR QUALITY STANDARDS
These are standards set by the Federal and State governments that
areas must meet to protect the public from adverse effects of air
pollution. These standards are shown in Table 2. The standards
are divided into primary standards, designed to protect the public
health and secondary standards, intended to protect the public wel-
fare from effects such as visibility reduction, soiling, nuisance
and other forms of damage. The Oregon standards are set to meet
Footnote:
(1) 'IIandbook for Environmental Quality Elements of Land Use Plan,
D.E.Q. July, 1978, p. C-11.
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36PAGE 713
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VOL 36ME U
Table II
Ambient Air Quality Standards for Oregon
NOTES: (1) not to be exceeded on more than one day per year.
(2) 24-hour average not to be exceeded more than 15 percent of the time
(3) a statistical standard, but basically not to be exceeded more
than an average one day per year based on the most recent three
years of data.
(4) The federal standards were revised in February, 1979, and the state
standard changed from photochemical oxidant to ozone in June, 1979.
Federal Standards
Primary
Secondary
Oregon
Pollutant
Averaging Time
(Health)
(Welfare)
Standards
Total
Annual Geometric
75
ug/m3
60
ug/m3
60
ug/m3
Suspended
Particulate
Mean
24 hours(l)
260
ug/m3
150
ug/m3
150
ug/m3
Monthly (2)
-
-
100
ug/m3
Ozone (4)
1 hour
235
ug/m3(3
235
ug/m3(3)
160
ug/m3(3)
Carbon Monoxide
8 hour (1)
10
mg/m3
10
40
mg/m3
mg/m3
10
40
mg/m3
mg/m3
l hour1l)
40
mg/m3
Sulfur Dioxide
Annual Arithmetic
80
ug/m3
-
60
ug/m3
Average
24 hours(l)
365
ug/m3
-
260
3
ug/m3
hours(1)
-
1300
3
ug/m
1300
ug/m
Nitrogen
Annual Arithmetic
100
ug/m3
100
ug/m3
100
ug/m3
Dioxide
Average
Hydrocarbons
3 hours(1)
160
ug/m3
160
ug/m3
160
ug/m3
(Nonmethane)
(6-9 a.m.)
Lead
Monthly
- 3
1.5
- 3
ug/m
3
119/m3
-
Calendar Quarter
1.5
ug/m
NOTES: (1) not to be exceeded on more than one day per year.
(2) 24-hour average not to be exceeded more than 15 percent of the time
(3) a statistical standard, but basically not to be exceeded more
than an average one day per year based on the most recent three
years of data.
(4) The federal standards were revised in February, 1979, and the state
standard changed from photochemical oxidant to ozone in June, 1979.
VOL 36PAGE 715 . i.
4
-2-
the
2 -
the more stringent secondary ambient air standards -- a goal con-
sistent with Oregon's environmental concerns. These standards have
been adopted by the Oregon Environmental Quality Commission (EQC)
andn the Oregon State Legislature; they are administered by the
Oregon Department of Environmental Quality (DEQ).
The Clean Air Act is a Federal law that addresses air pollution.
It sets the air quality standards that areas must maintain, and
provides funds so that the standards may be met. In 1974, EPA
established "clean areas" for the prevention of significant deteri-
oration (PSD). Under the PSD system, all areas in the nation are
classified as Class I, Class II, or Class III (non attainment)
areas, and are permitted, or not permitted, certain degree of
net air pollution increases (measured in "ambient increments").
The Bend Urban Area has been designated a Class II PSD area. Class
II increments permit a moderate amount of deterioration. The
federal and state ambient air quality standards, not to be exceeded
in the Bend Urban Area, are listed in Table 2. Class I PSD areas
are subject to the most stringent restraints on air quality deteri-
oration. Included in this classification are national parks and
wilderness areas; no degradation of the airshed is permitted
within this designation. There is a possibility that pollution
sources as far as twenty miles away from a Class I area could
threaten its air quality. Within this radius from Bend lie the
Mt. Washington, Mt. Jefferson, and Three Sisters Wilderness areas.
The Bend Urban Area is unique in that the area is subject to inver-
sions coupled with very low wind speeds in the early morning and
late evening hours. The potential for an air pollution problem
does exist because of the occurance of this meterological condition.
However, pollution levels are not likely to accomulate for any
length of time as they do in Portland, "Medford, and Eugene since
Bend does not have the trapping landforms that chracterize those
metropolitan areas.
Although updated wind information is not available for the Bend
Urban Area, it is evident that the predominant wind direction is
from the southwest except in the summer when they come predominantly
from the west (see Table 3). Analysis of the available data reveals
that the lowest windspeeds occur from 6 p.m. to 9 a.m. (mean average)
and the highest windspeeds occur from 10 a.m. through 5 p.m. Daily
and seasonal variations are common.
VOL 36PAGE 716
TABLE 3 ,
BEND WINDS
Source: 1948 U.S.Weather Bureau Publication.
Predominant wind direction is only partially indicative of the wind
patterns. The following wind rose (Figure 1) for Bend and
Redmond illustrate other significant wind directions.
Bend is much more prone than Redmond to calm periods, (35.7% vs
11.9%), Redmond receives a significant amount of wind from the
southeastern and northwestern directions, and Bend's wind is less
widely varied than Redmond's.
Wind directions determine the amount of wind coming from other
parts of Oregon, which determine the amount and kind of incoming
pollution. In turn, they reveal where Deschutes County sends its
pollution. It should be noted that almost 40% of Bend's wind
travel toward Sisters. Bend and Redmond get 10-13% of their winds
from Madras (mostly during late summer, and early fall months) which
can carry late summer field burning smoke south to the areas of
Deschutes County. In addition, westerly winds occur 10-36% of the
year, mostly during the summer and autumn months when slash is burned
in the Cascade Mountains.
More detailed information is needed on weather patterns in the Bend
Area including inversion patterns and wind direction, windspeed
variation and average windspeed per month.
I
PREDOMINANT
MONTH
DIRECTION
WINDSPEED(MPH/24HR.PERIOD)
AVERAGE
January
SW
5.5-7.5
mph
6.2
February
SW
5.4-8.6
mph
6.8
March
SW
4.8-9.2
6.9'
April
SW
4.1-9.4
6.6
May
SW
3.3-8.2
5.6
.June
SW
3.0-8.1
5.2
July
W
2.8-7.5
"
4.7
August
W
2.9-7.5
4.8
September
W
3.1-6.8
4.8
October
SW
4.0-7.4
5.4
November
SW
5.1-7.7
6.1
December
SW
6.1-8.1
6.8
Source: 1948 U.S.Weather Bureau Publication.
Predominant wind direction is only partially indicative of the wind
patterns. The following wind rose (Figure 1) for Bend and
Redmond illustrate other significant wind directions.
Bend is much more prone than Redmond to calm periods, (35.7% vs
11.9%), Redmond receives a significant amount of wind from the
southeastern and northwestern directions, and Bend's wind is less
widely varied than Redmond's.
Wind directions determine the amount of wind coming from other
parts of Oregon, which determine the amount and kind of incoming
pollution. In turn, they reveal where Deschutes County sends its
pollution. It should be noted that almost 40% of Bend's wind
travel toward Sisters. Bend and Redmond get 10-13% of their winds
from Madras (mostly during late summer, and early fall months) which
can carry late summer field burning smoke south to the areas of
Deschutes County. In addition, westerly winds occur 10-36% of the
year, mostly during the summer and autumn months when slash is burned
in the Cascade Mountains.
More detailed information is needed on weather patterns in the Bend
Area including inversion patterns and wind direction, windspeed
variation and average windspeed per month.
I
- 4 -
VOL 36?AGE 717 : ' •
FIGURE I
BEND - REDMOND WINDROSE COMPARISION
' r
%7.3
BEND (outside) q CS2
REDMON-D (inside)
7.8
N
NNW
NNE
NW
NE
!� 3
iso
WNW
r_NE
CALM
S.o
It. 4
:3.3
WSW
LJ
ESE
�.y
�
SW
SE.
.�.t SSW
S
SSE (>.y
(D) AIR POLLUTION SOURCES IN THE BEND URBAN AREA
There are several major point sources of air pollution in the Bend
Urban Area. Point source air pollution is any pollutant that enters
the atmosphere from a specific point. There are, of course, other
sources besides these, called area sources, such as motor
vehicles, residential/commercial/industrial heating and blowing dust.
A list of the sources of air pollution in the Bend Urban Area and
their emissions is shown in Table 4. These emissions are based on
DEQ measurements taken periodically at the point source site. As
can be seen from Table 4 most of the particulate matter comes from
forst slash burning and from lumber mills in the area. Residential
space heating emissions levels do not include particulate matter
from wood stoves as of 1979. The amount of wood smoke particulates'
VOL MnGE U8
TABLE 4
BEND AREA POINT SOURCE . L''MISSIONS - `i'ONS/YEAR
Total Suspend. Fine Sul.fer Nitro.
Particulates Partic. Oxides Oxides
Carbon
Bend Manufacturing Inc.
0.00
0.00
0.00
0.00
0.00
Bend Mill Works
1.75
0.18
0.00
0.86
0.00
Bend Redi-Mix Inc.
0.47
0.47
0.00
0.00
0.00
Brooks Scanlon
295.90
221.51
0.00
672.00
134.40
Cascade Forest Prod.
0.10
0.00
0.00
0.00
0.00
Central Oregon Pumice
8.35
1.25
0.00
0.00
0.00
Deschutes Ready Mix
5.20
3.40
4.80
8.70
0.00
Maywood Industries
0.18
0.02
0.00
0.00
0.00
Mid -Oregon Ready -Mix
4.00
1.40
0.00
0.00
0.00
North Pacific Products
0.11
0.03
0.00
0.79
0.06
Oregon Trail Wood Prod.
0.50
0.05
0.00
0.00
0.00
Oregon Woodwork LTD
0.55
0.27
0.00
0.00
0.00
Sageland Manufacturing
0.01
0.00
0.00
0.00
0.00
Stremont Inc.
0.00
0.00
0.00
0.00
0.00
St. Charles Mem. Hosp.
0.23
0.23
0.01
2.71
0.01
Sun Craft
0.00
0.00
0.00
0.00
0.00
Willamette Industries
351.21
95.31
0.00
127.12
25.16
AREA SOURCES FOR'DESCHUTES COUNTY
Slashbur nipg
1673.08
1673.08
0.00
371.70
11897.44
Forest Fires
63.00
63.00
0.00
14.00
448.00
Motor Vehicles
Light Duty
219.85
219.85
57.24
1891.68
31705.28
Heavy Duty
65.17
65.17
70.07
743.50
2078.52
Gasoline Marketing
0.00
0.00
0.00
0.00
0.00
Off Hwy Fuel Use
10.21
10.21
7.09
84.35
82.9.96
Residential Space Heat.*
7.37
7.37
85.16
59.00
14.75
Comm/Indus. Space Heat.
34.49
35.95
289.56
1.09.94
10.2.4
Industrial Fuel Combust.
1.01
0.96
13.71
3.36
0.28
Railroads
2.39
2.39
5.44
35.33
12.41
Ag. Tilling Dust
302.00
30.00
0.00
0.00
0.00
Summed Annual Emmission
Rates for 29 sources
in the Bend Urban Area 3048.63 2429.80 528.28 4116.43 47156.51
Source: Bob Danko, DEQ, Central Region, Bend Office
Environmental Information Data System (BIDS) 12/31/79
* Does not include emissions from wood residential heating.
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VOL 36RGE 2O
should be monitored since the use of wood stoves as an. auxillary or
primary heating source has increased significantly in the last years
of the 1970's.
Violation of ambient air quality standards in the Bend Urban Area
occured in 1978 and 1979 when the annual gSometric mean well exceeded
-the allowable Oregon standards of 60 ug/m (see Table 5). These
figures pose a reason for concern since a deteriorating trend in
the air quality of the Bend ARea appears to be manifesting itself.
Monitoring and analysis of air quality data for the Bend Urban Area
should continue to determine the extent and source of this increase
in particulate levels.
There are presently two air quality monitoring instruments located
atop the Courthouse in Bend. The High Volume Sampler which has been
in operation since 1970 measures total suspended particulate. A
.nephelameter, erected on the roof of the Courthouse in October, 1979
measures the level of fine particulate matter in the air. Although
.the data from the nephelameter is brief, and long term averaging is
desirable to discern trends in air quality, the preliminary results
are interesting. The preliminary data show distinct daily trends of
hi,;h levels of fine particulate, especially after 6 p.m. in the
early morning hours. This may be directly related to the increased
usage of wood stoves as auxillary residential space heating. This
data should continue to be monitored and evaluated.
Another source of pollution that should be considered.when monitoring
air quality is carbon monoxide (CO), concentrations. There is no
regular monitoring of CO concentration in the Bend Urban Area at
this time. Using the DEQ Handbook test for the 8 -hour CO standards,
an estimate can be derived on whether or not automobile exhaust
accumulations exceed those standards. Using average winter work-
day traffic volumes (AWDT) projected for 1983* along Third Street
with an average traffic speed of 25.75 mph, traffic levels appear to
be below the threshold of 40,400 AWDT
However, even though the estimated volume of traffic on Third Street
.falls below the CO standard suggested by DEQ for the City of Bend,.
other factors such as congestion and length of time spent idling at
traffic lights increase the amount of CO concentrations in. spot areas.
The entire length of Third Street as it extends thro�q� the City
denotes concern, since the traffic forecast for 1990 indicj,W that
parts of the seciton will be operating at Level. of Service F , and
.the resultant lower speeds and congestion could cause a future problem.
In recognition of future traffic loads through the Bend Urban Area,
emphasis should be palced on improving vehicle operating
* Winter traffic volume estimates are used rather than peak summer AWDT because this
is the time of year where the likelihood of exceeding the DEQ CO standards is
most likely due to the more frequent inversions and low temperatures.
(2) ODOT, City of Bend: Arterial Street Study Update, 1979.
(3) Level of Service F is described as the least desirable level of traffic flag.
Traffice flow is forced, meaning excessive delay. May occur only during p.m.
peak hours during summer months in recreational areas. Maneuverability at
these locations is "jwnTed." Backups frau other locations may restrict or prevent
movement of vehicles at the intersection under consideration. ODOT, City of
Bend: Arterial Street Study Update, 1979.
TABLE 6 VOL 36P4GE 721
VOLUME OF CARS 103QUIRED THAT MAY EXCEED
8 -HOUR CARBON MONOXIDE STANDARD IN 1983
Standard = 10 mg/m3*
Average Speed (MHP)** Volume of Cars (AWDT)
1983
10 19,000
15 27,200
20 34,000
25 40,400
30 47,300
35 54,300
40 60,300
45 64,100
50 65,900
55 69,200
* Background 3 mg/m3 on 8 -hour basis
** Use the peak 8 -hour operating speed or the posted zone speed
whichever is lowest.
TABLE 7
THIRD STREET (HWY 97) PROJECTED TRAFFIC VOLUMES 1983
Location Average Winter Weekday Traffic
South of Mt. View Mall 22,680
South of Nels Andersen 30,250
South of OB Riley 36,600
Intersection at 1st & Hwy 97N 27,100
Intersection " Revere & 3rd. 33,400
of " Greenwood & 3rd 36,450
of " Franklin & 3rd. 32,770
to " Wilson & 3rd 31,900
Average speed along 3rd Street - 25.75 mph
SOURCE: ODOT, City of Bend: Arterial Street Study Update, 1.979.
Map 6. with Revisions for Winter Weekday Traffic projected
to 1983.
Z M
.m
- 6 VOL 36m, 722
conditions and in encouraging non -automobile dominated transportation.
Vehicles emit less pollutants per mile when traffic is smodth and
emissions decrease with increasing speeds. Eliminating bottlenecks,
improving streetlight timing, and providing left -turn lanes where
needed are measures that can reduce auto emissions.
'(E) GUIDELINES FOR REDUCING AIR POLLUTION PROBLE14S
Suspended particulate matter is currently the major pollutant in the
Bend Urban Area. The Bend Area is experiencing a rapid rate of
growth, and with an increase in wood burning at home, and traffic
congestion (to name two pollution sources), it can be expected that
emission levels will increase. Deschutes County and the City of Bend
should work with DEQ in monitoring and enforcing air quality goals.
The maintenance of the high quality of the Bend air shed is recognized
as important to our tourist oriented economy, to the aesthetic
qualities of the area, and to help maintain a healthful environment.
'The following policies are set forth for air quality maintenance:
1. The City and County shall encourage DEQ to perform more thorough.
monitoring of the air quality of the Bend Area , and shall work
with DEQ to ensure that State and Federal ambient air quality
standards shall not be exceeded.
2. The City and County shall maintain an aggressive program of
paving or sealing dirt streets.
3. The City, County and State shall continue to work towards
improving circulation and traffic flow through the City.
4. The City, County, and DEQ shall investigate control of open
burning, or other activities that can improve air quality,
within the Urban Area.
5. The City and County will cooperate with DEQ in continuing to
monitor industrial emissions, especially those located in
the SW section of the City, due to high dust levels and pre-
vailing winds.
6. The City and County shall encourage the study of meterological
data to identify potential air quality problems.
7. The City and County shall review land -use development in the
Bend Urban Area as to its potential air quality impact on
Class I areas within a 20 mile radius.
8. The City and County shall develop a plan and program to mitigate
,any air quality problems, if one is identified by further monitor-
ing.
3.
VOL 36PAGE 723
BIBLIOGRAPHY
DEQ personal conversations Bob Danko, Dick Nichols; and DEQ
reports.
Report by Merlyn Paine entitled Air Quality Considerations -
Bend Urban Area Comprehensive Plan - Resource Element
DEQ, Handbook for Environmental Quality Elements of Land Use
Plans. July, 1978.
ODOT, City of Bend: Arterial Street Study Update, 1979.
Noise Pollution
Introduction
voL 36P4GE 724
This report will focus on the issues of noise pollution, location of offending noise
sources, and noise sensitive areas in the Bend Urban Growth Boundary, as required
by Statewide Land Use Goal No. 6
The rapid growth of the Bend Area presents conflicts between noise sensitive areas
and offending noise sources which must be recognized if the quality of the environ-
ment and standard of living are to be maintained.
Noise
Noise is generally thought of as being an irritation or annoyance, but excessive noise
can have an effect on the human health. It has been documented that headache, muscle
tension, fatigue, and disgestive problems can result from loud or continuous noise
exposure. Noise can interrupt communication, including direct conversation, radio,
television, or telephone. Noise can also disrupt rest, study, and sleep.
Feelings of annoyance, such as irritability, distractibility, and frustrations are
also caused by noise. Physically measurable stress effects of noise, such as glandular
responses, cardiovascular response, and hypertension, are well documented. All of
these adverse effects of noise on humans are cited as examples to understand why
excessive noise is recognized as a serious threat to public health and welfare.
Noise Measurement
Noise is generally measured with an instrument called a "sound level meter" or SLM.
This instrument normally is hand-held and light -weight, consisting of a microphone and
a meter that is visually read. Most environmental noise is measured by a sound level
meter in terms of A -scale decibels, abbreviated dBA. This measurement corresponds
to the way the human ear responds to sound. The A -scale thus measures the sound
throughout the human audible frequency range, from approximately 20 Hertz to 10,000
Hertz, and applies the appropriate amplitude correction factor at each frequency
as does the human ear.
Sources of Noise Pollution
The following is a general breakdown of the current sources of noise pollution in
the Bend Urban Area.
1. Commercial and Industrial:
a. Brooks-Scanlon/Korpine/Willamette Industries area
b. Wilson Avenue - 9th Street area
c. Brinson Park area
d. BID area
e. Boyd Acres Road area (Bend Millwork and other industry)
f. Highway 20, south of Pilot Butte
VOL 36PAGE 725
Noise Pollution
Page 2
2. Transportation Related:
a. Highway 97 - Third Street
b. Highway 20 (east and west)
c. Franklin Avenue
d. Greenwood Avenue
e. Downtown area
f. Riverside Drive
g. 8th Street
Location of Noise Sensitive Areas
In the Urban Area there are numerous locations which, due to the nature of the land
use or activities involved, should be considered as noise sensitive areas. Those
areas are listed as follows:
1. Noise Sensitive Areas:
a. St. Charles Medical Center_
b. All residential areas
c. All park and open space areas
d. Nursing homes
e. Schools and other public buildings
f. Hotels, motels, and offices.
Community Attitudes Towards Specific Sources of Noise Pollution:
Deschutes County and the City of Bend have recognized the problems concerning noise
pollution and the need for legislation to deal with those concerns. The County in
early 1980 passed an ordinance known as "The Deschutes County Noise Control Ordinance."
The purpose of that ordinance is to promote the public peace, health, safety, and
general welfare, which the County Board of Commissioners finds to be adversely affected
by unreasonably loud or raucous noises. The County applies this ordinance on a
complaint -nuisance type of procedure, and it is enforced by the County Sheriff.
The City of Bend also has an ordinance that deals with the noise problem. The noise
section is included in a nuisance ordinance similar to Deschutes County's, and the
problem is dealt with on a complaint basis. The City of Bend ordinance is enforced
through the Police Services Department.
As pointed out above, the Urban Area has experienced noise problems in the past, and
has enacted legislation to deal with the concerns. Although the enforcement of the
law is only through investigation after a complaint, methods should be encorporated
into the Bend Area General Plan which address the noise problem through site plan
or subdivision review. DEQ has standards and equipment, although a limited budget,
for enforcement of their regulations.
Policies:
1. Techniques shall be studied to deal with noise problems when applications for
land use actions are received by the two local jurisdictions.
. Noise Pollution VOL 36ME 726
Page 3
Techniques could involve:
a. Disclosure of Noise Level - A useful technique for protecting home owners
or centers is to require notice of the property noise exposure in property
deeds and rental leases. The notice should be in clear, simple language
and be given good visibility in the deed or lease.
b. Public Acquisition of Land - The simplest but most expensive approach is
to buy land in high noise areas and keep the land from any type of incompatible
development.
c. Site Planning - Site planning and the site plan review process offers perhaps
the most logical and efficient means to approach the offending noise source
problem. When application is made for a commercial, industrial, multi -family
residential, community building, or subdivision, specific conditions could
be included as conditions of approval which would deal with the noise situation.
2. The City and County will cooperate with DEQ in reviewing industrial applications
which may have noise problem potential, and strive to mitigate such problems during
the approval process.
JCH:bf
5/2/80
I
VOL 36PAGE 727
THE MUNICIPAL WATER SYSTEM
Since 1926 the City of Bend's main source of water supply has
been from the Tumalo Creek Watershed. This has proven to be
an excellent choice. Tumalo Creek rises on the eastern slopes
of the Ball Butte and Borken Top Mountain about 20 miles west
of Bend in a protected watershed area, most of which lies with-
in the Deschutes National Forest. The water is of excellent
chemical quality, and the bacteriological quality is good
with only chlorination treatment. The water is a constant 48°
winter and summer, and is clean except that it is slightly
turbid during periods of high runoff from the watershed. These
periods occur only occasionally and are of only a few days
duration. The system operates on gravity. The intake is about
1,150 feet above the usual water level in the City's Overturf
Reservoirs, and water is delivered to these reservoirs by
gravity flow through 11 3/4 miles of transmission lines (2)
composed of 12 and 14 inch pipes. Since 1954, following
construction of the second pipeline, a total of 7.1 MGD* has
been available to the City through out the year. The
City of Bend holds a total of 12.35 MGD of municipal water
rights on Tumalo Creek. Approximately 5.24 MGD is allocated
to the Tumalo Irrigation District to meet irrigation demands
from April 15 to October 15.
Minimum flows of Tumalo Creek are fully appropriated. Since
there are no suitable sites for construction of seasonal
storage reservoirs, further development of the Tumalo source
by the City would require acquisition of additional water
rights, the construction of additional intake and screen
facilities, and the laying of a third transmission line to
the City.
Supplementary to the Tumalo source, two deep wells have been
constructed. Both wells are located in the southwest portion of
the City, drilled and operated through an agreement with
Brooks -Scanlon. The first City well was drilled in 1972 to
a depth of 900 feet with a static water level 564 feet below
the top of the casing. City well No. 2 was drilled in 1978,
365 feet north of. Well No. 1. Well No. 2 was drilled to a
depth of 800 feet and a static level 247 feet below the surface
was recorded after drilling. Combined, the City wells can
supply approximately 5.7 MGD.
The combination of Tumalo Creek and Wells No. 1 and 2 provide
approximately 17 MGD of water for Bend's population. The pro-
jected population of Bend in the year 2000 is 45,000. Assuming
consumption continues at the present rate, a total of 42 MGD
of water will be required in the year 2000.
*MGD = Million Gallon per Day
VOL 36PAGE 7z 8 '--
s �
e
Page 2.
THE EFFECTS OF METERING ON WATER USE
In Bend, commercial and industrial water accounts are individually
metered but domestic services are not. On occasions, the
citizens of Bend and City Officials have considered universal
metering of domestic water use. Although past decisions
have rejected the idea, recent deliberations have resulted in
a positive posture on installing domestic meters, since major
expansion of the water supply system is being studied. One
of the principal advantages ofinetering is that it provides a
means of equitably distributing, on the basis of use, the cost
of the water system and its operation. Additionally, a
margin of thriftiness in domestic use is introduced as the
thrifty or careful user is rewarded by a lower water bill.
This would bear a direct relationship to the longevity of the
capacity of the Municipal Sewer Facilities as well, since
maximum capacity is based on total number of gallons treated
per day. Disadvantages of metering include the cost of
meters, meter reading, maintenance, and bookkeeping. Sufficient
savings must be documented to justify their use economically.
_ WATER QUALITY NOL 36PACE S
29
The quality of water in the Bend Urban Area is a matter of
major importance. Not only does water furnish the needs of
residential, commercial, and industrial users, but it
provides many of the recreational and scenic opportunities
that make the Bend Area an expecially attractive place to live.
WATER SUPPLY
Since 1926 the City of Bend's main source of water supply has
been from the Tumalo Creek watershed. This has proven to be
an excellent choice. Tumalo Creek rises on the eastern slopes
of Ball Butte and Broken Top Mountain about 20 miles west of
Bend in a protected watershed area, which lies within the
Deschutes National Forest. The water is of excellent chemical
quality, and the bacteriological quality is good with
only chlorination treatment. The water is constant 48° winter
and summer, and is clear except that it is slightly turbid
during periods of high runoff from the watershed. These
periods occur only occasionally, and are of only a few days
duration.
The primary source of water for those residents outside the
City Limits yet within the urban growth boundary. (UGB) is ground
water. There are approximately 270 well logs on file with the
Deschutes County Watermaster's Office as of January 1980, which
lie outside the Bend City Limits but within the UGB. The depth
of wells range from 72' to 1,1001, yielding various gallons per
minute flows. The shallowest wells are found in the north,
northeast and northwestern areas of the UGB.
The regional water table at Bend lies within the Deschutes
Formation, some 600 or more feet below land surface. Regional
ground water is at least partially confined, as indicated by
the general rise in the static water level in wells which tap
this body. The regional water table potentiometric surface
has a gentle gradient to the north (Sceva, 1968). Consequently,
ground water in the Bend area flows in a generally northerly
direction.
Many of the wells located north of Bend develop ground water
from a perched sand and cinder zone above the Deschutes
Formation. These wells generally range from 100 to 200'
in depth, while the regional water table is presumed to be
close to 600 feet or more below land surface. Most of the
perched ground water in the Bend Area is believed to be
recharged from local precipitation, canal losses and irrigation,
although some of the perched zones may be locally recharged from
the Deschutes River. The deepening of a perched ground water
well often results in the loss of the perched water supply
out the bottom of the well into the underlying materials, and
the creation of a new source of recharge for the next under-
lying perched water table (Sceva, 1968).
VOL 36PAGE 730
Page 2.
Water Quality
The City of Bend, through the city water system, serves about 5,000
users. Approximately 3,500 users are furnished domestic water
through private or public utility water systems. There are six
primary water systems in the Bend Urban Area, designed and
operated by their owners (see map). The existence of these
private water systems poses a problem for the future expansion
of the City of Bend water system. The specifications to which
they have been constructed are not up to the City standards.
Plastic pipes rather than steel have been utilized which are
undersized and understrengthened. By and large, the supply
and pressure level is inadequate to meet the summer use
demands and City fire regulations.
As the City expands and the Bend Urban Area begins to infill,
the provision of an adequate water system which meets City and
State standards throughout the urban area will be imperative.
The DEQ Water Quality program
surface water, river and lake
monitor discharge permits and
Construction Program provided
Water Act.
is primarily responsible for
quality; they grant and
administer the Sewer Facility
on a grant basis by the Clear
Guide concentrations for dissolved Chemical Substances for the
Deschutes River Basin are provided in the Oregon Administrative
Rules and are monitored by the DEQ. Unless the natural water
quality of the Deschutes Basin exceeds the assigned water
quality standards, the following chemical standards apply:
mg/l
Arsenic (As)------------------------ 0.01
Barium(Ba)-------------------------- 1.0
Boron(Bo)--------------------------- 0.5
Cadmium (Cd) ----------------------- -0.003
Chromium (Cr) ------------------------ 0.02
Copper (Cu) -------------------------- 0.005
Cyanide (Cn)------------------------- 0.005
Fluoride (f) ------------------------- 1.0
Iron(Fe)---------------------------- 0.1
Lead (Pb) ---------------------------- 0.05
Manganese (Mn) ----------------------- 0.05
Phenoes (totals) --------------------- 0.001
Total dissolved solids --------------- 500.0
Zinc (Zn) ---------------------------- 0.01
Currently the water quality of the Deschutes River is excellent.
DEQ grants a warm water discharge permit to a local lumber mill
for operation of a turbine generator. Besides storm water dis-
charge from the city's system, no other effluent is allowed to
be discharged into the Deschutes.
V
VOL 36e4GE 731
TABLE 8
CITY OF
BEND DRINKING WATER
ANALYSIS
Alkalinity as CaCO3
17
N.A.
Chemical Quality
3.6
N.A.
Chloride
1978
1979
Oregon State
Chemcial, mg/l
Test Result* Test Result**
Water Quality Stds.
14
N.A.
Arsenic
0.001
0.006
0.050
Barium
0.050
0.100
1.000
Cadmium
0.005
0.005
0.010
Chromium
0.010
0.005
0.050
Fluoride
0.090
0.220
1.800
Lead
0.010
0.005
0.050
Mercury
0.0006
0.001
0.002
Nitrate
0.033
0.070
10.000
Selenium
0.002
0.005
0.010
Silver
0.005
0.005
0.050
*Drinking Water Analysis by CH2M Hill - February 15, 1978
**Drinking Water Analysis by Century Testing Laboratories, Inc.
July 27, 1979
TABLE 8
1980 Oregon State
Chemical, mg/l Test Result*** Water Quality Stds.
Aluminum
0.23
----
Alkalinity as CaCO3
17
N.A.
Calcium
3.6
N.A.
Chloride
6.0
250.0
Fluoride
0.21
2.0
Mardness as CaCO3
14
N.A.
Iron
0.03
0.30
Magnesium
1.4
N.A.
Manganese
0.05
0.050
Nitrate Nitrogen
0.02
10.00
pH Value
7.1
N.A.
Potassium
3.2
---
Silica
22
N.A.
Sodium
2.8
N.A.
Solids Total
87
1000.00
Solid Volatile
31
N.A.
Fixed Solids
56
---
Sulfate
0.9
250.00
"N.A." means "not applicable" as applies to a maximum concentration,
but the determination shall be included in the analysis.
***Drinking Water Analysis by Century Testing Laboratories, Inc.
January 24, 1980
VOL
Page 3.
Water Quality
36?acE 732
Drinking water standards were set forth in the Public Health
Service Act, which was amended in 1974 by the Federal Safe
Drinking Water Act. This Act specified more complete standards
for biological, chemical, and radiological contaminants in
drinking water. These standards are shown on Table 8. The
Oregon State Health Division has established a system for moni-
toring water quality in systems supplying water for four or more
users. The schedule for submitting samples is provided for in
Chapter 333 of the Oregon Administrative Rules, and is as follows:
Supply
Community water supply
Surface water supply
Well supply
Type of Exam
Bacteriological
Chemical
Chemical
Frequency
Weekly to monthly
Yearly
Every 3 years
The quality of water from deep water wells (500'-1,1001) is
generally good in the Bend Urban Area. This is the primary
source for most public systems. Most private wells, however,
utilize shallower wells from perched water tables. Contamination
of this water supply through surface water drainage practices
and septic waste disposal has been and continues to be a concern.
The use of drill holes for sewage disposal and surface water
drainage has been a common practice in the Bend Urban Area since
the early 1900's. The possibility of this practice contaminating
the underground water supply is still a possibility, although
no indication that this has occurred has been detected. The
Oregon Department of Environmental Quality is requiring that
all drill holes inside the boundaries of an incorporated city,
sanitary district, or county service district be phased out
by January 1, 1983. Drill holes outside these boundaries must
be phased out as alternatives become available.
The City of Bend has, in the past, used a combination of storm
drains (mostly on the west side of the Deschutes River) and
drill holes to dispose of surface water. Currently, the most
noticeable problem with storm drainage in the City is the flooding
of the Franklin Avenue and Third Street railroad underpasses.
The City of Bend and the State Highway Division have been
working cooperatively on improving the efficiency of the
drill hole system, resulting in a recent improvement of the
problem. Throughout the east side of town, streets and parking
lots are drained into a series of drill holes and catch basins
within the streets. By tracing problem runoff back to the source
and requiring private drill holes to accommodate the water
drainage, the City has been able to improve several problem
areas. New parking lots and buildings requiring site design
review within the urban area are required to control surface
drainage on their property.
VOL 36?AGE '733
Page 4.
• Water Quality
In the area north of Bend near the Mountain View Mall shopping
center, lies a shallow aquifer from which surrounding residents
acquire their domestic water. The shopping center is presently
disposing of its sewage by septic tank drainfield. Storm water
runoff is controlled through the use of dry wells. Because of
the presence of a perched water table (at a depth of 72-150 feet)
and the number of shallow domestic wells in the area, this is
an area of underground water quality concern. Although no
degradation of water quality in the area is presently evident,
the situation bears monitoring.
The City and the Department of Environmental Quality are
recommending the use of dry wells rather than drill holes to
dispose of storm water. In most cases, the dry well should
operate more reliably because of a larger surface area. The
dry well is fairly shallow compared to a disposal well and provides
for more separation between the point of injection and the
ground water. This allows for better treatment of the storm
water by soil filtration. Another advantage of the dry wells
is that they can be cleaned. When a disposal well plugs, the
only solution is reboring the hole, generally to a deeper level.
In order to maximize protection of the ground water resources
in Central Oregon, the use of dry wells for storm water runoff
should be strongly encouraged, especially in areas of shadow
acquifers.
SEWAGE TREATMENT
The City of Bend has been developing an expanded waste water treat-
ment system since 1976. The laying of sewer lines and construction
of the sewage treatment facility is expected to be completed
in spring of 1981 . A waste water planning report entitled
"Sewerage Facilities Plan" was prepared in 1976. An addition
to the existing sewer system and the construction of a new regional
treatment facility is intended to serve sewage treatment and
disposal needs.
The site chosen for the new waste water treatment facilities
lies approximately six miles northeast of Pilot Butte, on
BLM land. In contrast to the increasing suburban setting
of the existing plant, the alternative site northeast of the
City is undeveloped. The portion of land that would be ylsed
as a treatment plant location is characterized by sparse
juniper, sagebrush, and bunchgrass. Although the land is
grazed to a limited extent, it mainly provides only marginal
wildlife habitat. No endangered or threatened species were
reported in the Facilities Plan.
The North Unit Irrigation Canal, which runs diagonally across
the site, is the only surface water supply available in the area.
Except for possible perched water tables, the ground water
level is generally 500 to 600 feet below the surface. Ground
Page 5. VOL 36ME 734
Water Quality
water is assumed to migrate in a northerly direction. This is
the general direction of ground water movement described for the
entire Deschutes River Basin by Sceva in 1968.
An archaeological survey conducted in 1976 revealed no significant
cultural resources at this site.
The Phase II element of the sewage plan encompasses approximately
20 square miles. In order for the sewer system to reach the
majority of urban density developments outside of the Phase I
boundary, a capital improvement plan is needed coupled with a
strong policy requiring mandatory provisions for eventual
sewer hook-ups.
POLICIES
In recognition of the importance of preserving and maintaining
the high quality of water in the Bend Urban Area, the following
policies are set forth:
1. A water and sewer master plan should be developed for all
areas within the UGB. Once this overall plan is developed,
developers should be required to construct their water
systems in such a fashion that they will eventually become
part of the area -wide planned system as full development
takes place.
2. City sewer service agreement should be required for every
subdivision in the Bend Urban Area. '
3. The City and County should develop a financial and an im-
plementation plan for future expansion of the Sewage
Facility considering, but not limited to, a sinking fund,
connection fees, or user fees.
4. The use of dry wells or storm drains for storm water runoff
should be required for all land developments within a de-
signated shallow acquifer areas.
S. The preservation and use of natural drainage ways for storm
runoff shall be required as much as possible in new develop-
ments.
6. The City and County shall help meet and maintain the water
quality standards required in accordance with the Federal
Clear Water Act, the National Safe Drinking Water Act, and
applicable state DEQ and Health Division regulations and
standards.
ES/ns
6/3/80
a a �
Von 36ME 735
GOAL 13
ENERGY CONSERVATION
The efficient use of energy has several benefits in this period of increased costs
and questionable long-range supply. Not only does energy conservation save the
consumer money, but the need for developing new (and oftentimes more expensive)
sources of energy is reduced. This element addresses energy conservation through
a variety of land use planning and construction practices.
Certainly the Bend Urban Area is the most energy consumptive area in Deschutes
County. Increased energy costs and limitations of supply of gasoline, electricity,
and natural gas will pose certain economic and welfare hardships on the Bend
citizenry. The price of gasoline continues to rise which may have a dramatic
effect on the local economy. Studies have been conducted for the Bend School
District (1) analyzing the tri -county and the Bend area economy, with respect to
the impact of gasoline shortages. These reports support the area's future role
as a tourist destination. While long-range automobile tourism may be affected,
the area's strength lies in its skiing, hunting, fishing, and resorts as destina-
tions.(2) It is possible higher gasoline prices could bring more Willamette Valley
tourists to replace California, Canadian, etc., visitors. Greater emphasis on desti-
nation resorts, tours, shuttle services, and diversity in recreational activities
could help soften the impact of high gasoline prices on Bend's tourist trade.
Certainly one issue bound to be of increasing importance is the cost of commuting
locally. The sprawling development pattern which has characterized development in
recent years will mean expensive transportation for families locally. Effective
transportation planning and suitable facilities development will grow increasingly
important, as will appropriate land use planning, since the two processes are
inseparable.
By emphasizing conservation, local energy supplies can be effectively extended and
used more efficiently. Further, conservation tends to make an area more self-
sufficient and therefore less susceptible to national or regional energy shortages.
Local efforts to encourage PUD development, a more efficient energy pattern, higher
densities for housing, and recycling of materials could have important impacts on
local energy consumption.
While no known deposits of fissionable nuclear materials or potential for oil and
gas exist in the Bend Urban Area, there is definite potential for solar, hydro-
power, geothermal, and windpower sites. In addition, the potential for greater
domestic and industrial use of locally generated wood wastes, such as slash and
mill trimmings, exists in the Bend Urban Area. One local lumber producer is
currently operating a 9,000 KW generating plant on wood wastes.
1. Pacific Economica, Economic Research and Consulting Services, Administrative
School District No. 1. An Analysis of the Bend Economy. September 1979.
Leland and Hobson Economic Consultants. Analysis of the Patterns, Trends,
and Components of the Central Oregon Economy. Prepared for Administrative
School District No. 1, August 1979.
Lutes and Admundson.
2. Draft. Economics and Population Bend Urban Area General Plan 1979 Update.
garX II.__ farchi-1 , 1V80
VOL AGr
The negative externalities associated with expanded use of wood wastes as an
energy source should not go unnoticed. DEQ monitoring of air quality in the Bend
Urban Area reveals some degredation of the quality of the Bend air shed
in recent years. Certain factors, such as time of day of largest levels of fine
particulate matter point to the possibility of this being attributable
to wood smoke. More study by the Department of Environmental Quality in cooperation
with local planning agencies is warranted to determine the extent and possible
solutions to negate or reverse this trend.
While nuclear power plants have been considered for areas east of the Cascades,
Deschutes County areas have been identified as either "unsuitable" or "less suit-
able". While completely foreclosing this energy option is inappropriate, there
exists little justification for site identification or preparation for such sites
in our present planning period.
The large number of sunny days make this area particularly suitable for solar power,
both passive and active systems. During the summer, 300-350 BTU's of sunlight are
delivered to each square foot of land in the area. In the winter the BTU's delivered
decline to between 175-200. Deschutes County has recently acquired an OSU Energy
Extension Agent. The City of Bend should explore, with aid of the local Energy
Extension Agent and the Oregon Department of Energy, regulatory and educational
provisions to encourage more efficient use of the sun. This should include, but
not be limited to, building and development siting standards to encourage maximum
use of the sun both summer and winter, building construction standards to provide
maximum insullation value per building, and ordinance provisions for protection of
solar rights.
The Bend area is fortunate to have some potential energy sources available since
its expanding population will continue to strain the ability of energy suppliers
to meet the demand. To meet this demand, all available resources will have to be
evaluated and utilized and made compatible with the economic, social, and environ-
mental qoals of the local and regional population. No single answer exists, but
a reasonable combination will have to be found. In the meantime, local land use
planning efforts must be aimed at promoting greater efficiency in the use of exist-
ing energy resources, the protection and development of those resources we will
need in the future, and the preparation for a new era where less per capita energy
usage is necessitated.
POLICIES
Transportation:
1. The City of Bend, Deschutes County, and the State Department of Transportation
shall work together in providing an efficient and adequate transportation net-
work for the Bend Urban Area.
2. Conservation in private and public vehicle use shall be encouraged.
3. Provision for less energy -consumptive modes of travel such as walking, bicycling,
and various forms of mass transit shall be considered in the expansion or repaving
of streets, and in subdivision and new development design.
4. The provision of less energy -consumptive recreation transportation alternatives,
such as shuttle services, and limited mass transit, shall be encouraged.
-2-
VOL 36P4GE 737
5. The land planning and site design shall be encouraged to position buildings and
use vegetation to maximize effects of the sun and modify effects of the wind.
6. The use of alternative energy sources such as solar, wind, or geothermal should
be encouraged.
7. New development is encouraged to utilize the best available energy conservation
techniques in new construction.
8. Innovations in design in residential developments that utilize solar, common
wall, or clustering shall be encouraged.
9. The City and County shall encourage the infiliing of existing areas to use exist-
ing utility systems and avoid having to construct additional systems.
JCH:bf
4/7/8o
Revised 5/1/80
Wo
VOL 36nu e �
EXHIBIT "A"
WILDLIFE OF THE THOMPSON WILDLIFE SANCTUARY - DESCHUTES COUNTY
PRINCIPAL TARGET SPECIES
1. River otter - Lutra canadensis
Resident population observed resularly
Individual observations include mating, feeding, playing, courtship
Primary breeding habitat, food, and refuge available
Absence of human activity and heavy fishing pressure appear important
Group of five individuals observed June 1980
2. Mink - Mustela vison
Resident population observed resularly
Observed feeding along most of both sides of the river
Primary breeding habitat, food and refuge available
Absence of human activity and pets appears important
Preferred food includes crayfish, muskrats, and fish
3. Osprey - Pandion haliaetus
Observed resularly throughout spring and summer
Individual observations include courtship, nesting, fishing, roosting
Hunts regularly from snags along river
Combination of high perches and unboated water appears important
4. Bald eagle - Haliaeetus leucocephalus
Observed occasionally
Individual observations include fishing, perching, overflying
Considered transient thus far, but suitable nesting habitat is available
Rare and endangered nationally
5. Canada goose - Branta canadensis
Observed regularly throughout breeding season
Observations include courtship, mating, nesting, parental care, grazing
Feeds regularly along both sides of the river
Primary nesting sites on river islands and feeding areas on banks
6. Muskrat - Ondatra zibethica
Observed occasionally along river banks and in marshy areas
Presumed to be a regular resident but less conspicuous than others
Burrows at waters edge or builds conical houses in marsh
Occasional prey of mink and river otter
7. Great blue heron - Ardea herodias
Observed regularly throughout warm months
Feeds along river edge and in marshy areas
Primary feeding habitat available
Absence of human activity and pets along river appears important
Exhibit "A"
Page 2
8. Wood duck - Aix sponsa
Observed occasionally
Feed along river edge
Primary feeding habitat available
Construction of nest boxes planned to encourage breeding
9. Great horned owl - Bobo virginanus
Observed easily throughout most of year
Observations include courship, nesting, feeding, roosting
Nests in dense conifers near river
Abundance of food available
10. Mule deer - Odocoileus hemionus
VOL 36?AGE 139
Observed throughout year regularly
Winters along river where thermal cover appears important
Winter food and absence of vehicular traffic appears important
Refuge from fall hunting also available
11. California quail - Lophortyx californicus
Observed regularly throughout the breeding season
Prefers protected areas along river
Thermal cover in early spring and absence of pets appears important
Primary breeding cover and feeding habitat available
12. Water ouzal (dipper) - Cinclus mexicanus
Observed throughout year
Observations include breeding, nesting, fledging, feeding
Nests in hollows in rocks close to waterline
Feeds in shallows along river edge - dives underwater
Absence of foot traffic and pets appears important
Other species considered uncommon or of particular interest
Mammals: beaver, grey squirrel (an uncommon breeder in Central Oregon), chickaree
(confined to mature undisturbed coniferous stands), golden mantled ground squirrel,
yellow -bellied marmot (required rimrock or outcrops), yellow pine chipmunk, woodrat,
cotton -tail rabbit, black -tailed jackrabbit, bobcat, coyote, badger, long-tailed weasel
Waterfowl: mallard, ringneck duck, cnvasssback, cinnamon teal, ruddy duck, common
godeneye, hooded merganser, common merganser, red -breasted merganser, American coot,
American widgeon
Other aquatic birds: dipper (water ouzal, a regular breeder) ring -winged blackbird
(regular breeder), belted kingfisher (feeds regularly), nighthawk (feeds regularly in
summer), spotted sandpiper, double -crested cormorant
Exhibit "A"
Page 3
VOL 6Mcl 40
Snag species and cavity nesters: common flicker, yellow -bellied sapsucker, hairy wood-
pecker, downy woodpecker, western bluebird, white -breasted nuthatch, red -breasted
nuthatch
Other breeding birds of interest: mourning dove, canyon wren, winter wren, house wren,
red-tailed hawk, cliff swallow (requires rimrock nesting habitat), barn swallow, tree
swallow, brown creeper, common bushtit, ruby -crowned kinglet, western wood peewee,
dusky flycatcher, violet -green swallow, killdeer, Audobon warbler, Wilson warbler,
western tannager
Other visitors of particular interest: golden eagle, common snipe, Forster tern,
sharp -shinned hawk, Cooper ahwk, goshawk, pigeon hawk, sparrow hawk
Exhibit ' D " 3
VOL
6nu 741
SOLID WASTE
Solid waste from the Bend Urban Area is handled at two sites.
Building wood wastes are disposed of at the County demolition dump
within the Urban Growth Boundary. All other wastes are taken to
Knott Pit Sanitary Landfill on the east edge of the Urban Growth
Boundary at Arnold Market and Knott Roads.
Knott Pit
In accordance with the Central Oregon Intergovernmental Council
Solid Waste Management Plan, Knott Sanitary Landfill is considered a
long term site serving the area around Bend. It receives the follow-
ing approximate monthly quantities of materials:
25,000 cu. yd. general solid waste
200 cu. yd. hospital wastes
175,000 gal. septic tank Dumpings
50 cu. yd. dead animals
40 cu. yd. sewage treatment plant solid and
semisolid wastes
The site is fenced with only one entrance and is open seven days a
week. Currently, fees are charged to all commercial haulers. The
general public is not charged.
All materials, except septic tanks pumpings, placed in landfill
sites are covered daily with a six inch cover. The following items
are not accepted at this site:
A. Whole car bodies (to go to local wreckers)
B. Oils
C. Chemicals
D. Liquids (other than septic tank pumpings)
E. Explosives
F. Demolition items (to go to Bend demolition site)
G. Hazardous waste containers
The excavation for the hole is accomplished by selling fill dirt
material to private commercial haulers. Surface drainage poses
no problem at this site.
All solid wastes are treated according to DEQ requirements and
standards. All appropriate permits have been received.
Estimates of the expected life of the site range from 1992-1995.
-2-
VOL c�
36nu 4�+
;a
The lagoons for septic tank pumpings are considered a secondary
backup system. No future development is planned. The City of
Bend's new treatment plan can accept trucks with special pumping
attachments; however, most septic tank trucks are not equipped
with this gear. The City's charges for this service is currently
in the range of $12-$15, vs. the County's charge fee for
Knott Pit.
The County should re-evaluate the life of Knott Pit with updated
data on depth of excavation, revised population projections, and
other factors. There are currently no provisions for relocating
the sanitary landfill elsewhere in the County. A study is needed
to identify and designate suitable future sites for solid waste
disposal near the Bend Metro area.
Bend Demolition Dump Site
The Bend Demolition Dump site consists of 15.1 acres on Simpson
Road off of Century Drive in the southwest area of Bend. The
operation began in 1972, utilizing abandoned pumice trenches.
The site is owned and operated by the Deschutes County Department
of Public Works as a modified landfill for only demolition, con-
struction debris, industrial wood wastes, tires, and similar
non-putrescible solid wastes, with compaction and cover of all
wastes deposited at least once a week. No open burning of any
wastes is allowed. The County has recently traded land for
another site of approximately 80 acres adjacent to the existing
site. However, this area abuts a new subdivision and has not had
a conditional use approval nor was it included in the original
Bend Area General Plan or Solid Waste Plan.
The Bend Demolition site received approximately 1,000 tires and
9,000 cubic yards monthly of demolition and construction wastes.
The following items are not accepted at this site:
A.
Food wastes and
B.
Dead animals
C.
Whole car bodies
D.
Oils
E.
Chemicals
F.
Liquids
G.
Explosives
H.
Sewage sludge or
I.
Hospital wastes
garbage
(to go to local car wreckers)
septic tank pumpings
Fees are charged all commercial haulers. The general public is
not charged. The site is fenced or barricaded with dirt berms
with one entrance, and is open 6 days a week. The existing site
is almost full, and a new site or expansion of this site is needed.
Plans for expansion to the west are in process, which, if approved,
should expand the life of the site for many years. The total -expected
life of the demolition dump site is _ears. The County is negotia-
ting with the Bend Metro Park and Recreation District to convert
the existing site into a baseball or soccer field.
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36mE 743
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Exhibit "E" VOL 36PAGE 745
COUNTY POLICE SERVICES IN THE BEND URBAN AREA
The Deschutes County Sheriff's Department shares joint responsibility with the
Oregon State Police in the Bend Urban Area. The Oregon State Police basically stick
to the main highways (Highways 97, 20, and 31), and investigate accidents and auto-
mobile related infractions; whereas the sheriff's officers patrol and investigate
crimes throughout the county.
It is estimated that approximately 75% of the crimes committed in the county
occur within the Bend Urban Area.
Traffic related crimes and accidents take up a large percentage of the county
officers' time, with false alarms from residential burglar alarm systems causing an
increasing problem. (This is soon to be remedied, however, through a registration
and penalty procedure for those alarms which frequently activate.) The total number
of crimes reported in Deschutes County has increased 47 percent, 36 percent of which
is attributed to better reporting mechanisms. The sheriff's office has access to a
computerized reporting system compiled by the state which tallies reported crimes by
such factors as sex, age, and the geographic area where the crime was committed.
They have an area that is comparable to the geographic boundary of the Bend UGB; un-
fortunately no past data is available by area, but present (October 1979 -December
1979) and future data will be broken down in this form.
The total sheriff department's staff is currently short eight officers for the
FY 1979-80, based on a one officer per 1,000 citizens national median average. The
main concerns of the sheriff's office are providing better service in the LaPine area,
as manifested in the LaPine sheriff's substation bond issue, and the new correction
facilities retention capabilities. The capabilities of meeting an increased crime
rate in the Bend Urban Area associated with an increased population does not appear
to offer a serious enforcement problem for the department other than bridging the
present and expected shortage of law enforcement officers. The sheriff's department
indicated that they would favor an increased density surrounding the urban areas
(particularly the Bend Area, since their main offices and equipment are situated here),
rather than scattered de-elopment throughout the county.
Source: Interview with Lt. George Mortan, Deschutes County Sheriffs Office, 12/12/79
EXCEPTIONS STATEMENT VOL 36na 740
The following information describes the current status of the land being excluded
from the IUGB. The City and County adopted an Urban Growth Boundary in 1972, and
this boundary was modified several times through 1978. In 1979 the City and County
submitted the Bend Area General Plan and UGB to LCDC, and LCDC directed that a new
boundary be prepared using the following criteria.
1. Revise the Bend Urban Growth Boundary to include:
a. All lands within the City limits.
b. All lands beyond the City limits which are demonstrably needed, based on
factors 1 and 2 of Goal 14, and the buildable lands information in Goal
10, and factors 3-7 of Goal 14.
c. All lands beyond need which are justified, based upon consideration of
factors 3-7 of Goal 14.
2. All lands remaining outside the boundary established as listed above, but inside
the current UGB must be designated as natural resources, rural, or urban reserve,
and zoned in the UAR-10 or other protective zone classification until such time
as a boundary change is justified.
The City and County have agreed to a new Initial Urban Growth Boundary that excludes
approximately 25 percent of the land contained in the 1979 Urban Growth Boundary.
These lands are designated as urban reserve and surface mining, and zoned SR -21, UAR-10,
and SM. The majority of the SR -21 areas are currently developed with lot sizes of
that size or smaller.
The inventory of soil data indicates that most of the agriculture lands are Class VI
and are interspersed between lava ridges of scabland Class VIII. The forest soils
are site 6 except for a small area of 4 contained within the Tumalo Creek canyon which
is Shevlin Park. The conclusion from this analysis is that these lands are marginal
resource lands. Much of the land is surrounded by existing one to five acre sub-
divisions. These areas have been excepted in the Deschutes County Comprehensive Plan.
The urban reserve area acts as a buffer to the more rural and resource lands beyond
the UGB. The use of the urban reserve will promote more orderly and efficient develop-
ment, and still retain the 1972 planning commitments which have resulted in financial
commitments from both the public and private sectors. The minimum lot sizes of 2J to
10 acres will be compatible with the adjacent land uses, and in most cases are the
same as the adjacent IIUA-10 and RR -10 zoning outside the UGB.
The provision of these areas as urban reserve will enable the community to convert
these areas when needed, and hopefully reduce any impact of the small number of indi-
vddual owners of largor parcol.s within tho IU(,B. It is important to pro -plan future
expansion areas for compatibility and consistency with adjacent uses and services.
These areas offer opportunities important to the Bend's and Deschutes County's economy
for destination resorts. These areas offer the community an opportunity to review
rural urban conflicts and develop more compatible urban and rural relationships.
No alternatives were considered, since this would require the enlargement of the 1979
UGB.
Based on these considerations, the City and County are taking an exception to Goals
3 and 4 as they relate to the land between the IUGB and the UGB.
JCH:bf
Revised 9/24/80
EXHIBIT D