Loading...
HomeMy WebLinkAbout86-05286-122291 LE-Z'COUNSEL BEFORE THE BOARD OF COUNTY COMMISSIONERS OF DESCHUTES COUNTY, OREGON An Ordinance Amending Ordi- * �'.•_�;,:y..� VEL 72 nance No. PL -20, the Deschutes* County Year 2000 Comprehensive* 986 } Plan, Adopting a New Trans- portation Plan and Transpor- tation Plan Map. c -- r. ORDINANCE NO. 86-052 t a C ^E THE BOARD OF COUNTY COMMISSIONERS OF DESCHUTES COUNTY, OREGON, ORDAINS as follows: Section 1. That the Section of the Deschutes County Year 2000 Comprehensive Plan, entitled "Transportation" is hereby amended to read as set forth in Exhibit "A", attached hereto and by this reference incorporated herein. Section 2. That the Transportation Plan Map, marked Exhibit "B", attached hereto and by this reference incorporated herein, is adopted as the Transportation Plan Map for the Deschutes County Year 2000 Comprehensive Plan. DATED this day of 9 , 1986. BOARD OF COUNTY COMMISSIONERS OF DWCHUTE,$ COUNTY—OREGON ATTEST: Record g Secretary 1 - ORDINANCE NO. 86-052 TOW PWTE, Cha LAURENCE-At TUTT4E, Commissioner DICK MAUDLIN, Commissioner VOL 72 PAGE 3o EXHIBIT "A" r. DESCHUTES COUNTY TRANSPORTATION ELEMENT The transportation network is the element which ties the community together. While land uses are a physical reflection of all that people do, it is the transportation network that indicates how those activities interact. Adequate transportation planning is an important part of any comprehensive plan which hopes to guide the community's growth in the most efficient and equitable manner possible. The primary transportation mode in Deschutes County is the automobile. In fact, without automobiles, most rural communities would be largely isolated. Transportation planning is complicated because responsibilities are divided between public, semi-public, and private providers, and most resources are committed to automobile transport. In general, the transportation element of the comprehensive plan is intended to provide the basis for 1) a systematic program to minimize traffic hazards, 2) improving traffic movement and roadway conditions efficiently and in an orderly manner, 3) facilitating the coordination of maintenance and development programs of all agencies responsible for transportation facilities, and 4) ensuring that private development occurs in harmony with public transportation facilities and programs. HIGHWAYS AND ROADS: There are three primary roles for a road network system: traffic mobility, land access (access to property), and provision for utility'service lines (water, sewer, electricity, etc.). The raod classification used for all county roads, based on the type of service they provide, are as follows: 1. Principal Arterial: Carries the major portion of trips entering and leaving the urban area and outlying rural and recreation areas (state highways). 2. Minor Arterial: a. Urban Minor Arterial: Interconnects with and augments the principal arterial system and provides service to intraurban/intracommunity areas. b. Rural Minor Arterial: Connects with the principal arterial system and forms the rural road network that links cities and rural service centers. 1 - DESCHUTES COUNTY TRANSPORTATION ELEMENT von 72 FAcF`1nA 3. Collector: A semi -restricted or restricted access street supplementary to the arterial street system, used or intended to be used primarily for the movement of traffic between arterials and local streets. 4. Local Street: Provides access to property abutting the public right-of-way; this includes vehicular and pedestrian access. Moving traffic is a secondary function of a local street and it should not carry through traffic. Deschutes County contains 199 miles of primary state highways and 36 miles of secondary state highways (1985). Currently, none of the local cities have highway bypasses. Since the top funding priority of the Oregon Department of Transportation (ODOT) is maintenance rather than new construction, local major new state highways are unlikely. Of the 1,091 miles of roads in the county road system, only 297 miles are eligible for federal funds. The County maintains 680 miles of paved roads, 162 miles of graded roads, 154 bridges, and provides no maintenance to 249 miles of roadway. These 249 miles of unmaintained roads serve few people and no broad public purpose. Funds to maintain county roads come from state gasoline tax monies and revenues from federal timber sales (some of which is shared with the cities and school districts). Presently, inadequate funds prevent the County from maintaining all roads at the level they should be, given the amount of traffic they bear. Deschutes County has been reappraising its road requirements. New subdivisions must now provide paved access to and through the development at the developer's expense. The County will share the cost of widening existing roads during development of adjoining major site improvements and subdivisions. Requiring that these roads be paved has proven to be especially important in improving safety and lowering maintenance costs. Problems with differing standards between the county and cities in urban areas have been resolved with adoption of countywide standards. In addition to state and county roads, there are 1,300 miles of federal forest highways, 41 miles of which are in special road districts and 70 miles of private roads in planned developments such as Sunriver and Black Butte Ranch. There are also many other miles of private roads and an estimated 500 miles of public ways which are unimproved public rights-of-way controlled by Deschutes County. Public ways will be improved and maintained by the County if adjacent property owners form a local improvement district to bring the road up to county standards. The major traffic problem is the proliferation of access points along roads and highways. The many turning movements create serious safety hazards, removes the ability of the road to function, and cause expensive highway improvement. By limiting 2 - DESCHUTES COUNTY TRANSPORTATION ELEMENT VOL 72 °AOE ,905 access, it has been found that traffic can move faster, safer, and more efficiently. Also, controlling access fosters the usability of adjoining land uses. This is true not only in commercial areas, but is evident in residential districts as well. As Deschutes County continues to grow, so does the number of vehicles. Table 1 shows that Deschutes County continues to be dependent on the automobile for transportation. TABLE 1 REGISTERED VEHICLE GROWTH IN DESCHUTES COUNTY Additional problems are created as tourist traffic increases the traffic load in Deschutes County. It is interesting to note that the studies conducted by the Oregon State Highway Division indicate that much of the Highway 97 traffic shows Bend as its destination. The end result of the study is that new routes that were proposed around the City of Bend are not needed at the present time. Given the projected increases in population and vehicle registrations, increasingly restrictive amount of money for road improvements, growing concern over the ecological effects of automobiles, and a need to provide alternative transportation modes, increased coordinated planning and encouragement of more efficient development patterns (i.e., cluster developments) will become much more important. Railways : There are four railways in Deschutes County: Oregon Trunk Line (Burlington -Northern subsidiary), Burlington -Northern, Union Pacific, and City of Prineville Railroad. The track is in generally excellent condition and, except for Prineville's railroad, is owned or controlled by Burlington -Northern. 3 - DESCHUTES COUNTY TRANSPORTATION ELEMENT REGISTERED COUNTY PEOPLE PER YEAR PASSENGER VEHICLES POPULATION VEHICLE 1979 51,078 59,500 1.16 1980 51,187 62,142 1.21 1981 54,989 63,650 1.15 1982 54,216 64,350 1.18 1983 57,450 63,300 1.10 1984 58,188 64,000 1.09 Additional problems are created as tourist traffic increases the traffic load in Deschutes County. It is interesting to note that the studies conducted by the Oregon State Highway Division indicate that much of the Highway 97 traffic shows Bend as its destination. The end result of the study is that new routes that were proposed around the City of Bend are not needed at the present time. Given the projected increases in population and vehicle registrations, increasingly restrictive amount of money for road improvements, growing concern over the ecological effects of automobiles, and a need to provide alternative transportation modes, increased coordinated planning and encouragement of more efficient development patterns (i.e., cluster developments) will become much more important. Railways : There are four railways in Deschutes County: Oregon Trunk Line (Burlington -Northern subsidiary), Burlington -Northern, Union Pacific, and City of Prineville Railroad. The track is in generally excellent condition and, except for Prineville's railroad, is owned or controlled by Burlington -Northern. 3 - DESCHUTES COUNTY TRANSPORTATION ELEMENT von 72 FACE` 06 Although there is no passenger service, rail transport is a cost-effective and important service for bulk shipping in the county. Switching facilities include 25 miles in Bend, 15 miles in Redmond, and one mile of spur -and -passing track in LaPine. Between 40 and 50 loaded railcars leave Bend each week (transporting pumice, wood chips, and finished lumber) while only six carloads arrive, creating a serious imbalance for local shippers. Even though large-scale expansion of rail facilities is not presently anticipated, sufficient right-of-way for expansion does exist, which is important in light of the discussion of industrial expansion and economic diversification found in the Economic, Rural Develpoment, and Urbanization chapters of the Comprehensive Plan. Additional facilities such as spurs for industry, crossing guards (presently inadequate), and possibly even passenger cars are features that need to be anticipated and promoted. Airports: There are three airports in Deschutes County (Redmond, Bend, and Sunriver), although the public also uses the uncontrolled landing fields in Brothers, Millican, and Sisters. Only Redmond has scheduled commercial passenger service. There are many other private landing fields in the county as well. There are some businesses which require a location near an airport, although most goods produced locally do not lend themselves to economical air transport. Aircraft operations at the Bend and Redmond airports have remained stable over the past five years. Redmond's Robert's Field is expected to remain the major commercial aviation facility while Bend Municipal Airport will continue and expand its general aviation activities. Airport master plans for the Sunriver, Redmond, and Bend airports have been completed and adopted. Protection from incompatible residential and commercial development for the other landing fields and airports in the county will require conditional land use controls. Public Transit: Present interstate bus service is inappropriate to serve local transit needs. The local governments have been reluctant to become involved with public transit due to high cost and little public interest. 4 - DESCHUTES COUNTY TRANSPORTATION ELEMENT VOL 72 PAGE 30 7 Local public transit is limited to demand -response systems in the Bend and Redmond areas, which respond to calls from the elderly and the handicapped. A local bus company has been proposed to provide some intercity service, and this company may be eligible for state and federal assistance. It is anticipated that the demand for public transit will increase. LaPine and Sisters, as well as other rural communities, are expected to reach populations which will make public transit necessary in the near future. Nonmotorized: The largest amount of trails in the county are maintained by the Deschutes National Forest. There are approximately 450 miles of horse, bicycle, and hiking trails. Deschutes County and the Cities of Bend and Redmond have about 14 miles of bike paths. Black Butte and Sunriver have a total of about 40 miles. The recently adopted countywide road standards require all urban and rural minor arterials and collectors be constructed with bicycle routes. The current policy calls for bicycle routes to be designated on existing and future roadways. -- GOALS: In consideration of the growing needs and complexity of transportation plans locally, the following goals have been developed to serve as objectives for local growth and change. 1. To provide a balanced, safe, efficient, and integrated transportation system which reflects environmental, economic, and social considerations. 2. To serve the existing, proposed, and future land uses with an efficient, safe, attractive roadway network. 3. To encourage expansion of opportunities for rail and air transportation for passengers and freight. 4. To provide opportunity for the development of public transit systems. 5. To provide a system for safe and efficient transportation and recreation routes for pedestrians, bicyclists, and equestrians. 6. To decrease adverse effects of the automobile domination of the existing transportation system. 5 - DESCHUTES COUNTY TRANSPORTATION ELEMENT POLICIES: va 72 PArrF308 General: 1. Both the County and urban area transportation plans shall be coordinated with the respective land use plans. 2. The urban area transportation plans shall be coordinated with and incorporated into the countywide transportation element. 3. The County Transportation Technical Advisory Committee shall continue to assist in the transportation planning process. 4. Transportation facilities must be designed and constructed in a manner compatible with land use patterns and needs. Conversely, land use plans must be designed and written to protect and provide for the function of transportation facilities. 5. All new roads or major modifications (major modification shall include upgrading a road from one classification to another and/or increasing an existing right-of-way more than 10 percent), including principal and minor arterials and collectors, shall require review in the land use process. The following land use issues shall be addressed: a) Compatibility with existing land use and social patterns, including noise generation, safety hazards (e.g., children in a residential area), and zoning. b) Environmental impacts, including hazards imposed to and by wildlife (e.g., migration or water use patterns). C) Retention of scenic quality, including tree preservation. d) Means to improve the safety and function of the facility, including surrounding zoning, access control, and terrain modifications. e) In the case of roadways where modification results in a change of traffic types or density, impats on route safety, route land use patterns, and route nonmotorized/pedestrian traffic. f) Consideration of the potential developmental impact created by the facility. g) Cost-effectiveness. 6. Citizen involvement shall be an important part of the ongoing transportation planning process (see Citizen Involvement chapter). 6 - DESCHUTES COUNTY TRANSPORTATION ELEMENT VOL 72 FACP ` () Highways and Roads: 7. To assure efficiency in road improvements, the County Transportation Advisory Committee shall annually review planned Public Works Department projects for the coming year. This schedule shall be coordinated with existing local, state, and federal transportation plans. 8. New roads, major modifications where traffic types and/or land use densities may be changed, and changes in circulation shall be reviewed by the County Transportation Technical Advisory Committee. The Advisory Committee shall recommend to the County Planning Commission any changes or additions for inclusion into the circulation plan of the Transportation Element as providied for in Policy 5. 9. Roads utilized primarily for local traffic should be maintained by local agencies, while principal arterials should be maintained by the State. 10. Maintenance and public use of streets or roads which no longer have demonstrated public need shall be discontinued. �- 11. Road standards inside urban growth boundaries shall meet or exceed the uniform countywide standards. 12. The County shall consider financial assistance to construct or improve major streets and roads in the urban areas. 13. The major portion of local street improvement costs within the right-of-way, such as sidewalks and curbs, shall be financed by abutting property owners. 14. Subdivision of properties on roads not constructed to county standards and not accepted for maintenance responsibility by a local government shall not be permitted. A road within a platted subdivision shall be a public road and maintained by a public agency unless that road is in a road district, destination resort, planned community, or planned unit development where a homeowner's association or private corporation shall provide the maintenance. 15. Access onto existing collectors and arterials shall be limited, consolidated, and controlled. Access control shall emphasize the coordination of traffic and access patterns to minimize negative effects. Frontage roads and access collection points shall be used wherever feasible (ee Oregon Department of Transportation Access Control Guidelines). Site plans shall conform to the County Public Works Department's access control criteria. Areawide needs, if they are more restrictife, should supercede site-specific needs. 7 - DESCHUTES COUNTY TRANSPORTATION ELEMENT VOL 72 ?d,6E l-1.0 16. To promote safety and uninterrupted traffic flow, the following planning considerations shall prevail along arterials: a) Clustering of all types of development and provisions for an internal traffic pattern with limited arterial access shall be encouraged, especially within urban areas. This provision may be applied to collector roadways within urban areas. b) A minimum setback of 50 feet from arterial rights-of- way shall be required. C) Critical transportation corridors along arterials within urban growth boundaries shall be identified for improvements or preservation of traffic flow. d) Recommendations on speed limits shall be forwarded to the Speed Control Board. 17. Critical transportation corridors shall have specific criteria for development established for each corridor. 18. The County shall seek ways to finance needed transportation capital improvements or system development, such as considering a countywide gas tax. 19. Acquisition of needed rights-of-way for road improvements should be made as early as possible in order to reduce acquisition costs and ensure compatible land use planning. 20. Planned developments shall include public streets to accommodate present and future through traffic, where needed. 21. Because curb and road width requirements add to housing costs, planned developments (e.g., cluster development, planned communities, and destination resorts) may request reduced road widths where it can be demonstrated that the road will accommodate anticipated traffic and that alternative parking facilities (e.g., parking bays) have been provided. 22. The County will not accept the maintenance or financial responsibility for Forest Service Road No. 45 (from Spring River Road to Century Drive). Railroads: 23. Communication between the railroad industry, Deschutes County, and its cities should be encouraged through the planning process to reduce land use conflicts and increase safety devices at all at -grade crossings. 8 - DESCHUTES COUNTY TRANSPORTATION ELEMENT VOL 72 24. Rail spur areas shall be protected to accommodate future industrial access rail spur areas by the zoning and in plan reviews. 25. The County shall encourage a state or federal study of passenger rail service from Chemult to Madras. Airports: 26. The land use element of the Robert's Field Master Plan is part of the Deschutes County Comprehensive Plan and shall guide land use decision-making in the vicinity of this facility. 27. The Bend Municipal Airport is a general aviation facility and shall develop to meet the growing needs of the community for such a transportation facility. The Bend Municipal Airport Master Plan is recognized as a guide for development, although it is not a part of this plan. Appropriate implementation techniques shall be adopted to provide for the growth and development of this airport, to protect it from encroachment by incompatible land uses, to protect the aviation users, the public, and nearby properties from possible conflicts, and to allow development in the vicinity of the airport that is compatible with the airport's future development. a) The Bend Municipal Airport will grow along with the rest of Deschutes County, and the following additional policies shall apply to the properties shown on the components of the airport overlay zones within the area of average Ldn 65 contour (substantial impact area): (1) Property within the average Ldn 65 contour (substantial impact area) shall be considered committed for airport -related or accessory commercial or industrial uses. At such time as an exception to LCDC Goal 3 (Agricultural Lands) is taken, such properties shall be available to be rezoned to A -D, Airport Development, provided public need is demonstrated for the exception, in accordance with LCDC Goal 2 (Land Use Planning), and public need is demonstrated for the zone to be placed upon the property. The Ldn 65 noise contour map, marked Exhibit A, attached hereto and, by this reference, incorporated herein, is adopted to designate those properties within the Ldn 65 noise contour. (2) Properties within the Ldn 65 contour boundary shall not be used for any use that conflicts with airport uses. 9 - DESCHUTES COUNTY TRANSPORTATION ELEMENT VOL 72 PAGM2 b) Properties in the average Ldn 55 contour (moderate noise impact area) can expect increased noise levels and, therefore, further increases in residential densities shall be discouraged. The Ldn 55 contour map, marked Exhibit B, attached hereto and, by this reference, incorporated herein, is adopted to designate those properties within the Ldn 55 noise contour. 28. The County shall recognize Robert's Field as the main commercial airport for Central Oregon and encourage airport officials' and all local entities' efforts to have Robert's Field used as a point of departure (rather than Portland or elsewhere) for commercial freight and passenger service, particularly for direct commercial flights to the East and South, 29. Any land use decisions regarding airports in Deschutes County without adopted master plans shall be based on Airport Compatibility Planning Recommended for Airport Land Use Planning and Zoning, ODOT, Aeronautics Division, 1978. 30. The County shall participate in and encourage adopted master plans and appropriate federal, state, and local funding for airport improvements at publicly -owned airports. 31. Future development of private landing fields shall be discouraged when they are in close proximity to one another, other public airports, or overall density and/or use in a relatively small area would cause hazards. State standards shall be met. 32. Land uses beneath designated airport approach zones within one-half mile from the ends of all runways shall not create water impoundments, sanitary landfills, and/or sewer treatment ponds because of the potential hazards from waterfowl. Screens or nets for water or sewage ponds may be required up to 12,000 feet from the end of the runway. 33. Commercial uses resulting in concentrations of people shall not be permitted within airport approach surfaces and an area within 500 feet parallel from the runway center line to avoid danger to the public safety by potential aircraft accidents. Public Transit: 34. Public transit planning responsibility should be jointly recognized by the County and all incorporated municipalities; they should work with the Central Oregon Intergovernmental Council (COIC) to develop public transit plans. 10 - DESCHUTES COUNTY TRANSPORTATION ELEMENT 35. The County and cities should mutually decide where and how monies for public transit should be spent. Alternatives such as carpooling and a public transit district should be considered. 36. Deschutes County, in conjunction with the City of Bend, should continue to support existing dial -a -ride services and should consider supporting Redmond's dial -a -ride service. Expansion of existing systems to all members of the public shall be sought. 37. Deschutes County shall develop a program to finance and improve transportation services for elderly and handicapped persons. An advisory committee will be established to assist in the planning and distribution of monies from the Elderly and Handicapped Special Transportation Fund. Nonmotorized: 38. The County may develop and adopt a countywide systems plan for bike paths and trails (see Recreation chapter) which provides access to various destinations in and between urban areas and rural service centers. Interaction and coordination between pertinent agencies locally shall be sought. This plan shall contain standards for appropriate bicycle and pedestrian facilities for various densities and based upon the three different road types. 39. Bike paths on the Old Redmond -Bend Highway and between Bend and Sunriver on Forest Road No. 41 shall be constructed, if feasible. 40. The County shall adopt the Bend Urban Area Bicycle Committee's plan for the Bend area until completion of the countywide bicycle plan. 41. New developments in urban areas, rural service centers, and planned developments shall have bike paths constructed as a condition of approval. Some exceptions may be appropriate, depending on topography or other pertinent factors. 42. Whenever possible, paths and trails should be developed in conjunction with existing motorized routes. Consideration shall be given to the special needs of pedestrians, bicyclists, and equestrians. 43. The County shall explore federal, state, and local avenues for funding bicycle, pedestrian, and equestrian trails. 44. The County shall protect the Transamerica Bikeway to assure its continued utility. 11 - DESCHUTES COUNTY TRANSPORTATION ELEMENT VOL 72 U- `. PROPOSED CHANGES TO EXISTING COUNTY TRANSPORTATION PLAN The following roads/highways have been reclassified to reflect the new definitions: 1. Highway 20 - state highway to principal arterial 2. Highway 126 - state highway to principal arterial 3. Three Creeks Road - arterial to rural collector to intersection of Forest Service Road 100/1608 4. Camp Polk Road - arterial to rural collector 5. Cloverdale Road - arterial to rural collector 6. Century Drive - principal arterial to Egan Road; remainder is Forest Service Road (FSR)/arterial 7. Cascade Lakes Highway - arterial to Forest Service Road (FSR)/arterial 8. Highway 97 - state highway to principal arterial 9. Elk Lake Road - collector to FSR/collector 10. Cultus Lake Road - collector to FSR/collector 11. Keefer Road - collector to FSR/collector 12. Twin Lakes Road - collector to FSR/collector 13. Pringle Falls Loop - arterial to FSR/collector 14. Burgess Road - arterial to rural collector 15. Finley Butte Road - collector to USFS boundary; FSR/collector 16. Paulina/East Lake Road - arterial to rural collector at USFS boundary; FSR/collector 17. Pengra-Huntington Road - arterial to rural collector 18. South Century Drive - arterial to collector 19. Vandervert Road - arterial to rural collector 20. Spring River Road - arterial to rural collector 21. Sunriver Road to Mt. Bachelor - Forest Service Road 22. China Hat Road - rural collector to USFS boundary; FSR/collector 23. Pine Mountain Road - collector to local 24. Ford Road/Grinstead Road - collector to local 25. G.I. Ranch Road - collector to local 26. Camp Creek Road - collector to local 27. Ward Road - arterial to rural collector 28. Dodds Road - rural collector 29. McNaught Road - rural collector 30. McGrath Road - arterial to rural collector 31. Walton Road - collector to local 32. Pinehurst Road - collector to local 33. Tyler Road - collector to local 34. Swalley Road - collector to local 35. Sisemore Road - collector to local 36. Waugh Road - collector to local 37. Stevens Road - collector to local 38. Larson Road - collector to local 39. Billadeau Road - collector to local 40. Cottonwood Road - rural collector voL 72 PA X115 ADDITIONS TO THE COUNTY TRANSPORTATION PLAN CIRCULATION ELEMENT 1. BILLADEAU ROAD: From Arnold Loop to Rickard; local (not paved). 2. COOLEY ROAD: From Boyd Acres to Deschutes Market Road; urban minor arterial (right-of-way needed). (If Cooley Road is extended in the future, there shall be no access to and through JD Ranch Estates.) 3. DAY ROAD: Pine Drop Lane to LaPine State Park Road; rural collector. 4. EMPIRE BOULEVARD: From Deschutes Market Road to Hamby; urban rural arterial (right-of-way needed). 5. MAPLE AVENUE: From 35th to Helmholtz; collector (right-of-way needed). 6. 27TH STREET (REDMOND): From Maple to Hemlock; collector (right-of-way needed). 7. BUCKHORN ROAD: From Lower Bridge to Highway 126; collector (not paved). 8. NINTH STREET (REDMOND): From Highway 126 to Canal Boulevard near northeast UGB; urban and rural minor arterial (right-of-way needed). 9. WILT ROAD: From Camp Polk Road to Jefferson County line; collector (not paved). 10. SOUTH UGB (SISTERS): From Three Creeks Road/Elm Street to Highway 126; collector (right-of-way needed). 11. EAST UGB (SISTERS): From Highway 126 to Barclay Drive; collector (right-of-way needed). 12. Road adjacent to WEST UGB (SISTERS): Three Creeks Road to Highway 20; collector (right-of-way needed). 13. SOUTHEAST UGB (SISTERS): From Highway 20/242 to Three Creeks/Elm Street; collector (right-of-way needed). 14. REED ROAD: Highway 97 to the LaPine Industrial Park; collector (right-of-way needed). 15. EAST DESCHUTES ROAD: LaPine State Park Road to Century Drive; rural collector. 16. MASTEN ROAD: End of pavement to Collar Drive; rural collector (not paved).