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Fir �n TM�: �' ,'�± , i- r "lfi, � ; .. •>« f.: , A y/ #. e , �`�, s , � � ” R•. ..,#.' ,:, . , {{ � u .� . . � a ": - _ , ,..�.', .. � � ��5. F. ,(' (,, ..,:.., " , �k�., �: �"''�,' `� -! tw:r:. a ,"9 „6•.. �-r; r, d,.-,..� f /" :?• ,�. t y:.,r..,. « .. ) sn�:�. ' �: - .'a•:, :r ,. ,.i,. l,�'~. A ,•., „kd +�, P✓. ?'J x .� yd§ �',;'3 Y' .�r_' 1,,,�^?� n '.�?. i 5's X:���y ' r COMPREHENSIVE PLAN TO 1990 DESCHUTES COUNTY OREGON Prepared for and with the Assistance of the People of Deschutes County By Grunwald Crawford & Associates City & Regional Planning Consultants $02 North Irwin Street Hanford, California The preparation of this material was financially aided through a federal grant from the Department of Housing and Urban Development, under the Comprehensive Planning Assistance Program authorized by Section 701 of the Housing Act of 1954, as amended. Project No. Oregon P-147, Deschutes County Bend City Commission John G. Stenkamp, Mayor Robert L. Bristol Jack C. Dempsey Dick Gervais George W. Marshall E. Albert Moody Preston Waller Bend City Planninq Commission Ray Babb Ray Bennett George J. Corrigan Henry Greening Don Halligan Sam Langmas Ray Lindstrom Preston Waller Dr. John Williams Bend City Administration Hal Puddy, City Manager Deschutes National Forest Ashley Poust, Forest Supervisor Deschutes County Board of Commissioners D. L. Penhollow, Chairman Gerald McCann Dorothy Smead Redmond City Council Gerald Barrett, Mayor Dale Ayres Roy Bratten Melvin Kidd Neil Morris Harold Norris Everett Van Matre Redmond City Planninq Commission Everett Van Matre, Chairman Gard Erlksen Don Fraley Al Hollowell Bill Jossey Bill Mayfield Frank Phillips Jerry Warner Redmond City Administration John Berning, Administrator Cooperative Extension Service Oregon State University Robert H. Sterling, County Extension Agent Consulting Staff Robert E. Grunwald Don R. Crawford Maurice E, Strauss Sisters City Council L. C. Tatum, Mayor Maurice Hunking Don Mouser Margaret Smith George Sproat Cliff Ullman Deschutes County Planninq Commission Jerry Warner, Chairman Dr. Fred Buchanan Don Halligan C. R. Lindsay Mathew Perlot Richard Rasmussen Deschutes County Planninq Department Lorin D. Morgan, Planning Director Oregon State Highway Department James Putnam, District Engineer Citizens Advisory Committee for Planning Dr. George McLeary, Chairman Glenn H. Anderson Don Hinman James F. Putnam Emile P. Bachand Mike Holiern Paul Ramsay Arthur Baltzer George Hostetler Fred Ramsey Jack P. Barnes Fay Hunter Mr, is Mrs. George Ray David Berger Dan Kearnes W. E. Roats Dick Burton Bill & Dorothy Lear Gary Rudisill George Cook Ray W. Lindstrom A'leen Runkle Wallace Crawford Joe Lyman Ben Russell Keith Cyrus Louise MacDonald Lloyd Satterlee Mrs. Pat Elliott R. G. McFarland Michael Shannon Helen Evans Mrs. George McLeary G. E. Skinner Lloyd Farley Lucille McMeen Robert Sterling Werner Fohrer Mr. & Mrs. George Marshall Ted Thorsen Mrs. Ron Frichtl James Miner Charles Trachsel Mrs. Daniel Goldy Robert W. Mitchell George Trout, Jr. Allan J. Grant Louise Morley Nolan Turner Henry Greening Bertil Nelson Mrs. D. J. Ward Mrs. Bob Greenlee Earl Nichols G. E. Wiley John Harbison Meade Pedersen Dr. Jack Williams Dan Heirman Harry Peterson Laura Wonser. Gil Helling Ashley Poust Jess Yardley Hai Puddy TABLE OF CONTENTS PAGE PART I INTRODUCTION TO THE COMPREHENSIVE PLAN . . . . . . . . . . . . . . . . . . . . . . I-1 BACKGROUND TO COMPREHENSIVE PLANNING . . . . . . . . . . . . . . . . . . . . . 1 THE CURRENT COMPREHENSIVE PLANNING PROGRAM . . . . . . . . . . . . . . . . . . I THE COMPREHENSIVE PLAN DEVELOPMENT PROCESS . . . . . . . . . . . . . . . . . . I CONTENT OF THE REPORT . . . . . . . . . . . . . . . . . . . . . . . . . . 3 PART II BACKGROUND SUMMARY AND POLICY CONSIDERATIONS . . . . . . . . . . . . . . . . . . . II-fi4 POPULATION AND ECONOMIC ACTIVITY . . . . . . . . . . . . . . . . . . . . . . . RESOURCE MANAGEMENT AND CONSERVATION . . . . . . . . . . . . . . . . . . . . . Y1' TRANSPORTATION . . . . . . . . . . . . . . . . . . . . . . . . . 3.8 URBAN DEVELOPMENT . . . . . . . . . . . . . . . . . . . . . . . . . . . .?� PART III DEVELOPMENT POLICIES UNDERLYING PROPOSALS OF THE COMPREHENSIVE PLAN . . . . . . . Ili /4S POLICIES CONCERNING POPULATION AND ECONOMIC ACTIVITY . . . . . . . . . . . . . 1A* POLICIES CONCERNING RESOURCE MANAGEMENT AND CONSERVATION . . . . . . . . . . . /44 POLICIES CONCERNING URBAN DEVELOPMENT . . . . . . . . . . . . . . . . . . * POLICIES CONCERNING TRANSPORTATION . . . . . . . . . . . . . . . . . . . . . . 4& PART IV PROPOSALS OF THE DESCHUTES COUNTY COMPREHENSIVE PLAN . . . . . . . . . . . . . .IV ptw INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 149 URBAN LAND USE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . yr(r! TRANSPORTATION . . . . . . . . . . . . . . . . . . . . . . . . . . xaq RURAL -RESOURCE USE , , , , , , , , , , , , , , , , , , , , , , , , , , , , , , d FOREST MANAGEMENT ZONES . . . . . . . . . . . . . . . . . . . . . . . . . . .�J� INITIAL HOUSING ELEMENT . . . . . . . . . . . . . . . . . . . . . . . . . . . LQS�J TABLE OF CONTENTS PAGE PART V URBAN ELEMENTS OF THE DESCHUTES COUNTY COMPREHENSIVE PLAN . . . . . . . . . . . . . V/� INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . X4' PART V-1 COMPREHENSIVE PLAN TO 1990 - BEND AREA LAND USE ELEMENT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . y451 PUBLIC FACILITIES AND SERVICES . . . . . . . . . . . . . . . . . . . . . . /&7 TRANSPORTATION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . PART V-2 COMPREHENSIVE PLAN TO 1990 - REDMOND AREA . . . . . . . . . . . . . . LAND USE ELEMENT . . . . . . PUBLIC FACILITIES AND SERVICES . . . . TRANSPORTATION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Of ?3 PART V-3 COMPREHENSIVE PLAN TO 1990 - SISTERS AREA . . . . . . . . . . . . . . y1 74p LAND USE ELEMENT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . y17(o PUBLIC FACILITIES AND SERVICES . . . . . . . . . . . . . . . . . . 7 TRANSPORTATION . . . . . . . . . . . . . . . . x 1 PART V-4 COMPREHENSIVE PLAN TO 1990 - LAPINE AREA . . . . . . . . . . . . . . 15 PERMANENT AND SEASONAL POPULATION . . . . . . . . . . . . . . . . . . . . . 15 LAND USE ELEMENT . . . . . . . . . . . . . . . . . . . . . . . . . 16 PUBLIC FACILITIES AND SERVICES . . . . . . . . . . . . . . . . . . . . . . 17 TRANSPORTATION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17 PART VI PUBLIC REVIEW, OFFICIAL ADOPTION AND INTERPRETATION OF THE PLAN . . . . . . . . . . VI -I PUBLIC REVIEW . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I ADOPTION OF THE PLAN . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I INTERPRETATION OF THE COMPREHENSIVE PLAN . . . . . . . . . . . . . . . . . . . 3 PART V11 CARRYING OUT THE POLICIES AND PROPOSALS OF THE COMPREHENSIVE PLAN . . . . . . . . . VII -1 INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i COORDINATION OF GOVERNMENTAL ACTIVITIES . . . . . . . . . . . . . . . . . . . . 1 DEVELOPMENT REGULATIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 DETAILED STUDIES REQUIRED . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 REVIEW AND PERIODIC REVISION OF THE COMPREHENSIVE PLAN . . . . . . . . . . . . 7 Honorable Board of Commissioners County of Deschutes Court House Bend, Oregon Dear Members of the Board: January, 1970 In fulfillment of our contract with the County, we are pleased to submit to you and to the people of the County the proposed Comprehensive Plan for Deschutes County. Deschutes County is at the threshold of a new era which poses both challenges and opportunities for improving the quality of life afforded all citizens of the County. The Comprehensive Planhas been developed to assist the people in meeting these challenges and opportunities -- of population growth, of increasing levels of economic activity, of increasing demands for services, and of greatly enlarged demands for the utilization of the County's natural resources. Of the many forces which are acting in combination to stimulate and create change, those which concern the management and utilization of natural resources are perhaps most critical to the proposals of the Plan. Consequently, the Comprehensive Plan gives considerable emphasis to maintaining and enhancing the quality of the environment while proposing that resources be managed in such a way as to provide new and enlarged economic oppor- tunities which will benefit existing and future generations of the people in the County. Many citizens and public officials have provided assistance and guidance during the preparation of the Plan. Their participation in the process of plan development was both significant and essential. Our association with officials at city., county, state and federal levels, with the Citizens Advisory Committee for Planning, with industry groups, and with many citizens -at -large has been rewarding for us. But more important, their contribution has been of inestimable value in behalf of all of the people of Deschutes County. We wish particularly to thank Lorin D. Morgan, Planning Director, who has worked very hard to make the County's planning program a success. Special commendations are extended to the Board of County Commissioners for having the foresight and courage to initiate and provide consistent support to the program. Sincerely, GRUNWALD., CRAWFORD & ASSOCIATES PART 1 INTRODUCTION TO THE COMPREHENSIVE PLAN BACKGROUND TO COMPREHENSIVE PLANNING The publication of this report represents the culmination of nearly two years effort on the part of County government, the cities of Bend, Redmond and Sisters and a committee of citizens to prepare a Comprehensive Plan for Deschutes County. in 1967, the County's planning program came to a rather abrupt halt, and it was subjected to a reevaluation primarily as the result of a sizeable negative response to previous efforts. Perhaps the most important factor leading toward reevaluation was that of inadequate communication and under- standing of the planning program. But an additional factor was that certain elements of the program had been completed and adopted out-of-phase. Zoning and subdivision ordinances had been adopted and administered prior to the preparation and adoption of a Comprehensive Plan. Consequently, these development regulations were not based on a set of policies and proposals concerning future development to which the people of the County were committed to have carried out over time. The inevitable result was a moratorium on plan- ning effort. THE CURRENT COMPREHENSIVE PLANNING PROGRAM In January of 1968, the County Court reinstated comprehensive planning in Deschutes County on a basis which would overcome the limitations of previous efforts through a first -things - first approach. This publication represents the primary product of the new program. The new program was to involve three objectives: (1) to prepare a Comprehensive Plan for the County, utilizing data, materials and studies prepared under the previous program to the maximum extent possible; (2) to organize an effective planning function in County government, capable of providing continuous advice and counsel to the people and to the County Court concerning all matters affecting the future physical and economic development of the County; and (3) to reevalu- ate and develop new proposed subdivision and zoning ordinances based on policies of the Comprehensive Plan for thorough review and consideration prior to their enactment and admin- istration. These three objectives have been pursued in logical order. The Comprehensive Plan is now available for public review prior to its adoption as official policy of the County. To carry out the second objective, a County Planning Commission has been organized, a County Planning Department has been established, and a program of planning services to the cities has been established under service contracts between the County and the cities. And finally, a proposed subdivision ordinance has been drafted and a proposed zoning ordinance draft is in preparation at this publication. THE COMPREHENSIVE PLAN DEVELOPMENT PROCESS The process followed in preparation of the Comprehensive Plan can be summarized as involving: 1. The organization of an effective citizens' committee to advise on policies to be included in the Plan. 2. The preparation of basic studies. The presentation and deliberation of policies to be included in the Plan. 4. The preparation of "sketch plans" depicting alterna- tive solutions to the accommodation of future growth and development anticipated over the next 20 years. 5. The deliberation and selection of proposals for future growth and development to be included in the Plan. 6. Preparation of the Comprehensive Plan report. This process can be understood best by reviewing the activi- ties of the Citizens Advisory Committee for Planning through- out the program. The Citizens Advisory Committee for Planning Citizen participation was determined early in the program to be an essential aspect of developing the Comprehensive Plan. In June of 1968, the County Court appointed the 50 - man Citizens Advisory Committee for Planning to work closely with the County's planning consultant and local staff in preparing the Comprehensive Plan. Members of the Committee were selected from throughout the County, presenting a cross-section of opinion, background and interest from all urban and rural areas. The function of the Committee was four -fold: (1) to discuss the basic policy considerations presented in Part 11 of this report, and recommend those policies which were to guide the prepa- ration of the Plan; (2) to advise the County Court on the creation, organization and functions of a County Planning Commission; (3) to review preliminary proposals of the "sketch" plans and recommend proposals to be included in the Comprehensive Plan; and (4) to review and recommend policies to be followed in preparing drafts of subdivision and zoning ordinances, and to.review drafts to assure that the language carries out the intent of underlying policies. The Committee met continuously on a near monthly basis since Its organization in June, 1968. A series of basic reports prepared by the Consultant on the subjects of population - economics, transportation, resource management and urban development provided the basic framework for discussion and the identification of policy considerations. Discussions often involved debate; issues were thoroughly explored; and minutes were kept of all sessions to provide a background for understanding positions taken on each policy consider- ation. After reaching agreement on basic policies to guide the preparation of proposals for future development, a series of sketch plans were prepared for review by the Committee. These sketch plans presented proposals in map form for the County as a whole, for each of the three cities and for the community of Lapine. Proposals for urban land use, transportation facilities and rural -resource use were de- picted on all of the sketch plans, with plans for the com- munities integrated with those for the County as a whole. Discussion centered on how basic policies developed pre- viously were translated into physical development proposals. Each plan design was described in a report to aid the Committee in understanding the nature of the proposals. Agreement was. reached on proposals, and the consultant was instructed to prepare the Comprehensive Plan report. The sketch plans were reviewed also with City officials prior to concluding decisions by the Committee so that there would be general understanding and agreement at the community level of proposals affecting the cities. Similarly, the plans were reviewed by the County Planning Commission, the County Court and department heads of County government whose areas of responsibility were affected by proposals of the plans. It should be emphasized that members of the County Court and Planning Commission attended meetings of the Citizens Committee consistently throughout the Comprehensive Plan Development Process. A particularly important role was performed by the Planning Director in assisting the Committee throughout its year of deliberations. Supplementary Citizen Participation During early stages of the program, the planning consultant worked closely with the Deschutes County Long -Range Planning Conference in comparing studies and viewpoints. The Confer- ence, composed of 200 citizens from throughout the County, was engaged at that time in studying existing conditions in the County. The minutes of the Conference and its sub- committees were made available to the planning consultant throughout the spring of 1968, as were the recommendations of the Conference when published in preliminary report form. Thus, the Conference was able to make a significant contribu- tion to the development of basic studies completed during early phases of the County's comprehensive planning program. A second and vital supplementary source of citizen viewpoint was developed through the Opinion Survey conducted on a County -wide basis during the winter and spring of 1968. The results of the Survey were analyzed by the County's planning consultant and the viewpoints of many thousands of County residents thus were able to be considered carefully and in- corporated into the Comprehensive Plan Development Process. CONTENT OF THE REPORT The report is divided into seven parts, and is organized to show the continuity of the program as it actually developed. It begins with the background presented in the Introduction, and the basic studies of population and economic activity, resources, transportation and urban development in Part ii. Part III covers the policies underlying proposals of the Plan; Parts IV and V describe proposals of the County -wide plan and plans for the cities; Part VI describes the procedure for review and adoption of the Plan and how the Plan should be interpreted; and, Part VII describes requirements for carrying out the Pian. PART II BACKGROUND SUMMARY AND POLICY CONSIDERATIONS POPULATION AND ECONOMIC ACTIVITY The following discussion presents a summary of trends identified from research, together with a descriptive analy- sis identifying problems and opportunities for economic growth. The projections of population and economic activi- ties should be viewed as statements of reasonable potential and not as forecasts or as self-fulfilling prophesies. The degree to which a level of prosperity is achieved will be determined largely by the extent to which policies and pro- posals of the Comprehensive Plan are implemented through public and private action programs designed to maximize opportunities. Population The tri -county region of Central Oregon (Deschutes, Cook, and Jefferson Counties) contains approximately 47,000 persons and represents about 1/12 of the total area of the State. Deschutes County accounts for about 60°/. of the regional total Between 1960 and 1966, the County population increased by 4,500, representing a net in -migration of 3,100 new residents The excess in the number of births over deaths accounted for only 1,400 of the total increase. The Pacific Northwest is projected to grow to 102 million by the turn of the century.0 ) Assuming the State of Oregon (1) Defined as Oregon, Washington, Idaho, and eleven Western Counties of Montana, ("The Pacific Northwest," A Study of Economic Growth in a Quality Environment), Battelle Memorial Institute. Ei and the tri -county region maintain their present share of the population in the Pacific Northwest, the tri -county region will grow to over 81,000 persons by the year 2000, and Deschutes County will have increased by more than 75% to nearly 48,000 persons. Given the range of growth oppor- tunities and other related factors discussed below, the pro- jections in Table i appear to be very conservative. The distribution of future population probably will vary from its present pattern wherein two-thirds live in urban areas, 10% live on farms, and the remaining 23% are rural non-farm population. The potential for year-round resort development, recreation subdivisions, and other rural non- farm acreage development implies a de -emphasis in the his- torical pattern of concentration of population in the communities of Bend, Redmond, and Sisters, with the re- sulting pattern being one of greater scatteration with its many attendant implications for achieving orderly develop- ment. However, the distribution in 20 years is still ex- pected to show about 75% of the County's total population living in the Bend and Redmond urban areas. These two com- munities are projected to maintain the same proportionate share of the total population. This will mean that by 1990 nearly 11,000 persons will be living in the smaller commun- ities of Sisters, Lapine, Terrebonne,Tumalo (present cumu- lative population of 2,000) and emerging recreation areas such as Sun River and rural non-farm developments. The proportion of persons aged 15-64 years was considerably smaller in 1960 than it was a decade earlier. This had definite implications for the economic health of the County, since this is the age group from which the labor force draws its strength. This trend apparently has leveled off with the large block of war babies coming of adult age during the mid -1960's. The older age group (65+) showed the most PACIFIC NORTHWEST OREGON STATE TRI -COUNTY REGION DESCHUTES COUNTY BEND URBAN AREA REDMOND URBAN AREA 19900 9,000,000 2,898,000 69,600 4o,9oo 22,900 7,400 1995 9,750,000 3,139,500 75,300 44,200 24,700 8,000 2000 10,500,000 3,381,000 81,100 47,600 26,600 8,700 Pacific Northwest Projections for 1970, 1975, based on 1.9% increase per year between 1965-1980 -- Projections for 1985-1995 based on 2.1% increase per year between 1980-2000. Oregon State - State Projections based on 32.2% of Northwest for 1969. (Source: Battelle Memorial Institute) Tri -County Region - Jefferson, Deschutes, and Crook County Projections based on 2.4°I° of State for 1965. Deschutes County - Projections based on 58.7% of Tri -County Region for 1965. Bend Projections based on 55.9% of Deschutes County for 1965. Redmond Projections based on 18.2% of Deschutes County for 1965. rJ TABLE 1 COMPARATIVE POPULATION TRENDS AND PROJECTIONS 1965 1970 1975 1980 185 5,800,000 6,340,000 6,900,000 7,450,000 8,200,000 1,903,671 2,044,700 2,221,800 2,398,900 22640,400 46,000 49,100 53,300 57,600 63,400 27,000 28,800 31,300 33,800 37,200 15,080 16,100 17,500 18,900 20,800 4,900 5,200 5,700 6,200 6,800 19900 9,000,000 2,898,000 69,600 4o,9oo 22,900 7,400 1995 9,750,000 3,139,500 75,300 44,200 24,700 8,000 2000 10,500,000 3,381,000 81,100 47,600 26,600 8,700 Pacific Northwest Projections for 1970, 1975, based on 1.9% increase per year between 1965-1980 -- Projections for 1985-1995 based on 2.1% increase per year between 1980-2000. Oregon State - State Projections based on 32.2% of Northwest for 1969. (Source: Battelle Memorial Institute) Tri -County Region - Jefferson, Deschutes, and Crook County Projections based on 2.4°I° of State for 1965. Deschutes County - Projections based on 58.7% of Tri -County Region for 1965. Bend Projections based on 55.9% of Deschutes County for 1965. Redmond Projections based on 18.2% of Deschutes County for 1965. rJ dramatic increase during the ten-year period and is continuing as a result of the attraction of the area for retirement living. The proportion in this age group climbed from nearly two percentage points below the average for the Pacific North- West in 1950 to nearly two points above the average. Recent studies of the Bend Public School system may indicate a future enrollment pattern in the County paralleling the national trend.(2) The rate of increase in elementary enroll- ment nationally has slowed recently and is projected to decline absolutely beginning in the 1970's. The trend in high school enrollment will change at a later date, showing a defi- nite leveling off during the early 1970's and an actual de- cline in enrollment during the late 1970's. These enrollment patterns reflect the graduation of the large bulge of World War II babies and that it is reasonable to assume that the fertility rate will continue a slight decline. The antici- pation that the County's elementary pattern will parallel the nation is based, in part, on the fact that the County can expect a rather modest population increase and therefore a modest in -migration as compared to some of the more rapidly growing areas of the Pacific Northwest. The composition of the County's population by age and sex is quite similar by percent to that of the State. Assuming that this similarity will continue, recent projections by the Ore- gon State Census Board indicate that by 1980 the working population will be considerably younger, with the 20-34 age group becoming the more predominant -- a reversal of the pattern in 1960. The implication is that the market for mana- gerial employment and executives in both the private and public sector (which typically draws upon the older working age group) may be in very short supply. Adding to the problem is the existing shortage in the skilled employment group that (2) A Comprehensive Survey of the Bend Public Schools, Bureau of Education Research, University of Oregon, 1965. 6 also draws heavily upon the 35 and older working age group. The obvious question then is whether or not the region and the County, given their present economic structure and qual- ity of labor force, will have a 20-34 age group capable of accepting greater job responsibility and leadership role. This appears to be occurring already in some of the more sophisticated job markets in this country, as well as in the upper levels of government and in education. Employment The County's population growth rate during the 1950's was approximately twice the rate of growth in new jobs with the result that the dependency ratio (number of persons sup- ported per job) increased dramatically. The sudden decline in job opportunities between 1950 and 1960 resulted in a near doubling in the number of unemployed. Job opportuni- ties gradually improved during the early 1960's with unem- ployment now stabilized somewhat at about 60/0 of the labor force. Central Oregon has a moderately diversifying economy wherein non -manufacturing provides about 70% of the jobs, manufac- turing about 22%, and agriculture shows a gradual decline to about 8%. Deschutes County's employment pattern changed significantly during the period 1940 to the early 1960's with a 1/3 drop in agricultural employment and a 447o decline in the number of jobs in the lumber and wood products industry. By the mid -1960's, the economic sectors involving jobs in distri- bution and service industries had more than offset the loss, showing 62% and 133% increases in employment respectively. The lumber and wood products industry continues to have the major influence on the economy of Central Oregon. Employ- ment in this basic industry has increased nearly 25% since the early 1960's, with well over 1/2 of the jobs in the region occurring in Deschutes County. It is felt, however, that increased job opportunities in this industry may well depend on greater product diversification and refinement of the available forest resources. Recent actions by major firms in this industry tend to confirm this trend. The historical dependency on the lumber and wood products industry for well over 80% of the basic manufacturing employ- ment has meant that the region's economy, and particularly Deschutes County's,.is extremely vulnerable to many outside influences: changes in national monetary conditions, change in the national birth rate and family formations, and a de- cline in the civilian market as a result of an increase in the armed forces. Probably the most significant factors locally are the shortage of economically available U.S. For- est Service timber, and the greater production efficiency which reduces the man power requirements for a given unit of production: e.g., in 1950, 6.7 man-years were required to produce one million board feet of lumber; ten years later only 4.9 man-years were needed to produce the same amount. The agricultural industry will continue to play a major role in the County's economy. However, its relative importance as an employer probably will continue to decline. Although declining, it provides over 1,900 jobs, 70% of which are held by self-employed farm owners or farm operators in addi- tion to their unpaid family workers. About 600 are hired workers. The value of agricultural products sold shows a modest increase during the 1960's with larger crop yield per acre, higher value crops and expanding cattle sales being mainly responsible. By far the more important of the pro- ducts sold are the livestock and dairy farm products. The value is in excess of 83% of the total value of all farm pro- ducts. It is important to note, however, that the total number of farms and acreage in farms continues to decline along with agricultural employment. Of the approximately 13,000 working for wages or salaries in non-agricultural establishments in the tri -county region, nearly 2/3 work in Deschutes County. The three largest employers in order of their importance are trade, lumber, and government. Distribution and service industries are showing the most dramatic expansion. Recent studies by the State Department of Employment show that this expansion plus job replacement will create a need for an average of 750 new workers per year within the region until 1970. De- mand in order of magnitude shows skilled, semi -skilled, and unskilled in that order. Distribution of employment by major industry groups in Deschutes County is nearly parallel to the distribution pattern state-wide in order of rank. Given this close simi- larity and the fact that the transition in Central Oregon is not unlike that occurring state-wide, it is reasonable to assume a future employment distribution in Deschutes County parallel to the State. Therefore, based on pro- jections for the State by the Oregon Department of Planning and Development, the distribution of Deschutes County's employed force of nearly 15,000 by 1985 shows the following ranking according to the redistribution among the several major industry groups: Comparison of Employment by Major Industry Grou Deschutes County Rank Rank 1965 1985 1. Agriculture 6 7 2. Non-agricultural self-employed 4 5 3. Manufacturing 1 2 4. Construction 8 9 5. Trans. communications & utilities 7 6 6. Wholesale and retail trade 2 3 7. Finance, insurance & real estate 9 8 8. Service and miscellaneous 5 4 9. Government (including education) 3 1 CHANGE Number Percent +1,950 +12 - 280 -22 +2,230 TABLE II - 360 LABOR FORCE IN CENTRAL OREGON APRIL 1962 - APRIL 1966 + 290 APRIL APRIL INDUSTRY 1966 1962 LABOR FORCE 17,800 15,850 UNEMPLOYMENT 1,020 1,300 Percent of Labor Force 5,7 8,2 EMPLOYMENT 16,780 14,550 Agricultural 1,920 2,280 Non-agricultural 14,860 12,270 Self-employed, Domestics 2,300 2,010 Wage and Salary Workers 12,560 10,260 Manuracturing 3,840 3,200 Lumber and Wood Products 3,270 2,620 Other Manufacturing 570 580 Non -manufacturing 8,720 7,060 Contract Construction 630 420 Transportation - Utilities 630 620 Wholesale and Retail Trade 2,920 2,340 Finance, Insurance, Real Estate 550 400 Service and Miscellaneous 1,610 1,180 Government 2,380 2,100 Source: Central Oregon Manpower Resource Study, State of Oregon, Department of Employment, 1967. e% CHANGE Number Percent +1,950 +12 - 280 -22 +2,230 +15 - 360 -16 +2,590 +21 + 290 +14 +2,300 +22 + 640 +20 + 650 +25 - 10 - 2 +1,660 +24 + 210 +50 + 10 + 2 + 580 +25 + 150 +38 + 430 +36 + 280 +13 TABLE III EMPLOYMENT IN DESCHUTES CROOK AND JEFFERSON COUNTIES APRIL 1966 INDUSTRY EMPLOYMENT Agricultural Non-agricultural Self-employed, Domestics Wage and Salary Workers Manufacturing Lumber and Wood Products Other Manufacturing Non -manufacturing Contract Construction Transportation - Utilities Wholesale and Retail Trade Finance, insurance, Real Estate Service and Miscellaneous Government DESCHUTES CROOK JEFFERSON 10,020 3,590 3,170 720 540 660 9,300 3,050 2,510 1,450 450 400 7,850 2,600 2,110 2,240 1,140 460 1,760 1,110 40o 480 30 6o 5,610 1,460 1,650 520 90 20 490 70 70 1,810 410 700 340 loo 110 1,010 300 300 1,44o 4q0 450 Source: Central Oregon Manpower Resource Study, State of Oregon, Department of Employment, 1967 i Occupations Professional -technical jobs are among the fastest growing in the region, and significantly faster than the total job mar- ket. Nearly 2/3 of the regional total is in Deschutes County. Managerial jobs, while few in number, are reported to have growth rate pp tential as high as any of the occupational categories.(s� Clerical positions account for over 1,000 jobs in Deschutes County representing more than 2/3 of the regional total in this category. The current expansion plus replacement employ- ment produces approximately 100 jobs per year with little prospects for shortage given the present level of availability within the open labor market. Sales and service are the fastest growing occupational groups in the region with the greatest job opportunity occurring in Deschutes County. Overall economic expansion will be respon- sible for generating most of the demands, particularly as a result of continued industrial diversification, urban expan- sion, tourism, and new recreation development. Skilled trades account for about 15% of all wage and salary employment within the region with 2/3 of the total occurring in Deschutes County. These jobs are held almost exclusively by men, with a majority of these in the 22-44 age group. Recent growth projections show skilled jobs growing at a typically slower rate than the total work force. Short-term projections shad an increase of less than 100 jobs per year for the region with expansion accounting for about 3/4 of the total and replacement accounting for 1/4. Unlike the sales (3) Dictionary of Occupational Titles (Professional -Technical, Managerial, Clerical, Sales, Service, Skilled, Semi- skilled, Unskilled). 10 and service groups, there will continue to be a shortage of persons to fill the job demand in the skilled occupations, assuming a continuation in the present trend toward econo- mic expansion. Semi -skilled occupations account for the largest group in the region, representing about 20% of the total work force. Deschutes County accounts for nearly 2/3 of the regional total. Men fill about nine out of every ten semi -skilled jobs in the region with the lumber industry employing more than half. Thus, seasonality is somewhat of a problem in these occupations as well as the decline in job opportunity due to the trend toward greater production efficiency. The growth in semi -skilled jobs is expected to parallel the growth rate of the entire work force. Unskilled jobs employ fewer workers than in the semi -skilled and skilled groups, particularly in Deschutes County which accounts for approximately half of the region's total. Over 3/4 of the total unskilled workers in the region (1,700) are in the lumber or trade industries. While the long- range pattern may parallel the United States, wherein the unskilled occupations tend to show a slower employment growth than other occupations, the short term outlook for the region indicates that unskilled jobs will increase ap- proximately at the same rate as total employment. This con- tinued expansion of the unskilled group, about 500 per year within the region, is due to the expected performance of lumber and wood products and of trade which will account for about half of the total increase. Income While the conclusions under Employment provide an indication of economic opportunity, the trend in the growth of personal income indicates the standard of living the County may rea- sonably expect in the future. The median family income in 1959 in Deschutes County was $5,600 compared to $5,900 for the State. It is estimated that the current State level has now risen to about $8,000 with prospects that it will climb to over $10,000 (in 1968 dollars) by 1980. While no official census information is currently available, it is reasonable to assume that the County has not kept pace with the State. This tends to be borne out by the comparison of effective buying income shown in the table below. In 1959, the disposable income in Bend and the County were 847. and 82%, respectively, of the U.S. average per household. As might be expected, the State shared better in showing 887,, in 1967, eight years later, the State had improved its position to 90%, while the County had dropped four percentage points and Bend three percentage points. This reflects the relatively static economic condi- tion in the County and the need for an accelerated transition. Comparison of Effective Buying Income Per Household Expressed as a Ratio to the U.S. Average Year Bend County State U.S. 1959 .84 .82 .88 1.00 1967 .81 .78 .90 1.00 Effective buying income per household is an arith- metical average obtained by dividing the total households in the area into the total net house- hold income after taxes commonly referred to as "disposable personal income." A fair indicator of the importance of recreation and tourism is the level of retail sales per household locally as compared to the State and the U.S. In 1959, the County and Bend both shoved sales per household to be 12�% of the U.S. average which was considerably higher than the State at 95%. By 1967 the local pattern had shown a dramatic increase with the $1 County rising to 143% and Bend approaching nearly twice the U.S. level.(4) Since the income per household was consi- derably below the U.S. level, it is reasonable to assume that the higher proportionate sales locally as compared to the U.S. and the State is attributable to the expanding recreation industry. Understandably, the value of this expanding source of basic income occurs throughout many segments of the economy with retail sales being but a part. Comparison of Retail Sales Per Household Expressed as a Ratio to the U.S. Averaoe Year Bend County State U.S. 1959 1.23 1.23 .95 1.00 1967 1.83 1.43 1.01 1.00 Retail Sales per household is an arithmetical average obtained by dividing the total households in the area into the total retail sales for that area. An Economy in Transition Historically, the economy of Oregon and particularly Central Oregon has been dependent primarily upon the export of their natural resources, mainly agriculture and the wood products industries. The continued exportation of its natural re- sources as the primary means of achieving rapid economic growth appears to be in transition. This emerging trend in Central Oregon is expected to occur as a result of two basic factors: first, the capacity for expanding indefinitely (4) Data for incorporated communities available only for Bend. the supply of these resources is limited. While the supply of timber on a long-term sustained yield basis is reportedly adequate to maintain the lumber and wood products industries in its present dominant position for the immediate future, no dramatic expansion is foreseen. In fact, the harvesting of private timber at times is in excess of the "allowable cut" concept, tending to indicate that total mill require- ments for profitable operation may be larger than the annual "allowable annual cut." In the case of agriculture, no major developments are anticipated. While total value may show some modest increase, agriculture is certain to decline as an employer. Secondly, an impetus for transition within the economy is the increasing attractiveness of the recreation industry in which the emphasis is on the preservation rather than the harvesting of natural resources. The main avenues of opportunity for a successful transition to an expanding and more viable economy appear to be in three broad areas: (1) greater product diversification and refinement of the available forest resources; (2) an all-out effort to capitalize on recreational potential; and (3) the attraction of "footloose" industries. Product diversification and refinement involves both forward and backward linkages. Furniture, paperboard, box containers, and plywood boats are examples of forward linkages, while backward linkages include glue and varnish for plywood indus- try and chlorine and other chemicals should the pulp and paper industry come to Central Oregon. An all-out effort to capitalize on recreation potential would be pursued through a carefully structured joint program of public and private interests. Except for organization, every favorable factor necessary to achieve this potential is evi- dent: (1) the unique endowment of nature; (2) attitudes of the major property owners (both private and public) indicate strong support for recreation development, as does State policy; (3) good access to the rapidly growing market on the West Coast; (4) projected increases in mobility, income, and it, leisure time; and finally, (5) the net income to the region from recreation is high in terms of increased tax yield in relation to the costs of providing public services for new development. "Footloose" industries are those which are not directly related to agriculture or to wood products. This new source of employment would be more nearly related to the utiliza- tion of human resources rather than natural resources. These service industries include both the highly sophisti- cated computerized "think" factories which are founded upon brain power and the creative ability of man as well as the more personalized services such as in recreation and tourism. Both are dependent upon the unique endowment of environmen- tal factors found in Central Oregon. There are many implications of Central Oregon's long-range transition. The most serious is a potential conflict between preservation of the natural environment and the attraction to the area of a much larger population (both permanent and temporary) and greater industrialization. Understandably, unless properly controlled, the growth sti- mulated by the unique natural endowments of the region can result in destruction of the environment that invited it, keeping in mind, however, that the implication of lack of growth can be equally disastrous. Population -Economic Policy Considerations From the foregoing analysis, four areas of major policy consideration become apparent, concerning: (1) the rate of population growth; (2) commercial recreation potential; (3) leadership in industrial development; and (4) improving the capabilities of the labor force. The projection of population growth for the tri -county region and Deschutes County has been based on a modified apportionment and ratio technique which results in a relatively modest projected increase during the next twenty years. This assumes that the region will continue to main- tain its relative position within the State. Considering that projections are in the low range, should the region and the County seek to encourage population growth far greater than past trends with the primary concern being to create a highly dynamic economy with a strong revenue producing capa- bility? The implications of such action may be to place in jeopardy the natural amenities and environmental qualities unless corresponding actions are taken to accelerate programs to control pollution and assure quality development. Considering the vast recreation demand by 1980 when the popu- lation of the Pacific Northwest Is 712 million and California is 28 million, should the County encourage major private land owners to investigate individually and jointly the economic feasibility of large-scale recreation development and the strategies necessary to maximize the vast recreation oppor- tunity? The implication of such action is to suggest a shift away from and replacement of the lumber and agricultural industries on private land, should these investigations show recreation to be a more productive use. Considering the many problems and opportunities for economic growth that are common to all central counties and the fact that amenities and ownership extend beyond jurisdictional boundaries, should Deschutes County initiate regional pro- grams for industrial development on the premise that the future growth of Central Oregon will accrue mainly to De- schutes County and therefore, it should assume the major leadership role? And further, in view of the public's con- cern for pursuing greater industrial diversification as ex- pressed in the 1968 County Opinion Survey and the need for proper organization in order to maximize emerging economic opportunities identified in the above analysis, should an Economic Development Commission be formed within the County? Its purpose would be to provide the strongest direction and leadership through a broad sponsorship and participation by both the private sector and government. The latter would include both County and cities. I$ With the future population of the nation and Oregon destined to be younger, better educate d, and of higher income, the Central Oregon region will be facing stiffer competition in maintaining a quality labor force necessary for greater in- dustrial diversification. A policy of improving communi- cations between the business community and the region's educational systems would be required to define skill and educational requirements by business and to develop business support of programs aimed at meeting these needs. A part of such a policy would be a continuing program to inform the public of the return received by the region on its in- vestment in education. The need for improved communications was also expressed in the Opinion Survey. Projections for the State of Oregon show a relative decrease in Job opportunities for those individuals having low skill levels and low levels of educational attainment. The ex- tent to which Central Oregon will be successful in pursuing greater industrial diversification will depend upon its ability to meet the increasing demand of industry for more highly educated personnel. Careful assessment of the de- tailed vocational requirements of the expanding economy would be necessary, with emphasis on vocational training programs which will assure fulfillment of future man power requirements. The implication is that the public schools would not concentrate on college preparatory training to the extent that vocational programs are neglected. The need for greater attention to vocational education require- ments was supported strongly by the Opinion Survey. in- volved also is the public's concern for creating greater opportunities for youth employment. RESOURCE MANAGEMENT AND CONSERVATION Deschutes County is rich in natural endowment -- perhaps so much so that emerging competition for the use of the County's resources and its implications for the future of the County may go relatively unnoticed by the majority of local residents. With the County's past and future so closely tied to and de- pendent upon its resource base, it is clear that further util- ization of resources for economic development must be attained through the application of resource management techniques which will sustain the availability and quality of resources over time. While the County's resources offer considerable opportunity for further economic development, they must be managed so that growth and activity stimulated by an attrac- tive environment will not injure or destroy the very resources which create the attractions. This section is intended to provide an examination of the key issues, problems, and opportunities involved in managing the County's resource base. By viewing major components of the resource base together, it is possible to identify directions which will prove most productive in achieving this objective. Public Land Management With more than 70% of the County in public ownership, the burden of management rests largely with the Forest Service, Bureau of Land Management, and Deschutes County to protect the watersheds which give sustenance to the economic life of the County. Of prime importance are the continually im- proving Federal policies to effectively enhance the multiple - use contribution of national forest and public domain lands to the principles of conservation and resource management. The Forest Service has developed a generally excellent program of multiple -use management which involves timber cut on a sustained yield basis, fish and game management, the avail- ability of forage for grazing, the protection of water 4- resources, the preservation of primitive and wilderness areas, protection of scenic quality and broadly based and increasing opportunities for outdoor recreation. Despite advances over the years, much remains to be accom- plished to further enhance resources upon national forest lands. Funding limitations impose obstacles to progress in paving forest highways, building and maintaining camp- grounds, constructing water conservation projects, refor- estation, and other needed programs. Fortunately, manage- ment programs are well established, and the Forest Service is deeply engaged in and committed to the renewal of resources which have deteriorated in the past as well as to the conservation of unrenewable resources. The high current and forecasted visitor use of national forest lands poses a serious threat to good management practices. Man -caused fire, illegal hunting, the indiscri- minate littering of forest roads and campgrounds, erosion caused by heavy use of trails, unauthorized camping, and similar examples of overuse or inconsiderate use limit the results of forest management. A threat to sound practices of management is posed by the impact of the use of a good share of the privately held non -timber land within the boundaries of the Deschutes National Forest. How this pri- vately owned land is maintained or developed can either complement or inhibit management practices of the national forest. BLM lands within the County, while substantial in acreage, constitute but a small fraction of the more than one million acres of public domain lands administered by BLM in Central Oregon. Nevertheless, this acreage is significant in terms of its current and potential contribution to the economic base of the County. Unlike Forest Service lands which are held in large blocks, BLM lands tend to be more scattered. Their location through- out central and eastern portions of the County pose both problems and opportunities to furthering management objectives. Until recent years, the Bureau of Land Management acted more as a holding and disposition agent of public domain lands. However, BLM's primary role has become one of management for multiple -use purposes as more and more acreage which once was termed of little value for contemporary purposes becomes valuable as the result of the Bureau's emerging program of land classification. Although underfunded, a systematic study of public domain lands is being conducted by the Bureau's district office in Prineville to determine their best use for purposes of multiple -use classification and management. The Bureau's focus on management objectives will increase economic benefits to Deschutes County and other counties of Central Oregon. In addition to the traditional grazing use of BLM lands (431,000 acres of grazing leases in Deschutes County in 1968), the Bureau is engaged in programs of range improvement, wildlife habitat protection, land exchange for the consolidation of more manageable holdings, mineral explo- ration, and recreation. The fact that hunting has become big business in Deschutes County is due in no small part to im- proved deer habitat on BLM lands. In addition, BLM lands have become favorite areas for rock -hounding. These recre- ation opportunities attract many tourists to the region, with an attendant economic spin-off to the recreation industry of the County. BLM lands are concentrated in the arid eastern parts of the County. Most of this land is covered with sage and juniper and has had little utility in the past for private use (ex- cept through grazing leases) because of the prohibitive costs of renewing such lands by private investment for grazing in relation to economic return. This is evident by the fact that substantial acreage which was once privately held has become County -owned over time as the result of tax delinquency. The Bureau has exchanged lands in the central and northern part of the County for private and County -owned lands in the eastern part to permit management practices on holdings which would otherwise have been too small to achieve meaningful U results. Contrary to some opinion that public ownership In itself constitutes a drag on the local tax base, if it were not for the Bureau's program, lands in the eastern part of the County would contribute little to the local economy. It now appears that the utility of BLM lands in the eastern part of the County may be enhanced greatly as the result of extensive research in range improvement at experiment sta- tions and practical experience in the application of improve- ment techniques. Public and private lands most suitable for grazing (an estimated 500,000 acres in Deschutes County) could be improved at costs ranging from $2.00-$8.00 per acre, reflecting an improvement value of from $1.00-$3.00 per acre per year -- a return on capital which compares favorably with most investments in agriculture today.(5) County -owned lands (other than those used for a specific public purpose such as a road, park, or public building site) can best be discussed in relation to BLM lands. The fragmented pattern of County lands in the eastern part of the County has fostered a program of land exchange with BLM. An excellent example of this program was the recent exchange of 12,000 acres of County land for 3,000 acres of BLM land east of Redmond. Study is being given to the ex- change of 25,000 to 40,000 acres of eastern County lands for approximately 8,000 acres of BLM lands in the west cen- tral and northern part of the County. With careful selection, such exchange furthers the management objectives of BLM while permitting the County to capture tax -returning utility in lands it receives by exchange through public auction and sale to private interests. Even where private sale is not feasible, it may be very desirable to hold exchanged land for County use or private lease. (5) This opinion offered in a memorandum from Robert Sterling, County Extension Agent, Cooperative Extension Service, Oregon State University, June, 1968 I Public Land Management Policy Considerations: Several aspects of the National Forest, BLM, and County management programs have policy implications for Deschutes County. Perhaps most important are those concerning: i. The volume of the Forest timber cut. 2. The potential for enlarging private investment oppor- tunities for public recreation within the Forest. 3. The withdrawal of Forest lands for wilderness or National Park management. 4. The allocation of Federal funds for Forest road improvement. 5. Land exchange between BLM and the County. 6. Continued public ownership of BLM lands in eastern Deschutes County. The establishment of the allowable cut is a key decision affecting the long-term supply of public timber available for manufacturing. While in any given year the cut can be higher than the allowable cut because of accumulated under- cuts, over any period of years the allowable cut establishes the upper limit on the amount of timber available for current cutting. In the Deschutes National Forest, the relationship of allowable cut to actual cut is balanced over a five-year period, with a reinventory and recalculation every ten years, in consideration of the complex technical and economic vari- ables involved. The concept of allowable cut is neither static nor "ideal," but instead is subject to changes in response to markets, management objectives, reliability of data concerning Forest conditions, access, silviculture practices, outbreaks of fire and disease, and administrative decisions. The closing 16 of the Forest in 1967 to logging because of fire hazard serves as an example of how these factors affect actual cut as compared to allowable cut in a given year. This limited discussion of the problems involved in cutting volume serves to point out the extreme importance of striving for stability over a period of years to avoid drastic eco- nomic effects upon the manufacturers in Deschutes County, particularly since policy decisions often are placed at levels above the local forest administration and outside the reach of the local manufacturer to influence. When the question of allowable cut is viewed in relation to sale practices and the rapid rise in competition among all users of forest land, decisions affecting allowable cut are likely to become an increasingly critical zone in public forest policies. Sales policies, such as those currently followed in the Deschutes National Forest, which will encour- age long-term investment in processing facilities and foster more complete utilization of the timber cut generally lead to more stable employment and economic conditions in the forest industries and thus within the County as a whole. Perhaps the most difficult area of decision concerns the selection of cutting areas and maintenance of the sustained yield program in balance with the social and economic bene- fits of increased demands for other competing uses of Na- tional Forest lands, particularly recreation. The potential for enlaroin private investment opportunities for public recreation, and thus enlarging the scale of eco- nomic return from recreation to the County, appears consid- erable. With the completion of the Cascade Lakes Highway and new access to the Waldo Lake area, the demand for lodges and other resort facilities is bound to increase. In antic- ipation ntic- ipation of this increased demand, the Forest Service is conducting a resort study to indicate areas which offer par- ticularly good opportunities for resort development in balance with other management objectives within the Forest. There are, however, a number of considerations which must be taken account of in making lands available under a special use permit. One is the avoidance of conflict between resort facilities and areas important to the timber cut. One is that areas selected for resort development be developed to their full potential for the types of services to be provided in order to avoid underuse and the consequent loss of eco- nomic benefits. Another consideration is that the developer and operator have the financial and operating capability to provide needed services. In addition to the potential of presently undeveloped areas, there is considerable potential for the expansion of some existing resorts. Considerations of under -utilization and financing are directly related. An important area of policy is to determine whether areas should be withheld from development because of inade- quate capitali-zation. The financial feasibility of new resort developments may preclude major investment. Where these situations exist, the policy issue is whether to withhold the land from development or whether to permit smaller but more marginal investment and operation, and therefore encourage under -utilization. Feasibility for major investment may be years away. On the other hand, if "Mom and Pop" type develop- ments are allowed to expand into new areas, such development may pose permanent obstacles to major investment. Proposals for the withdrawal of National Forest lands within the Central Oregon Cascades for wilderness or National Park purposes need careful scrutiny both in terms of their prob- a bie impact on the timber and forest products industries and on the further development of tourism as an industry. The relationship between outdoor recreation and commercial timber production will have a direct bearing upon Deschutes County's timber and recreation -based economy. Opinions vary widely as to the probable impact of outdoor recreation on timber production -- from the view that a major reduction in timber cut will result, to the view that only limited areas will be directly affected with adjustments being readily possible through more intensive management of the balance of the Forest area. Such general opinions must be refined as they relate to specific circumstances. For, it appears that the extent of impact will depend more upon the type of land use and financing considerations than upon the intensity of land use as measured in visitor days. This conclusion can be illus- trated by the conflicts which arise throughout forested regions of the country between those who wish further with- drawals of National Forest land for wilderness designation and advocates of timber cutting practices which would si- multaneously finance the road system necessary for access to areas of recreation attraction. A good example of the latter approach is provided in the Deschutes National Forest, where high intensity forest recreation use is both compatible with and indeed dependent upon timber harvesting operations, since roads constructed for timber cutting also provide access to recreation areas. In contrast, a very much lower intensity of recreational use and total reduction in the timber cut would result if lands were withdrawn for wilderness designation. In all likelihood, lands withdrawn for National Park use would also involve relatively low levels of recreation use by comparison with current National Forest status because of the more limited recreation use permitted within a National Park. From experience with other National Parks, It cannot be assumed that the level of tourism activity from National Park status will necessarily offset economic reductions in timber cut and recreation now permitted by National Forest status. It must be emphasized that the outcome of proposals for the further withdrawal of lands rests with public policy at high levels and its response to increasing pressures for withdrawal. Whether public policy will ultimately sup- port further withdrawals and therefore a reduction in tim- ber harvesting in the Central Oregon part of the Cascades I TO LINN COUNTY TO EUGENE LANE COUNTY TO MADRAS -SM, MS -Z E 11-Vl I f e FOREST LAND HOLDINGS DESCHUTES COUNTY,OREGON 1965 e D SCALE IN MILES A LAND ADMINISTERED BY THE FOREST SERVICE LAND ADMINISTERED BY THE BUREAU OF LAND MANAGEMENT MAJOR PRIVATE OWNERSHIPS SOURCE: U.S. DEPARTMENT OF AGRICULTURE, FOREST SERVICE MAP OF DESCHUTES COUNTY _ NATIONAL FOREST DATED 19641 dir B i U.S. DEPARTMENT OF INTERIOR, BUREAU OF LAND MANAGEMENT snoTx WITHDRAWAL MAP OF DESCHUTES COUNTY DATED MAY,1963. ASSESSORS RECORDS OF DESCHUTES `AO u 1 COUNTY. J 0 TO RLAMATN I M FALLS LAKE COUNTY TO BURNS KLAMATH COUNTY will depend largely upon the record of management practices established in the next decade under current National Forest. status. In order to maintain current practices, the chal- lenge to develop recreation opportunities and to maintain esthetic values without destroying the timber -based economy must be met. The allocation of Federal funds for road improvements within National Forest lands has been slow in relation to need and almost non-existent on BLM lands. The lag in road construc- tion in the Deschutes National Forest is illustrated in the next section on Transportation where the completion of needed improvements to only four Forest highways is not anticipated before 1988. Because appropriated funds for road construction have been inadequate to construct roads needed to meet the various in- creasing demands on the forests, timber capital is used to develop the road system. The appraised value of the timber is reduced by the estimated costs of such roads, enabling the timber purchaser to recover his costs of road construction. The standard of construction is that which the timber operator would use for the construction of a main logging road. Thus, if a higher standard is desired, supplemental financing must come from another source -- usually appropriated funds. From the standpoint of forest management, the lack of flexi- bility in road building which this type of financing involves tends to create results which are less satisfactory than would be the case if roads were financed with appropriated funds. The general policy problem involved has been summar- ized in a 1962 Forest Service Board of Review study of the allowable cut as follows: "The present method and level of National Forest road financing leads to some advance roading but fails to make adequate provision for a rate and direction of road development which will provide for maximum utilization of the National Forest timber resource and its growth. 1% It tends to preclude proper management of young growth. It leads to inefficient utilization of accumulated salvage and mortality losses, and delays conversion of the least productive timber stands to more pro- ductive second growth. In allocating the allowable cut to species, grades, and locations, it sometimes leads to conflicts between the road objectives of the Forest Service for developing the National For- ests and the demands of forest industries for an optimum log supply." The principal policy considerations surrounding the use of BLM and County lands relate to the program of land exchange between the two levels of government. As indicated pre- viously, upwards of 40,000 acres of County lands in the eastern„part of the County will be studied for exchange. 'This would constitute virtually all of the acreage owned by the County east of Horse Ridge. The primary question then is which BLM lands in other parts of the County should be involved in such exchange? The following criteria are suggested as a guide for meaningful exchanges which will benefit the County under the assumption that the County will exchange only those County lands which have limited utility except as part of the larger blocks of land admin- istered by BLM: 1. Lands which lie in the path of urban expansion and which will be needed for urban use; 2. Lands which have capability for irrigation and farming; 3. Lands having potential for use by local or State government; 4. Lands important to the acquisition of rights-of-way required for County road or State highway purposes; 5. Lands which have potential for recreation development; 6. Lands which may, as the result of the exchange, receive more intensified management for watershed protection; 7. Lands which can be combined with existing County -owned lands to create more manageable units and increase their potential for other purposes. While these criteria are perhaps the most important from the standpoint of the County, it must be noted that BLM lands possessing any or all of these characteristics will of neces- sity command a higher appraised value than County -owned lands involved in an exchange. Thus, 40,000 acres of County lands may yield only 6,000-8,000 acres of BLM lands. The law re- quires BLM to make exchanges on a value -for -value basis and not an acre -for -acre basis. This value system is sound but Is often little understood. In applying the above criteria, the County must exercise caution to avoid selecting lands based solely on the prin- ciple of direct and immediate economic return. Perhaps most important is the need to permit their utilization for private purposes where assurances can be built-in to avoid the cre- ation of new or enlarged problems of land management and watershed protection. For example, the type and intensity of recreation use involved may be quite important in deter- mining whether land received through an exchange program should be sold or leased to maximize economic returns in balance with benefits to be derived through development to meet other resource management objectives. Since the amount of County land which may be involved in an exchange program with BLM is limited both in location and acreage, the County must also be concerned with the appli- cation of the above criteria in considering the sale or lease of County lands located in central and northern parts of the County. More specifically, the County should take careful inventory of all of its lands and should attempt to classify these lands in a manner similar to that being applied by the Bureau of Land Management prior to making decisions 1q on use or disposal which may be irrevocable. To further this need for classification, the County should seek assis- tance from BLM for the classification of all County lands which will not be involved under an exchange program prior to making any particular commitment to specific uses. A return on "range management" investment to the point of comparing favorably with return on capital in agriculture raises a second public policy issue concerning BLM and County lands, i.e., whether lands should be retained in public ownership. The fact that there exists a vast acreage of BLM lands in Central Oregon suggests that public lands should be returned to the tax rolls where economic utility for private ownership can be demonstrated. The critical variable here is the extent to which such lands also possess utility for other important public purposes such as recre- ation, thus supporting continued public ownership. Another factor is that public ownership probably would result in lower costs to permittees grazing under lease than to pri- vate owners. Private Land Management As used here, the term "private land management" refers to the non -urban utilization of private lands within the County for timber production, recreation, and agriculture. Urban land use considerations are treated in a subsequent section. Timberland Policy Considerations: Private timberlands involving more than 70,000 acres repre- sent an extremely important aspect of land management in Deschutes County, since they supplement the timber cut from National Forest lands in striving for stability in the tim- ber economy of the County and the tri -county Central Oregon region. Most of these lands in Deschutes County lie within the boundaries of the Deschutes National Forest and are managed in accordance with practices which seek to complement those followed by the Forest Service to gain multiple -use benefits as well as maintaining a sustained yield for com- mercial production. With the exception of a checkerboard pattern of ownership west of Sisters, private timber lands are held generally in large blocks which permits more efficient management of both private and public forest lands. Checkerboard ownership tends to create problems unless there is a "shared -management" agreement with the Forest Service to achieve the management efficiency permitted by block holdings. Such agreements, however, are difficult to negotiate. Planning and management considerations involved in a checkerboard ownership pattern point to the need for a study as to whether an exchange pro- gram between private and public owners is justified to mini- mize conflicts between public and private land managers. Recreation Land Development Policy Considerations: Privately held lands which are developed or have potential for recreation use pose a particularly vexing set of problems for Deschutes County. On the one hand, such lands offer sig- nificant opportunities for the marketing of lands which, until recent years, have had little utility or market attrac- tion. On the other hand, the manner in which land is divided and sold, and the limited improvements involved in many such developments to date raises the spectre of serious threats to natural resources, the quality of the environment and the local economy. Of the approximately 145 subdivision plats filed in Deschutes County since 1956, more than 70% have been for recreation - oriented subdivisions involving more than 20,000 parcels throughout the private land area within the central part of the County. Virtually all of the plat activity has occurred since 1960, indicating a stepped-up interest in recreation parcels. The area which has received most of the action is along the Deschutes River and its tributaries between Bend and Lapine. While accurate records of purchase are not available because most of the sales take place by contract - of -sale, it appears that the majority of recreation lots are held by out-of-state buyers. With few exceptions, recreation subdivisions have been literally "carved" from the land with little attention to resource amenities and limitations of the land. Acreage lots are offered for purchase with access from roads which bear little relation to each other and to needs for col- lecting and funneling traffic via County feeder and arter- ia 1 roads. Potable water virtually is unavailable to some parcels, while as a practical matter being unavailable to many other parcels without drilling of individual wells at very high cost. Similarly, recreation rots are created without regard to limitations of the land to accept sewage effluent. The inventory of recreation parcels created without the application of reasonable development standards essential to protecting water quality and other natural resources might well become a blight upon the County for decades to come. To date, the lack of standards has affected primarily the scenic quality ofsubdivided areas since the vast major- ity of parcels remain vacant and undeveloped. This is due largely to the speculative character of the subdivision pro- cess where some developers have catered almost exclusively to the out-of-state buyer who in turn buys a parcel for further speculation. What will become of these undeveloped recreation parcels? The answer lies largely in the characteristics of the mar- ket for land in recreation areas within the West Coast as a whole. Land of this type eventually will have such a high premium attached to it that it will either be devel- oped for vacation homes or lie undeveloped -- depending on the eventual cost of providing needed improvements and ser- vices. State and Federal water pollution control standards I will probably restrict the use of many existing parcels for homesites. Aside from the degradation of the environment caused by this type of land division, there is a consequent loss or impair- ment of opportunity in the subdivision of adjacent lands, and a loss to the local landowner of the additional income to be realized in subdividing the land himself. Because of the limited acreage of private land in Deschutes County, failure of the County to realize the full economic potential of sub- divided land for recreation use will limit further the tax revenues needed to provide essential public services in the future. In developing planning policies and development standards to cope with the problems and opportunities presented by the recreation land market, the following principles need recog- nition: 1. The recreation land market represents an important area of activity which should not inadvertently be closed to local residents by the manner in which improvements are required. Standards of design and improvement should seek to result in "land management" which preserves environ- mental quality and sustains the economic utility of land similar to the concepts of management applied to private timber lands and public lands. The indiscriminate subdivision of buttes and other lands which lack the real or practical capability for developing water supplies and/or the disposal of sew- age effluent which will not contaminate or otherwise impair the quality of receiving waters should be discouraged. The first principle above requires elaboration. While oppor- tunities to gain further economic return through land "-' 4 development by local residents should be open, it must be recognized that land development of the type which will have the most positive effect on the economy of the County as a whole often will be beyond the reach of local residents to participate in, just as logging and lumber production is beyond the financial and technical reach of small landowners. Projects like Sun River, for example, are likely to be well beyond the reach of most local landowners, not only because of the long-term risk money involved, but also because of lack of experience in the field of land development and mar- keting. If the recreation land market is to be a positive rather than negative force in the local economy, the con- tinued "butchering" of land by a relatively few speculators must be stopped through insistence on adherence to sound standards of design and improvement. One avenue open to enhance opportunities for more local involvement is for collective action among several adjacent land owners, where resources are pooled to permit develop- ments which otherwise would be beyond their capability. Another complementary approach is to devise subdivision regulations which permit phased .development and installation of improvements in a manner where initial sales will in turn provide capital for further development. A further approach Is to have development standards which allow flexibility with respect to variations in physical conditions which exist in different parts of the County. Another approach will require changes in the State laws governing real estate practices which will close Oregon to fraudulent out-of-state land speculation and advertising. As was pointed out at a conference on rural planning and zoning in Eugene in 1967, it appears that the future of the State is being determined mostly by non-resident land spec- ulators who have little concern for the impact of their actions upon the people and the great natural beauty of Oregon. Recent legislation in California is instructive in this regard. A new law permits the Commissioner of Real Estate to prevent the sale of subdivisions in remote areas when prom- ise d improvements appear to be financially unfeasible. Sub- dividers are required to report the names of all defaulting purchasers to the Commissioner, and buyers of lots are allowed to withdraw from signed contracts -of -sale within two days after they receive the Commissioner's public report on the subdivision. In signing the bill, California's Governor stated that " .. the growth and healthy development of the State is influenced to a great extent by the success or fail- ure of real estate promotions." The bill was supported by the State's Real Estate Association, Home Builders Council, and major subdividers of remote lands. A special problem worthy of elaboration is that of fire protection. The incidence of fire and consequent loss of natural and man-made resources will become a problem of en- larged proportions as subdivisions designed without fire- breaks are developed. Current policy of the Forest Service is to suppress fires on private lands before they reach National Forest lands. It is a defensive approach which pays dividends, and is supported financially by State law which provides that landowners pay a patrol tax of 15 cents per acre. This support, however, is wholly inadequate to meet the costs involved since it is based on costs of protecting timber land and not subdivision land. A recent State law provides that a patrol tax of $4.00 per acre will be levied upon subdivision land when a deed is recorded. However, because most land purchase occurs by contract -of -sale, the provisions of this law do not apply to the vast majority of subdivided acreage. The policy consid- era tions involved are very important to the County. As land is developed, costs of fire protection will rise while success at fire suppression diminishes. The County eventu- ally will be looked to for additional fire protection. In order to avoid the creation of rural fire districts which lack the capability for fire suppression possessed by the Forest Service, the County should examine alternatives which would either result in a change in State law to apply the $4.00 levy upon the filing of a subdivision plat or the adoption of a local ordinance which would assure a more reasonable assessment upon recreation subdivision par- cels. In addition, the County's subdivision ordinance should assure that new subdivisions will include firebreaks and adequate water supplies for fire fighting. Agricultural lands: Agricultural lands involve a relatively small but economi- cally important amount of the total acreage of the County. White agricultural lands comprise nearly 350,000 acres (I8% of..the County's land area), croplands are limited to approximately 17% of the total area in farms with the re- maining area largely used for grazing. Cropland is restricted generally by a lean capability of soils, a short growing season, and limited supplies of water for irrigation where water is unavailable for purchase from irrigation districts or where wells are difficult to develop. Despite these general limitations, however, agri- culture has improved its economic contribution to the County. An important indicator is the growth in agricul- tural income between 1962 and 1968 -- from $4.80 million to $6.05 million.(6) Another indicator is that the number of commercial farms increased from 56 to 62 between 1959 and 1964. Two factors contributing to continued growth of the agri- cultural sector is intensification and improved techniques of farm management on the same acreage. More intensive (6) Agricultural income refers to the gross sales of farm products. I sprinkler irrigation has, for example, increased production. Dairy production per cow has increased steadily, and poultry production and dry -lot dairies can utilize non -irrigated land. The most productive croplands within the County are concen- trated in a diamond-shaped area between Sisters, Bend, Redmond, and the County line north of Terrebone. This area is in transition because of the introduction of part-time farming and rural non-farm residences on parcels too small for com- mercial farm operations. While the future of agriculture in the short-term is bright, Its future in the long-term as a continually growing compo- nent of the local economy is somewhat in jeopardy -- at least to the extent that the conversion of productive croplands to non-farm use represents a loss of production potential. The conversion of irrigated lands to tracts involving parcels of five acres or more is occurring in response to two forces: (i) the desire for a residence in a rural setting; and (2) the desire to engage in farming as an avocation on a part- time basis along with the desire for a residence in a rural setting. In addition, recreation subdivisions are appearing in agricultural areas. This gradual conversion to date has occurred largely on marginal farm lands. Nevertheless, the trend poses serious problems and conflicts to the continuation of commercial operations as more lands break down. Some of the more impor- tant of these are: 1. Increased demands for the use of limited supplies of irrigation water for domestic use. 2. Higher costs in the distribution of water for irrigation 3. Difficulty in the control of noxious weeds and rodents. 4. Higher operating costs and increased land assessment. *4 2$ 5. Restriction in the use of pesticides. 6. Difficulties in moving equipment between separated parcels. 7. Complaints of odors, dust and noise, particularly where subdivisions are located adjacent to dairies and poultry farms. 8. The nuisance and costs of vandalism. 9. Restriction in the extension and application of soil conservation techniques and projects. 10. Restriction in improvements to irrigation facilities operated by irrigation districts. Additionally, small parcels purchased by retired and semi- retired persons hoping to realize supplementary income frau part-time farming will result in disappointments, marginal farm operations, and even substantial loss of investment where experience in farm operations is lacking. While demands for a rural home location must be recognized, the above discussion does provide the basis for the position that the most commercially productive farm lands of the County should not be gradually eased out of existence by this demand. Thousands of acres of desirable lands exist in the immediate vicinity of the County's principal communities to fulfill the demand for rural housing, at locations where it is more economical to provide needed governmental ser- vices, without limiting economic growth in agriculture. The major policy questions concerning the County's agricul- tural land resource are quite clear. To what extent is the preservation of agriculture important to the County as a whole and to the commercial farmer? And secondly, if pre- servation is desired, to what extent will the farm community foster and support development policies which will assure i TO ALMMY•BAI.EY JEFFERSON COUNTY to YAOpAp {♦ "- _ "" P+ ' r,,, MAJOR IRRIGATED LANDS !• 4 -a°t � I '� DESCHUTES COUNTY OREGON LINN COUNTY oY a gIS ERS 1 1965 o REDM4ND e o e w Ip TO EUGENE • t0 WNNEVI"t • �,! # { SCALE IN MILES • Mp pF 9Er78 • aNu 1 LANE w " COUNTY ♦ ♦ • ' �. .` NG hh ..; ® LAND WITH IRRIGATION WATER RIGHTS G TUNAlo POTENTIALLY IRRIGABLE LAND o - t CROOK SOURCES OREGON STATE WATER RESOURCES •p BOARD REPORT ON THE DESCHUTES 1 �)0. • ®CAVA 1 1 S • LAN -a. � ¢ 1 RIVED BASIN DATED JANUARY, 1961. Y Y J� rlwoAr -- ---�� COUNTY • e± uE 4 �, p�t� o • O eNonsNe ; I As -- MAAtK VIA— rr� - RLAFFYpM Qe �• 20 •♦ IANtAYA L. fA4T L. O 4 aAt Ma • Uttl� .. rr r ..•rr rrewiu Amor I AtaEAYpY ." r • TO N1.AYAtN KLAMATH COUNTY FALLS LAKE COUNTY to DUENS preservation? County government, through the exercise of its responsibilities for achieving rational patterns of land use, requires support and policy direction from those people who are most directly involved. The farmer, the farm organi- zations, the irrigation districts and the soil conservation district, and those engaged in agri-business have the greatest stake in policy formulation. It must be understood that while the market for small tracts is eminently smaller than the amount of land capable of such division, continued scat- tered divisions can effectively impair the agricultural estab- lishment almost as much as if all cropland were converted. Water The further development and protection of water resources will continue to be a paramount factor in the growth of Deschutes County. As a currently water short area, a variety of problems and conflicts are emerging which pose threats to the County's vital water resource and therefore to the -eco- nomic health of the region. Existing water supplies available for irrigation are already well developed, and engineering studies have indicated large supplies of water in underground aquifers at varying depths and locations. There are, however, several factors which create imbalances in the availability of water. Some factors, such as the amount of annual precipitation capable of storage, relate to natural phenomena, while other factors relate to the extent to which man's actions impede or improve conditions necessary for an adequate water supply on a year -around basis. The Deschutes River Basin serves as the source of almost all of the water available within the County. Irrigation diver- sions take the lion's share of annual surface water runoff. Substantial water is lost to underground basins within highly pervious sections of stream beds, with additional water loss due to evaporation and seepage in streams, canals, and water storage reservoirs. While supplies of water may be adequate for nearly all anticipated consumptive uses, the availability of water varies considerably because of losses and the eco- nomic costs of developing supplies. The history of water development in the Western States indi- cates that the most sophisticated efforts have developed in response to widespread and large-scale agricultural and metro- politan demand. Where demand has been great enough, the economic costs of water development and distribution have been overcome. In Deschutes County, and in other counties of Central Oregon, neither large-scale agricultural nor urban demands have existed. The County is only now emerging into a period where increased demands by all consumptive users -- agricultural, municipal, industrial, and domestic -- may combine to create the conditions of demand favorable to paying the costs of more sophisticated means of water development and distri- bution. The word "may" is a key word, since there are seve- ral forces at work which may compound the problem further before it is solved. One such force would be a decline in agricultural use at a rate faster than water is used for non-agricultural purposes. If the trend in agricultural land division discussed pre- viously continues, it is quite probable that urban or rural non-farm use will not for some time offset consumption de- mands for irrigation. Housing will not in itself provide the offsets and economic incentives needed to replace agri- cultural consumption. it will take industrial and other large urban users which in turn may create additional prob- le ms affecting water quality. Domestic use also imposes special problems, particularly where the underlying lava strata makes the provision of underground distribution sys- tems a difficult and expensive process. A second force concerns water quality and the costs of overcoming water quality problems in the future. The County does not yet face the extremely difficult and costly solutions to maintaining water quality which are likely to emerge if concern for water quality as affected by all users of water and disposers of waste water does not receive urgent atten- tion. The very economic growth and economic capacity of the County to develop water supplies is at stake in this question. One major source of water quality impairment is posed by sewage effluent from recreation subdivisions and high-intensity use recreation areas. Problems are already evident during peak periods of summer recreation activity. Many such prob- Iems are localized and of short duration, but they are cer- tain to expand with the anticipated increase in recreation activity over the years. Other known or potential sources of impairment include industrial and urban waste water disposal, and the washing of sediment into streams from grading and other actions which disturb the thin layer of soil and vege- tative cover in small watersheds. And there are others. The major point here is that water quality changes occur slowly and almost imperceptibly to the point where it is too late to reverse conditions except at great expense. If it is not now economical to achieve full development of water supplies in the County, it will be even less so if the under- ground water supply becomes polluted or if the domestic use of water from irrigation canals has to be curtailed or re- quire more extensive measures to restore purity. A third force which is almost certain to effect the costs of water development and distribution is the increasing influ- ence of the Federal government in the field of water quality control. If the State and local governments do not proceed rapidly to establish and enforce standards of quality within the river basins of the State, the Federal government will, under tough new laws, impose standards on its own. In either case, State or Federal, the imposition of water quality stan- dards will create additional costs to all consumptive users. 44 20 Water Policy Considerations: The full development and maintenance of high quality waters within.the County clearly is the most urgent policy consid- e ration affecting future development and economic growth of the County and the Central Oregon region. The importance of water transcends all other considerations because it is pervasive in its influence upon all other factors of growth. The urgency is to take steps which will ensure adequate supplies of high quality water for recreation, agriculture, Industrial expansion, and the needs of urban areas at least possible cost. The most serious impediment to achieving this objective would be the gradual but inexorable deter- ioration of water supplies.(7) The development of a long-range solution to the region's problems of water supply requires integrated development and management of all sources of water -- surface waters, ground water, and waste water. The task is regional in scope and insists upon the participation of all levels of government and private enterprise. There currently are many interests which have or should assume responsibility for one or.more aspects of the entire field of water man- agement and conservation. At the local level, there are (7) See the report entitled Liquid Waste Disposal in the Lava Terrane of Central Oregon April 1968, prepared by the Pacific Northwest Water Laboratory of the Fed- eral Water Pollution Control Administration for a detailed analysis on the extent of water quality impair- ment within the Deschutes River Basin. Generally, the report indicates that injection wells already offer a serious threat to the high quality deep ground waters of the Basin. the irrigation districts, the soil conservation district, the cities, the County, utilities, major industrial users of water, and those people involved in land development. The State has a clear-cut responsibility to assist regions in achieving full utilization and conservation of the water resource base. A number of Federal agencies are directly involved, particularly the Federal Water Pollution Control Agency, the Bureau of Reclamation, the Corps of Engineers, the Soil Conservation Service, and the Forest Service. This list is not exhaustive but serves to point out the complexity of interests and participants concerned and the need for a coordinated approach to water resource management. At the local level, it would appear that the most fruitful first steps lie in the direction of the creation of a County- wide water agency which gives proper representation to all local interests in water use and management. Such an agency would provide the forum for a comprehensive, systematic, and continuous examination of water management problems and oppor- tunities. It would bring together the broadest array of knowledge and understanding of local water conditions, the programs of individual agencies and opportunities for coor- dinated action. It would focus needed public attention on issues which will require local public action for their resolution; and it would permit a pooling of local resources to maximize returns from local efforts. The field of water management is so complex as to preclude further discussion of the roles of State and Federal agencies in this report. Local organization is, however, an essential first step, since it would ensure that all local interests and needs would be properly presented before State and Fed- eral agencies which have significant responsibilities for the management of water resources on a regional basis. In the last analysis, it must be recognized that water manage- ment requires the larger technical and financial resources which can only be provided at higher levels. This does not 2C in any way diminish the role of local agencies, but rather emphasizes the intergovernmental character of the water question and the importance of water management responsi- bilities at regional, State, and Federal levels. Three other matters of water policy warrant discussion here are: (1) problems of rural and urban fringe area water dis- tribution; (2) public accessibility to rivers as a scenic resource; and (3) potentials of the water resource for in- dustrial development. Problems of rural water distribution concern both the need to provide water to existing developments, and policies concerning water service in new recreation subdivisions. From the 1968 study of rural domestic water problems by the Deschutes County Long -Range Planning Conference, it is appar- ent that water stored for domestic use from irrigation canals is often contaminated or otherwise unfit for human consumption. Where water is hauled in, drinking water qual- ity is also a matter of speculation. Wells ranging from 125 to more than 600 feet in depth have been drilled by owners in many cases, but costs may run higher than $3,000 per well. The problems of rural and non-farm domestic water supply are compounded by the continued heavy reliance on irrigation districts to supply surface water for domestic use to new tracts. Delivery from canals and ditches is often unstable because of variations In seasonal flows. Several alternatives exist to overcome problems of supply to rural residents where small tracts and closely related non-farm parcels are involved: 1. Distribution by irrigation districts to central systems established for the purposes of treatment and distribution of water to users within a logical service area. 2. The formation of special water districts organized to contract for water from irrigation districts or to develop supplies from wells for distribution to land- owners. 3. Formation of a County -wide water district with powers to establish service areas, distribution systems, and zones of assessment to recover costs of construction and operation. 4. Formation of private or mutual systems owned by those served. 5. Formation of special assessment districts to contract with cities to serve developing urban fringe areas. 6. Direct connection to city systems providing extra- territorial service to urban fringe areas. Each of these alternatives may have to be utilized to solve problems in given areas. The following criteria are sug- gested as a basis for the selection of a given approach: Services to rural areas now supplied by irrigation districts should utilize the existing structure of the districts to meet expanding needs. Supplies from canals could be supplemented by service from standby wells integrated into the system. This approach would result in economies over other approaches where parcels served are closely related, and would avoid the proliferation of special taxing districts which lack the experience and financial capital to meet needs on an economical and efficient basis. 2. Services to rural areas and unincorporated communities not served by irrigation districts should be provided by public water districts in order to provide the structure, capital, operating, and expansion capabil- ity required to assure adequate service. Private X11 systems should be avoided except where there is a clear-cut non -speculative capability demonstrated, and where the alternative of public systems is not feasible. 3. Service to urban fringe areas of cities should be provided by the cities as an extra -territorial ser- vice; system expansion to existing developments should be provided by the city by agreement with an assessment district formed to represent users, with user charges established to recover costs of line extension and related facilities required to pro- vide service. Extension to new developments should be provided by the subdivider under agreement with the city responsible for the costs of extension .,past undeveloped properties and oversized lines. in either situation, user charges should provide a rea- sonable differential with those charged to city residents unless annexation is feasible. Connection to city systems should be mandatory wherever feasible. 4. The formation of special assessment districts to contract with cities should be used only where ser- vice to existing development is involved. The formation of a County -wide water district or County water department may be a preferred alter- native to the creation of separately created water districts to serve rural areas not served by irri- gation districts and to the creation of separate public assessment districts as the contracting agencies for city service to existing development in urban fringe areas not capable of annexation. This would prevent the proliferation of taxing dis- tricts, provide economies in central administration, and avoid gaps in service. Zones of assessment would be applied only to areas served. A disadvan- tage of this approach is that support of the admin- istrative functions of the district might have to be financed by a tax upon all property owners, regardless of their needs for service. As important as finding solutions to needs of existing devel- opments is the need to prevent further expansion and compli- cation of existing problems with regard to new development. In order to prevent conditions which will impair water qual- ity or require the unreasonable expense of water well development to serve individual parcels, the County's subdi- vision policies should discourage recreation, rural non-farm, and urban fringe area subdivisions where adequate supplies of water will not be available from a central system oper- ated by the appropriate alternative described above. Capa- bility of water development should be a condition of plat approval, with adequate assurance that water supply sources are not likely to be contaminated by disposal of sewage effluent. The use of drill holes for sewage effluent should, be prohibited through enforcement of either the State Sani- tary Code or a County ordinance requiring the use of drain fields or central systems for sewage disposal. It must be recognized, however, that central systems would be prohibi- tive except in urban areas. A final and exceedingly important consideration in this matter is the need for engineering analyses of the various problems and alternative solutions available for meeting domestic water supply needs. This was an important conclu- sion of the Deschutes County Long -Range Planning Conference. Such studies now are being sponsored by the County, taking advantage of the Federal grant program monies available through the Farmers Home Administration. The question of public access to rivers and streams is complicated by several factors concerning the extent of existing public ownership, the extent to which existing river frontage has been subdivided, the availability of water of sufficient flow, the extent to which sections of privately owned river frontage constitute scenic and recre- ation attractions, and the tools available for County action to preserve additional frontage for public use. 2% The question of public access applies primarily to the Deschutes River and its tributaries south of Bend where much of the river is bordered by private land. Many miles of prime river and stream frontage are already in public ownership. Most of this frontage is within the National Forest; some is owned by BLM in the Lapine area; and some has been acquired by the State for park purposes. Remaining frontage is in private ownership and has been subdivided heavily. Unfortunately, the layout of existing subdivisions has not taken advantage of design techniques for providing access to the prospective owners of all lots within a subdi- vision. Such access is denied except to those whose lots front directly upon the river. Common areas have not been provided for this purpose. in, consideration of the already extensive ownership of river frontage ,and the subdivision of much of the private land having river frontage, it is not clear and compelling that additional river frontage need be acquired for public use. That private frontage which remains unsubdivided is for the most part of limited recreation and scenic attraction as compared to prime frontage already in public ownership. A policy decision concerning the acquisition of additional access rests partly on the type of access desired. If a continuous lineal access is desired linking public lands through private ownership, it will require the acquisition of a strip in fee title or as an easement across private lands. Either approach would be costly, considering the miles of dual frontage involved. If on the other hand it is desired to provide only occasional points of access to the river, this objective could be achieved more easily through the acquisition of key lots in existing subdivisions which also front upon a public road. As a practical matter, because of the relative isolation of river frontage, such limited acquisition of property would have only limited benefit to the public -at -large and would be of primary bene- fit to the owners of nearby lots who do not now have access to the river within their subdivision. A third approach would be to ignore lands already subdivided but to require the dedication of either a lineal strip or an area of more confined limits in new subdivisions under the subdivision ordinance. Because of the uncertainties and complexities involved, the County should prepare a detailed water recreation master plan as recommended by the Deschutes County Long -Range Planning Conference before taking any final position on the matter of public access to river and stream frontage. This would be a wise course of action. However, the pace of subdivision activ- ity is so great that such study might become largely an aca- demic exercise if not undertaken in the near future. Only one course of action appears feasible in the absence of spe- cific analysis of all river frontage -- to include provisions in the subdivision ordinance which would assure that at least the owners of all lots within a subdivision would have a com- mon area on the river for access. Open space and access common to all owners would enhance the saleability and value of all lots for the subdivider as well as to enhance the recreational opportunities afforded the new owner. Potentials of the water resource for industrial development represent an important area of policy. Water has been termed previously as the key factor in Deschutes County's economic future. Certainly, it is a key to diversification in the forest industries of the County. The manufacture of lumber and plywood, which now dominate the County's primary wood use, are not limited by water problems. The prime consider- ation, however, rests almost entirely with the possibilities of developing pulp, paper, and other pulp -based products in Deschutes County and the region. On the assumption that adequate supplies of pulp wood will become available, the limiting factor will then be the avail- ability of plant sites with the required water for the manu- facturing process and disposal of the effluents after recovery of chemicals at costs which will enable competition with pulp and paper from other regions of the West. Two kinds of water policy are involved: water development and protection of water quality. 2q The water development question has been discussed previously. It need only be added here that the seasonality of water flow in rivers and streams of the County would make large investments in impoundments and flow regulations essential to maintain minimum flows at levels required for pulping operations. While process water requirements are fairly high, the consumptive use of water in pulp is low if the treatment of the effluents and the capacity of receiving waters to assimilate wastes permits discharge back into the water source after use. It is on this last point con- cerning water quality that the critical issues are involved. From the standpoint of the potential investor in pulp and paper facilities, a high degree of uncertainty is introduced in the prospective costs and even in the prospects for con- tinuing operation after construction. . The Air Resource Important to any discussion of environmental protection is the subject of air quality. The nature of air as a resource necessary for the support of life itself requires.that it receive proper attention in policies which concern future development within the County. The location of Deschutes County along the east slope of the Cascades places the County in an excellent position to avoid the conditions of atmospheric pollution which are so characteristic of inland river valleys in most states of the West. Unlike the conditions in such locations as the Central Valley of California and of the Willamette Valley in Oregon, regions east of the Cascades enjoy the more frequent mixing, cleansing and freshening of air brought about by winds off the mountains and the absence of tem- perature inversion layers which can effectively trap pollu- tants for months at a time. Central Oregon has indeed a consistently high quality of air which enhances the region as a place to live and recreate. Air Quality policy Considerations: Despite the presence of atmospheric conditions during seasons of the year which combine to maintain high quality air within Deschutes County, problems of localized air pollution are quite possible, although for short duration, as the result of increasing population and economic activity. It is also important to note that any pollution of the air ema- nating from Deschutes County is likely to be more noticeable in adjacent counties to the east rather than in Deschutes County because of the movement of air currents. The County is but a part of a larger region which constitutes one of several "airsheds" within the State. It is important then to consider air as a resource which should not be allowed to sustain contamination and pollution in any manner which would reduce the present high quality of the resource within Deschutes County and other counties within Central Oregon. To this end, policies of the County. should foster the continuation of refuse disposal by sanitary land -fill, discourage burning of materials which will add contaminants to the air {as distinct from particles which are non -contaminating in character, and discourage the addi- tion of contaminants into the air as the by-products of in- dustrial operations. Emphasis should be on the avoidance of introducing chemicals into the atmosphere which cause pollu- tion, irritation to the senses, danger to public health, reduction in visibility, and injury to vegetation and property. In addition, land use policies of the County should seek to avoid the location of industrial and agricultural operations which typically create localized conditions of odor, dust, and smoke unfavorable to urban development which lies down- wind from such operations. Beyond the measures discussed above, the County is limited in its actions to maintain air quality. Further actions would require a regional and state- wide approach to air quality control. TRANSPORTATION Major State Highways State highways within the County serve dual functions as important links in the intra -state and inter -state highway system and as the principal traffic arteries within Deschutes County. U.S. 97: U.S. 97 serves as Oregon's principal north -south highway east of the Cascades. As a multi -state facility, U.S. 97 tra- verses the heart of Central Oregon while serving California, Oregon, Washington, and British Columbia. Approximately 26% of all traffic on U.S. 97 within the County is generated by out-of-state passenger cars; trucking accounts for nearly 15%, with the remaining 59% generated by Oregon -based vehicles, largely local. For all its significance as a regional facil- ity, U.S. 97 plays its primary role in moving local traffic between the principal cities of the three -county region. Traffic is heaviest between Bend and Redmond and between Red- mond and Madras, with traffic north of Madras and south of Bend tapering off to only 20-30% of the volume between Bend - Redmond -Madras. The Bend -Redmond section of U.S. 97 is rapidly approaching two-lane capacity because of heavy traffic, and inadequacies in vertical alignment. With average daily traffic (ADT) along most sections of U.S. 97 increasing in keeping with the statewide average of 5.3% annually, volumes on the Bend - Redmond -Madras sections can be expected to reach levels requiring four -lane expressway status by 1980. Needs are further aggravated by the fact that traffic peaks during the five-month period from June through October, with volumes as much as 171% higher in July than the ADT for the year. Thus, expressway status would be well justified before 1980. As an interim measure, the useful life of the existing highway V could be extended through the elimination of vertical alignment sections and improved sight distance at curves. However, such measures should be weighed against the far greater benefits derived from achieving early expressway status. Unfortunately, the State currently does not have any plans for either major improvements along the existing alignment or relocation in its ten-year work program. U.S. 20 and U.S. 126: U.S. 20 and U.S. 126 are major east -west highways. The former links Central Oregon with the Willamette Valley at Albany and with Idaho at Boise; the latter links Central Oregon with the Willamette Valley at Eugene and with Idaho at Boise via U.S, 26 east of Prineville. Both highways utilize the San.tiam Pass over the Cascades west of Sisters. By comparison with U.S. 97, both U.S. 20 and U.S. 126 carry substantially lower volumes of local and out-of-state traffic within Deschutes County. With improvements, both U.S. 20 and U.S. 126 could serve as high-speed two-lane expressways adequate to handle traffic loads for many years to come. Traffic on U.S. 20 is heaviest in the Tumalo area west of Bend, decreasing as it approaches Sisters and Increasing again west of Sisters because of the added traf- fic generated by U.S. 126 at Sisters. Traffic along U.S. 20 five miles east of Bend is the lowest on any leg of the State Highway System in Deschutes County. This section is low as a carrier because of the sparse population in the eastern part of the County and the limited use of U.S. 20 by through traffic between Central Oregon and Idaho. The State has developed tentative plans for the realignment of U.S. 20 between Bend and Horse Ridge and between Plain- view and Sisters. These realignments would eliminate curves, shorten travel time and distance, and (in the latter case) provide a bypass of Sisters. However, neither project is included in the State's current ten-year work program. f The fourth State highway directly affecting Deschutes County is State Route 31. Route 31 intersects U.S. 97 south of Lapine, and provides an important inter -tie with U.S. 395 north of Lakeview. Since 395, like U.S. 20, has multi -state significance, it can be expected to carry increasing traffic loads and thereby increase the traffic on U.S. 97 within the County via State Route 31 as the result of recreation and tourism traffic generated in Southern California. Highway Planning Policy Considerations: The importance of the State highway system to Deschutes County contrasted with the low-level of improvements contemplated by the State in the next decade is cause for serious concern to the people of Deschutes County, and indeed to the people in the tri -county region of Central Ore- gon. The State's highway planning and construction program is committed by the use of fund allocation criteria to two elements of the Interstate Highway System which connects the State's major cities (Interstate 5) and Columbia River communities (Interstate 80 N). While such emphasis is understandable, it appears that an over -commitment is involved which places Central Oregon and other rural regions so low in priority as to effectively rule out major highway improvements for 20 years or more. The Bend -Redmond -Madras section of U.S. 97 is probably the longest section of high volume traffic highway in the state other than sections of the two highways in the Interstate System, and yet there are no major improvements scheduled within the next ten years. Highway traffic becomes the all-important mode of transpor- tation for the realization of economic benefits to be derived by tourism and the enhancement of economic interre- lationships and activity among major communities of the tri -county region. The State highways must be viewed as important tools in the further economic development of the region. if they are not realigned and improved to at least 91 two-lane expressway status, economic growth of the region will be adversely affected and time -distance -cost -safety benefits of high speed facilities will be denied residents of the region. Policies of the Comprehensive Plan should seek to advance the priorities accorded to highway construction by the State. More specifically, State highway proposals of the Plan should recognize the following criteria and needs for improvements to the State highways in Deschutes County: 1. The early need for reconstruction and realignment of U.S. 97 as an expressway between the Terrebonne area and the National Forest boundary south of Bend. 2. The importance of highways as carriers of local traf- fic between communities while permitting through traffic to by-pass communities. 3. Locations sensitive to investments and needs of segments of the existing business community which cater to highway travel. 4. Potentials for new investment in highway commercial and industrial activity. 5. Maintenance of residential neighborhoods and avoidance of alignments disruptive of urban patterns. 6. Permit the safe exchange and free-flow of traffic along and between different segments of the State highway system and major arterials of the County road system within the County. 7. The importance of highway transportation to recreation, tourism and the general economic development of the Central Oregon region. 821 SNERMAN i. OILLIAM L 1000 "� r MORROW CLACKAMAS 1950 W A S C O 590 �t` iN m 470 L (``/ 300 670 140 320 x, _ 1600 M A R 10 N ....... ...x 5 Nx»x M. 1800 � W H E L E 680 S. 8000 _-� 490 xnex.u. 390 J E F F E R S O N 030 540 600 ` —� o'•—_ –1 �) 00. ' 2200 `—I G RAN T L I N N S6�1950 205 6450 N 400 mYwY I 900. 130d 1400 2 x700 `50 4300 1000 0 � ° SENO 5T00 C R 0 0 K L A N E 2100 .»..».». L_l D E S C H U T E SJ H A R N E Y 1600 wu[ - _ -_- -- _ 330 �• 330 i 700 \\ 1400 L A K E DOUGLAS � 1400 2300 ( I KLAMATH TRI—COUNTY AREA—HIGHWAY TRAFFIC FLOWS NUMBERS SHOW AVERAGE DAILY TRAFFIC FOR ALL VEHICLES– 1963 1 State Secondary Hiqhways and the County Road Svstem State Secondary Highways: The County is served by six State Secondary Highways. They are: 1. The old Redmond -Bend Highway. 2. The Cline Falls Highway between Tumalo and Cline Falls. 3. The Tumalo-Deschutes Highway. 4. The Powell Butte Highway which serves as a diagonal cut-off of major State highways between Bend and Prineville. 5. The O'Neill Highway from U.S. 97 near Terrebonne to Prineville. 6. The Century Drive Highway which extends as a County highway (Cascade Lakes Highway) to Bachelor Butte. These highways carry average daily traffic volumes ranging from 400 to more than 700 cars per day. In terms of traffic volume, the approach to Bachelor Butte is most important, followed by Powell Butte, Redmond -Bend, O'Neill, Tumalo- Deschutes, and Cline Falls in descending order. All of these highways except the one providing access to Bachelor Butte serve primarily as inter -community connectors within areas of the County dominated by private land holdings. The County Road System: The F.A.S. (Federal Aid Secondary) numbered highways con- stitute the major components of the County road system. They function as farm -to -market roads, as a means of principal access to recreation areas, as County arterials serving the unincorporated communities of Tumalo and Terre - bone, and as County arterials serving developing urban fringe areas of Redmond, Sisters and Bend. Within incorporated cities, their counterparts are referred to as major arterials. Although several hundred miles of road are included in the F.A.S. system, they are concentrated in the Terrebone, Redmond, Tumalo and Bend areas of the County. The Cascade Lakes Highway is perhaps the most important exception. It joins with sections of Fall River Road and Burgess Road west of Lapine to form a large loop throughout the western and southwestern recreation areas of the County, providing access to major lakes and reservoirs and to upper reaches of the Deschutes River and its tributaries. Despite their importance, the network of F.A.S. highways tends to give a somewhat distorted view of the most impor- tant segments of the County road system. The mileage of F.A.S. roads has grown over the years to include some high- ways which are difficult to justify in terms of function and traffic warrants. Consequently, the system includes a mileage inventory which now makes it difficult for the County to properly channel funds or traffic with any sense of real priority. Many miles of road thus have little more function than that of serving adjacent property owners, and compete with more important roads in the F.A.S. system for the available Federal aid funds. This condition is certain to increase deficiencies on an annual basis, with limited funds spread too thin to accomplish meaningful improvements to the entire road system. A major contributing factor is that the County never has had a comprehensive plan as a basis for establishing priorities for road construction and maintenance. Current practices tend to result in too much emphasis in determining road priorities based on the submission of petitions from land- owners rather than on criteria which respect needs in re- lation to highway function and contribution to economic growth. 34 In addition to the County roads, there is a substantial Inventory of roads open to public use which are not owned and maintained by the County, and at least five categories of roads on Federal lands. The public usage roads are generally unimproved and serve to provide access to remote ranches and isolated pockets of private land. The various categories of Federal land roads comprise a vast network affording access to recreation areas as well as for meeting management needs of public .lands. This network is largely responsible for the ability of National Forest and BLM lands to accommodate higher numbers of recreation seekers. This is particularly true of the U.S. Forest Development Road category which increases annually in mileage as the result of contract provisions in the sale and logging of timber. Another important category of Federal land road involves the main recreation roads within the National Forest. Until recently, funds have been unavailable to permit pav- ing of these roads. The Forest Service now receives funds for paving, and although the amount fluctuates widely from year to year, it was possible to pave 40 miles in 1967. Priorities for completion by 1988 within Deschutes County include the following sections: Three Creek Lakes Highway from Sisters to the Cascade Lakes Highway; Cascade Lakes Highway from Wickiup Reservoir to State Route 58 near Crescent Lake; the Cascade Lakes Highway - Waldo Lake tie and the Cascade Lakes Highway -Benham Falls -Lava Butte Loop. This latter facility would have importance as a recreation route close to the Bend urban area. County Road System Planning Policy Considerations: The County is fortunate to receive a substantial annual flow of forest receipt funds in support of the County road construction and maintenance function. As important as these funds are, they still fall short of overcoming current road deficiences while meeting future needs. Aside from structural deficiencies, the greatest deficiency of the County road system is the lack of a classification system which distinguishes adequately between primary, secondary and minor road functions. Such a classification system should embrace the State Secondary highways because there is little or no difference in the functions performed by a State Secondary and a County Primary. Moreover, in view of the current status of state allocations, there is little possi- bility that State Secondaries will receive much State attention. The question of jurisdiction should not became a limiting factor when discussing County roads and State highways having identical functions. The following table and subsequent definitions proposes a coordinated city street and county road classification system which respects similarities in street and road functions which are the responsibility of city and county government. This classification will overcome the deficiencies cited above as well as provide a basis for developing joint city -county policies on structural standards to be applied within developing urban fringe areas of the cities. City County Major Arterial County Arterial (and State Secondary) Collector Street County Feeder Road Minor Street Minor Road (land access road) Major Arterials serve as the principal network for through traffic; they connect areas of major traffic generation within the city and important rural highways (County Arterials) entering the city; and they provide for the distribution and collection of traffic to, and from, collector and minor streets. County Arterials serve as the principal network for through traffic within the County below the level of the Major State Highway; they connect rural communities, provide access to recreation areas and serve as farm -to -market roads. tki Collector Streets provide principally for traffic movement between major arterials and minor streets and also provide direct access to abutting property. County Feeders provide principally for traffic movement between Major State highways, County Arterial highways and Minor Roads, and also provide direct access to abutting property. Minor Streets and Minor Roads serve the identical functions of providing direct access to abutting property. in some cases, Minor Roads also provide access to more isolated recreation areas (such as hunting lands.) As in the case of the State highways, the County road system should be viewed as an important tool of economic develop- ment. This objective is given further importance since the County road system offers the principal means of improving highway transportation in light of the low priority currently attached to improving local elements of the State Highway System. The following criteria should become the principal guidelines in designating a system of arterial and feeder roads on the Comprehensive Plan and in achieving the further improvement and development of the County road system: 1. Construction monies should be allocated primarily to the improvement and/or development of arterial and feeder roads which support and enhance existing major economic activities. 2. Arterial and feeder roads should be provided where necessary and desirable to improve circulation between segments of the State highways. 3. Improvements to arterial and feeder roads serving urban fringe areas of cities should support city -county policies on the most desirable patterns and timing of urban growth. In connection with 5. below, County road funds should be used to assist in completing important sections of the forest highway system, particularly where Federal allocations cannot be anticipated for many years. 5. Arterial and feeder roads should be improved where they provide important connections with elements of the Forest Highway System. 6. Arterial and feeder roads should provide access to remaining areas of significant private ownership which have economic importance for existing or potential recreation use on a large scale. 7. The County should participate with other Central Oregon counties to seek advancement in time tables for the reconstruction or relocation of sections of State highways which receive heavy traffic use. 8. Future rights-of-way for arterial and feeder roads should be protected to assure availability of the rights-of-way when needed. These criteria are not mutually exclusive, although their application may require the selection of one criterion over another in a given case. The important consideration here is that Minor County Roads should be de-emphasized in favor of those roads which now and in the future will provide the greatest overall economic and service benefit to the people of the County. Other planning policy considerations include, the selective acquisition of access rights to preserve County road function; the development of design standards for uniform application to roads having similar functions; the development of a road maintenance program which will assure reasonable maintenance of Minor County Roads in view of the emphasis placed on arterial and feeder roads by the criteria listed above; sensitivity to the scenic quality of the environment; and separation of traffic on County roads and private logging roads. The selective acquisition of access rights along County Arterials should be employed where necessary to assure safety and the protection of the traffic carrying capacity of County Arterials. The indescriminate development of access to private lands without regard to the number and spacing of such laterals effectively can destroy road func- tion while increasing hazards to the motoring public. Design standards should be uniformly applied to the three types of County roads constructed by the public as well as those constructed by the private developer for public use. In developing such standards, variable standards will be required within a given classification to respect such dif- ferences as topography, soil structure, extent of drainage and periods of use. Thus, while it would be logical to apply the same standards to minor roads in the Lapine area, different standards would be applied to minor roads serving developments in the Smith Rock area northeast of Terrebone. Similarly, standards in the urban fringe area of Bend and Redmond should reflect needs for city -county coordination because of the distinct eventuality of fringe area annexation. The road maintenance program would become the primary means of meeting the needs on existing minor roads. In addition, maintenance programming should seek to overcome minor struc- tural deficiencies on arterial and feeder roads. City - county agreements should be explored for the sharing of con- struction and maintenance responsibilities along roads of mutual concern and for the contracting of services where one jurisdiction could serve better the needs of the public. The outstanding _scenic quality of the environment traversed by much of the County road system and its economic importance insists on design standards which give careful attention to the techniques of highway alignment and construction and to the preservation of the "scenic corridor" along side of the highway as viewed by the motorist. Policies affecting the use of land along scenic roads and highways are not as criti- cal in this regard as are policies on setbacks, screening, the protection of natural physical features in the landscape, the reasonable control of outdoor advertising, and the appear- ance of structures. The enlightened policies of major logging interests in the County have resulted in a system of private roads for.the truck transport of logs. This policy has reduced substan- tially the costs of County road construction and maintenance which otherwise would have been required to accommodate extraordinarily heavy loads. However, conflicts occur where these private roads are intersected by public roads: Because of their high cost, separation structures such as the one along Century Drive southwest of Bend generally are not feasible even where a County Arterial road is involved. County road policy should seek,therefore, to minimize the number of new at -grade crossings required. Rail Transportation Railroad service to Deschutes County is freight -oriented and is considered excellent for this purpose. The principal considerations concerning rail transportation are those of ability to provide service to areas of industrial potential and the separation of rail and highway facilities where factors of congestion and safety are critical. Since the Oregon Trunk Railway follows an alignment close tc that of U.S. 97 and passes through the Bend and Redmond urban areas, the availability of industrial sites capable of both highway and rail service is virtually unlimited in relation to the current and anticipated demand for sites.($) (8) The Oregon Trunk {Railway involves joint trackage main- tained by The Great Northern,Union Pacific and Seattle, Portland and Spokane Railway Companies. 31 This flexibility is perhaps most notable between Bend and Redmond where the rail line parallels U.S. 97 by a depth east of the highway and a generally level terrain sufficient for almost any industry which does not require large quanti- ties of water for its operations. Highway grade separations are most notably deficient in Bend where existing structures have created roadways under the rail line which are inadequate for present and future traffic requirements on the three major streets involved (Greenwood Avenue, Franklin Avenue and Third Street). Rail Transportation Policy Considerations: The following policy considerations have importance to the development of physical design proposals of the Comprehensive Plan: 1. Aleviation of the congestion created by narrow under- passes of the railroad in Bend. Avoidance to the extent possible of the need for new separation structures in the eventual relocation of U.S. 97 as an expressway. The provision of new or improved existing at -grade crossings of the railroad at selected locations which will overcome the current isolation of most of the land lying along the east side of the railroad between Bend and Redmond. Air Transportati=on The County is exceptionally fortunate to have an airport of the size and capability of Roberts Field at Redmond. This facility is capable of handling commercial jets and all classes of general aviation aircraft. The Redmond airport clearly should be viewed as the regional airport serving all of Central Oregon. However, in order to realize the full potential of vastly increased air transporta- tion activity to serve the full range of needs for industry, commerce and recreation within the region, a regional approach to further development of airport facilities and related ser- vice activities will be required through the financial as well as booster participation of Deschutes, Jefferson and Crook Counties. Given the primary role of Roberts Field as a tri -county facility, general aviation fields at Prineville, Madras and Bend should be improved and new fields developed as appropri- ate at recreational centers such as Sun River to further advance the tourism potentials of the region. Air Transportation Planning Policy Considerations: The primary policy consideration concerns the question of financing and management responsibility not only for Roberts Field but also for public general aviation fields in the tri -county area. The Industrial Development Committee of the Deschutes County Long -Range Planning Conference, sup- ported by the City of Redmond, has wisely recommended creation of an airport authority to manage Roberts Field. Such an authority would be supported on a tri -county basis. Elevation to such status likely would increase FAA financing, result in the establishment of a tower, and assure the region of an important position in the air transportation future of the State. An intergovernmental approach to airport development and management which embraces public general aviation fields is also worthy of consideration. The Bend airport, for example, is in need of broader public support over time than reason- ably can be expected of a City the size of Bend. Such an approach might be sought once a Central Oregon airport authority is created to operate the Redmond airport because of the 38 important role which general aviation fields should play in support of the larger facility. At the very least, Deschutes County should consider its own position with the view of providing financial support to the improvement of general aviation facilities in the County and to the financial sup- port of the Redmond airport if a tri -county approach to management and development fails to materialize. All too often, the airport is viewed as a special benefit provided for the convenience of a few. It is,a popular mis- conception that general aviation does not pay its own way. To the contrary, while its contribution to the economy is little known and seldom appreciated by people not directly affected, general aviation contributes significantly where local conditions and attractions for economic development are also significant. This is particularly true of areas like Deschutes County which can point to recreation attrac- tions as a major part of its economic base.. Aviation facili- ties are money -generating assets, bringing dollars into the County to spend for business and recreation, enhancing in- dustrial development opportunities, and opening Central Oregon to increasing thousands of pilots on the West Coast who are looking more and more to generally good -weather locations for leisure time activities. URBAN DEVELOPMENT The County's initial comprehensive planning program terminated in 1966 and involved two phases:(9) Phase I was concluded in 1965 with the preparation of preliminary comprehensive development plans to meet the future development needs of the Cities of Bend, Redmond, and Sisters and the community of Lapine. The prelimi- nary plans for the four urban areas had been given only limited public review prior to program termination. Basic data provided included base maps for the County's urban areas, maps depicting existing land use, and maps showing traffic volumes, street conditions, the location of public facilities, and jurisdictional boundaries of special districts. Phase II was intended to culminate in the preparation of a Comprehensive Plan for the County as a whole. The major product of this phase was a report entitled "Background for Planning", published in May of 1966. While the report was limited in its analytical coverage of problems and needs of the County, information and data on the existing economy, population, resources and land ownership contained in the report proved valuable to the conduct of the County's current comprehensive planning program. The current program, culminating with the publication of this document, completes Phases i and II of the earlier program. This final section of Part ii provides a review of the devel- opment policies which were used as a basis for the preliminary plans developed under Phase I of the earlier program. An (9) Phase I (Project P-50) and Phase II (Project P-73) were conducted by the Bureau of Municipal Research of the University of Oregon and were financed in part by a grant from the Federal government under Section 701 of the Federal Housing Act. 34 evaluation of these policies was deemed necessary in order to: (1) determine whether the policies were valid for pur- poses of the current program; and (2) insure that policies underlying proposals of the four urban area plans and of the County -wide Comprehensive Pian would be complementary as they relate to problems and needs of mutual city -County concern. It is important to note that plans for individual urban areas cannot be developed without assurance that they relate to the overall framework of planning requirements of the County as a whole. Evaluation of the Development Policies Underlying Proposals of the Phase I Urban Area Plans Evaluation of the Phase I preliminary comprehensive develop- ment plans for .the urban areas of Bend, Redmond, Sisters and Lapine indicates the following policies which have significance to preparation of the County -wide Comprehensive Plan. Changes have been proposed where, in the judgment of the consultant, they appeared necessary in light of earlier studies completed under the program. 1. The plans indicate that new urban development should be accommodated as an extension of the existing urban areas; scattered urban development is to be discouraged. This policy requires clarification and elaboration with respect to the development of "planned communities" such as Sun River. We feel that planned communities which have their own complex of residential, commercial, and industrial areas; transportation facilities; utilities; and public facilities should not be discouraged. Each such planned community which may be proposed in the future should be judged on its own merits in relation to impact on surrounding areas, transpor- tation, resources and other policies and proposals of the Comprehensive Plan. 2. The predominant agricultural and open character of land between the communities of Bend Tumalo Sisters, Redmond, and Terrebonne is to be preserved. This policy requires clarification with respect to suburban development and to rural -residential development on parcels of more than 5 acres. As used here, the term "suburban" refers to residential development on parcels ranging from 1/2 - 5 acres in area which should be encouraged within the fringe of urban areas and discouraged in rural areas. "Rural -residential" would be appropriate within rural areas to accommodate the part-time farm. 3. Although each of the communities mentioned under 2. above has agricultural land in its fringe area, such land is not sufficiently important in terms of agri- cultural land quality and productivity to be preserved in determining areas for urban expansion. The relationship of urban areas to productive agricultural land is such that most urban expansion is likely to require conversion from agricultural use. This fact dramatizes further the importance of Policy Nos. 1 and 2 above if agriculture is to reach its maximum potential as an important economic base activity within the County. 4. The County and cities should develop agreement on policies and standards relating to building construc- tion, subdivision of land, land use regulations, highway construction, utility connections and other closely related matters concerning development within urban fringe areas. This policy relates to matters where city -county coordination on land development policy is required. Such coordination, as discussed under previous sections, is essential if reason- able order is to result from continued growth of urban fringe areas. 5. Industrial development is to be encouraged; existing industrial areas are to be preserved with additional land available for industrial development sufficient to accommodate the expansion needs of existing indus- tries as well as space for new industry. Er This policy requires clarification both as to type, location, and amount of area for industrial development. As to type and location, consideration should be given to encouraging those kinds of industries which can demonstrate by location and controlled methods of operation that they will not ad- versely affect existing urban development, agricultural production or the County's natural resources. Specific types of industry should not be discouraged categorically because of a history of obnoxious characteristics if they can meet the test of location and operation described above. The urban area plans showed substantial industrial areas in Bend and Redmond. Minor area was shown in Sisters to accom- modate existing industry. No industrial areas were shown for lapine. These proposals appear consistent with the character and prospects for industrial attraction within urban areas of the County. However, it is important to recognize that such policy should not preclude the location of industry outside of urban areas. From studies of the economy, it is quite apparent that greater diversification in employment is necessary to raise income levels of a significant percentage of the labor force. New industry and the increased economic activity which it would generate would provide more flexibility in the job market and would assist in providing greater employment stability. If industrial development is to be encouraged as a policy of the County plan, then the plan must reflect the diverse locational and spatial requirements of industry. First of all, industry today requires greater space than was the case even a decade ago --space to accommodate the new technology of operation as well as plant expansion. Such space is not always available within existing urban areas. Secondly, there must be offered a variety of site locations to reflect varying requirements for services and to avoid creating any monopoly of the industrial land market. Not every industry requires rail service, nor does every industry face problems of waste disposal or water supply to the extent of having to depend upon connection to central systems. Industry also wants the assurance of having good neighbors and the opportunity to be one itself. This means that some industries will want to be part of a growing com- munity of industries with sufficient space, flexibility of utility and transportation services developed exclusively for industry, and recognition of such requirements in planning and development policy. 6. The preliminary plans indicated that sufficient land should be reserved for commercial development to offer flexibility in meeting the expanding demands and opportunities for investment in recreation - oriented commercial activities. This policy is sound, but should be elaborated upon in the description of the County -wide plan to ensure appropriate differentiation of recreation -oriented commercial location requirements within an urban area (such as Third Street in Bend) as compared to requirements within the urban fringe and along major State highways and arterial County roads leading toward recreation areas of the County. in addition, the urban area plans did not identify the primary functions of various commercial areas, such as central commercial, highway commercial, neighborhood commercial and service commercial, with the exception that the designation of pri- mary commercial areas in the smaller communities recognizes that these areas must be multi -functional because of the limited population served. 7. The plans indicate that substantial weight should be given to existing land use patterns as a basis for proposals to accommodate future urbanrq owth. This policy is sound to the extent that existing development patterns are not viewed as an automatic commitment to their enlargement or to a continuation of their physical character where improvement is desirable. Such an automatic commitment would prevent improvement upon existing conditions where it is reasonable to gain such improvement gradually over time. An example would be to continue the strip mixed commercial 41 development of a major highway entrance to a community without concern for such objectives as maintaining highway function, traffic safety and enhancement of the community entrance. While it may be important to extend commercial development along highway entrances, controlled access, off-street parking, site landscaping, careful attention to signs, and good site planning become important factors in achieving such objectives. $. The plans indicate that, with the exception of the Redmond urban area, there is no need to differentiate between residential areas of varying density. This policy, if continued, makes it impossible to distinguish between areas of urban and suburban character and to plan for the provision of utilities, streets, and other services based upon the intensity of development and density of population to be served. Consideration should be given to at least showing an "urban" vs. "suburban", not only because of the need to scale services properly but also to encourage preser- vation of residential character; and to avoid mixtures of density to the point where it is wholly uneconomical to provide needed services. 9. Major city streets which either currently or in the future will have extended importance as arterial County roads in urban fringe areas should be shown as major streets outside of city limit boundaries to the limits of urban expansion proposed on the urban area plan. This is to avoid confusion and to encourage use of a comple- mentary city -county road classification system. 10. The urban area Plans indicated that State highways are to continue along their present alignments through urban areas. This policy requires clarification as it relates to those sections of State highway which will require eventual I relocation to adequately handle future traffic volume. It appears clear that to encourage continuation along present alignments without regard to highway function will not in itself result in continuation along existing alignments in support of commercial activities which cater to highway trade. A particularly important example is U.S. 97 from south of Bend to north of Terrebonne. The need for eventual relocation of the highway was recognized even in 1955 in a consulting re- port on major thoroughfares prepared for the City of Bend. A highway of the inter -state importance of U.S. 97 eventually will be reconstructed as a four -lane expressway for its en- tire length. Thus, it is important that the County develop policy now for the general alignment of important sections of the State highway system. Alternate alignments should be analyzed, with a preferred alignment(s) shown as a dashed line so that the comprehensive plan will reflect highway com- mercial and industrial land development opportunities created by highway realignment, the effect of alignment on community expansion, and how affected sections of the County road system should be planned in relation thereto. 11. The urban area plans were designed to meet the growth and development needs of the six communities to 1990. While the ultimate period of plan projection is reasonable for purposes of indicating long-range development needs, the absence of a medium -range view makes it extremely difficult in interpreting urban area plans. A time span of 20 years plus is too broad for purposes of indicating intermediate actions required. The County plan should emphasize medium - range growth requirements for urban areas to 1980, with a more subdued treatment of long-range requirements to 1990. This approach will also permit greater flexibility in modi- fying the plan over the years to reflect changing conditions, without serious affect on the validity of the medium -range proposals. Population Forecasts Underlying the Phase I Urban Area Plans Evaluation of the preliminary comprehensive development plans for the four urban areas indicates that they were designed to accommodate approximately the following urban populations by 1990: Bend Area . . . . . . . . . . . . 22,000 - 25,000 Redmond Area . . . I. . . . . . . 5,500 - 6,000 Sisters Area . . . . . . . . . . 900 - 1,100 Lap i ne Area . . . . . . . . . . . 600 - 800 29,000 32,900 Since urban expansion proposals of the urban area plans were not based,on projections of population and economic activity some modification is required for the Redmond area to reflect the current 1990 projection of approximately 7,400. PAR III DEVELOPMENT POLICIES UNDERLYING PROPOSALS OF THE COMPREHENSIVE PLAN As described.in Part 1, a major task of the Citizens Advisory Committee for Planning was to discuss the basic policy con- siderations presented in Part II and to recommend those pol- icies which were to guide the preparation of proposals of the Comprehensive Plan. This Part of the report therefore pre- sents the conclusions of the Committee which subsequently were followed in the development of proposals shown graphically on the Plan and which are described in Parts IV and V of this report. In reaching its conclusions, the Citizens Committee wished to make it clear that its conclusions represented a majority consensus of its members. This consensus was reaffirmed during the sketch plan phase of the program, when the Committee re- viewed preliminary proposals and made recommendations on those proposals to be included in this Comprehensive Plan report. POLICIES CONCERNING POPULATION AND ECONOMIC ACTIVITY 1. Population growth should be encouraged at a rate which is consistent with the ability of the County to absorb it without jeopardizing the natural ameniti.es and en- vironmental quality of the County. 2. The County's base of economic activity should be broadened by encouraging large-scale recreation oriented activities which can capitalize upon the growing importance of recreation as an economic activity. Such activity would not be encouraged at the expense of such existing basic activities as lumbering, forest products, manufacturing, and agriculture, but rather is intended to complement such basic industries. ,10 3. Deschutes County should assume a leadership role in the initiation and promotion of programs for indus- trial development within the tri -county area in recognition of the County's current dominance within the region in most areas of economic activity. Deschutes County would stand to benefit greatly by such leadership. 4. The County should seek to improve communications be- - tween the business community and the system of public education to define the existing requirements of business for skills and education and to develop pro- grams aimed at meeting these requirements; progress should be monitored and the people of the County informed of the return received by their investment in this effort. 5. Vocational education requirements should be assessed and vocational training programs established which will assure fulfillment of future manpower require- ments. Special attention should be given to increasing opportunities for the employment of young people during their pursuit of high school and college level education. 6. The County should form an Economic Development Commission to provide strong direction and leadership in all aspects of economic development. The Commis- sion would be officially constituted,' and would in- clude representation from the cities, the County, the educational system and private enterprise. The Commission would pursue the population -economic objectives (policies) of the Comprehensive Plan (outlined above) on a systematic basis, providing a total view of the interrelationships between programs and efforts to diversify and strengthen the. County's economic base, improve employment opportunities and improve the income position of the labor force. POLICIES CONCERNING RESOURCE MANAGEMENT AND CONSERVATION 1.. The County should encourage the retention of present National Forest land use policy which encourages private investment in recreation facilities (through lease and permit programs) on lands having signifi- cant potential for such development. Marginal pri- vate investments which would tend to limit economic return and public benefit would.be discouraged. 2. The County should seek a unified position among counties of central Oregon concerning further with- drawals of National Forest lands for wilderness and national park purposes in the,Oregon Cascades, Support for further withdrawals should be limited to those proposals where the economy of the forest Industry will not be adversely affected. 3. That the State be encouraged to provide additional State Parks and Recreation areas within Deschutes County to meet present and future demands. As a method of accomplishment, the State should be en- couraged to participate with the Forest Service under a shared management arrangement. Such a pro- cedure would maximize the recreation utility of Forest lands, make new and improved recreational facilities available to the public sooner, avoid the necessity for further fee acquisition of lands by the State and would further reduce pressures which would otherwise occur for increased action by the County in the development and operation of recrea- tional areas. A& 4. The County should adopt and apply the set of criteria listed in Part 11 of the report concerning its pro- gram of land exchange with the Bureau of Land Management. County lands should be classified prior to the sale or lease of any County lands through a system similar to that utilized by the Bureau of Land Management. 5. The County should recognize the full potential of lands capable of.recreational subdivision develop- ment through, the application of reasonable design and improvement standards which will: assure proper access to all lot owners, encourage good design in relation to natural and scenic amenities, avoid, adverse effects on adjacent private or public lands, relate lot area to physical requirements for adequate sewage disposal and water supply, assure lot owners .of reasonable access to natural waterways, and pre- vent impairment of water quality. b. The Comprehensive Plan should emphasize the impor- tance of and encourage the retention of.productive agricultural farm land and the business of farm operation. 7. Water service to rural areas and unincorporated communities not ,served by irrigation districts (or other properly constituted public agencies) should be provided by public water districts in order to provide the capital structure, operation and expansion capability required to assure adequate service. Private systems should be permitted where there is a clear-cut capability demonstrated, but the alternative of public systems should be explored. 8. Proof of capability for water development should be a condition of plat approval for subdivisions. 9, The Comprehensive Plan should support the retention of river frontage for public use at selected points and support concepts of subdivision development which will assure that adequate river access will be available to the owners of all lots in subdivisions located along rivers even though all lots may not front directly on a river. 10. Industries which require water for processing should be encourag"s long as industrial operations. are designed --to assure that the quality of receiving waters (surface or ground waters) will not be impaired. i1. The Plan should seek to preserve air quality at cur- rent levels, and encourage only those industries which will not impair air quality. POLICIES CONCERNING URBAN DEVELOPMENT 1. With the exception of proposals for "planned communi- ties", new urban development should be accommodated as an extension of existing urban areas; scattered urban development should be discouraged. Proposals for planned communities should be judged on their own merits in relation to their impact on surrounding areas, transportation, and resources and to policies and proposals of the Comprehensive Pian. The predominant agricultural and open character of land between the cities and the unincorporated commun- ities of the County should be preserved. "Suburban residential" development on parcels ranging from one- half acre to five acres in area should be encouraged within the fringe of urban areas and discouraged in rural areas. "Rural residential" development on parcels exceeding five acres in area would be appropri- ate generally within rural areas to accommodate the part-time farm. 3. Agricultural land quality and productivity should not be considered as a prime determinant in the development of proposals for the expansion of existing urban areas. 4. The cities and the County should develop.coordinated policies concerning the development of land within urban fringe areas. 5. Industrial development is to be encouraged and the capability for expanding existing industrial areas is to preserved, in accordance with the qualifications as to type, location and amount of area required for industrial development as provided under policy consideration No., 5 in the section on Urban Develop- ment in Part it of this report. 6. Land should be reserved for commercial development in central urban locations, in urban fringe areas and along state highways and County arterial roads to offer flexibility in meeting the expanding demands and opportunities for Investment in recreation - oriented commercial activities; the primary functions of commercial areas should be identified. 7. Substantial weight should be given to existing land use patterns as a basis for urban growth proposals where the expansion of existing patterns is logical and reasonable and where it would not result in the extension of existing incompatible land use conditions or become a barrier to the improvement of existing conditions over time. 8. The plans for urban areas should differentiate be- tween residential areas of different density to make it possible to distinguish between areas of urban and suburban character and to plan economically for the provision of utilities, streets and other essen- tial public services. POLICIES CONCERNING TRANSPORTATION 3. The County road construction program should concen- trate on County Arterial and County Feeder Roads, .1. The County should join with neighboring counties in with improvements to minor roads made from mainten- developing a coordinated approach to the presenta- ance.rather .than construction monies. The construc- tion of planning and construction priorities to the tion of new minor roads by the County should be 'State for achieving needed improvements to elements avoided. of the State Highway System, 4. The County should not assume any responsibility for 2. The following criteria should be recognized and making improvements to State Secondary Highways. applied as appropriate in developing the Comprehen- sive Plan:. The County and cities should adopt a coordinated city -County road classification system as described a. The need for realignment of major sections of under the section on Transportation in Part it of U.S. Highway 97 in the Lapine area and between this report, including the criteria listed as the the National Forest boundary south of Bend and principal guidelines for designating a system of the Deschutes —Jefferson County line north of arterial and feeder roads and for improving.and Terrebonne; the relocation of major sections developing further the County Road system. of U.S. Highway 20 in the Bend and Sisters areas. 6. The County should develop a program of selective b.,, Sensitivity to the functions of highways for acquisition of access rights along high traffic moving traffic between local communities. volume sections of the Arterial road system; future rights-of-way for Arterial and Feeder Roads should c. Highway locations which are sensitive to the be protected to assure avallabiIlity when needed. investments and needs of those segments of the existing business community which cater 7. Standards of right-of-way width, design and construc- to highway travel. tion of roads within urban areas should be coordinated d. Potentials for new investment in highway com- and applieduniformly by the County and each city. mercial.and industrial activity. 8. The County should develop a joint program with the e. Maintenance of residential neighborhoods and cities for Arterial and Feeder Road construction avoidance of alignments disruptive of urban which would involve agreements on priorities, sharing patterns. of construction and maintenance responsibilities f. Provide for the safe exchange and free-flow where commonjurisdiction is involved and contracts of traffic along and between different segments for either city or County service. of the State Highway and County Road systems. 9. The County should undertake a study to determine g. Recognition of the importance of highway trans- the most economical and efficient approach to road portation to recreation, tourism, and the construction. The objective would be to determine general economic development of the central when construction can best be handled by competitive Oregon region. bidding as compared to use of County equipment and personnel. 16 10. Concern for scenic quality along State Highways and County Roads should be a matter of County policy In. the design, placement and construction of roads and in the development of private uses along roads in scenic areas. Policies concerning private development would assure that building tine setbacks, screening and landscaping, protection of natural features, outdoor advertising and the appearance of on -premise signs and the appearance of structures will be given reasonable consideration. 11. The County should pursue a regional approach to airport planning with other central Oregon counties, including the designation of an airport as the com- mercial facility serving central Oregon and the inclu- sion of other public general aviation airports in a regional approach to development and management. 12. The County should provide financial support to the development and management of public general aviation airports in Deschutes County. Vr �^ ,.: ..., ,; :a;,;z. s {x :. s xs � a «�{ ,- �;� {. '•5s 5 a 'r e .v � roNa�r.Ort' ra'P.� > ,�,s+#: `a�«.,k ;�,:. 3x�'amx"x � r �;c, � �,�$'.4�'�+a"?� i -s g,.�a'�,t :,"• r t ,. 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This part of the report describes the proposals of the Com- prehensive Plan on a County -wide basis. It is important to note, however, that proposals are shown graphically on a multi -colored. Plan design entitled "Comprehensive Plan to 1990 - Deschutes County, Oregon" which is included in the packet for this report. The packet also includes black and white plan designs for the four major urban centers of the County. This report and the accompanying plan designs to- gether comprise the Comprehensive Plan for Deschutes County. The size of the plan designs for the County and four urban centers required.that they be folded separately as part of the packet. This also facilitates viewing of the plan designs while using the report. Proposals of the Comprehensive Plan reflect the projections of population and economic activity and the statements of comprehensive planning policy described in Partlll of this report. Plans for the three cities in the County have been linked and integrated by a highway transportation network which together constitute the major urban land use and trans- portation elements of the Comprehensive Plan. The planned communities of Sun River and Black Butte Ranch, the recreation service community of Lapine, and the rural -service centers of Terrebonne,Tumalo, Deschutes Junction, Alfalfa and Brothers comprise the remaining urban land use elements of the Compre- hensive Plan. "0 Rural -resource elements of the Plan include agriculture, private forest management, parks and recreation areas, recre- ation areas, recreation -residential development and multiple use management of large scale public and private land areas of the County. Public lands include those managed by the Forest Service, Bureau of Land Management and the County. URBAN LAND USE Maior Urban Elements -- The Cities and Planned Communities The anticipated urban growth of the cities of Bend, Redmond and Sisters and of the planned communities of Sun River and Black Butte Ranch is shown on the multi -colored plan design entitled "Comprehensive Plan to 1990 - Deschutes County, Oregon". Residential, commercial and industrial areas, and major transportation facilities are shown as to general location, scale and integration. Both the scale and location of urban development are signifi- cant, since urban development is confined to the generally narrow corridor of private land which traverses the west - central portion of the County between Jefferson and Klamath Counties. Proposals of the Plan for the Bend, Redmond and Sisters areas are generalized on the multi -colored plan design, but they are in more detail on the black and white plan designs which have been prepared for each urban area and which are described in Part V of this. report. Therefore, the more detailed plans for Bend, Redmond and -Sisters take precedence over the generalized urban area proposals on the multi -colored County -wide plan design as guides for develop- ment in these urban areas. Details of the large 5,500 acre planned community of Sun River are not included in this description because the master development plan for Sun River likely will be modified further as subsequent phases of development are completed. Elasticity in phase development has proven to be an important factor in the development of Sun River. But while changes have been made from the original master development plan, strict adherance to the overall concepts of planned community development has been maintained. Similarly, only the outline of the Black Butte Ranch development is shown on the plan design. It should be noted that Sun River is being developed as a large-scale urban complex, and that the Comprehensive Plan recognizes the future role of Sun River as one of pro- viding -the full range of residential, commercial, industrial, recreation -open space, transportation and public facilities required in support of a new urban center within the County. Lapine -- A Recreation Service Center The Comprehensive Plan designates the community of Lapine as a recreation service center in recognition of the community's changing primary role from one of support of ranching and timber operations in the upper Deschutes River area to one of support of the rapidly -growing recreation industry developing in the area. Proposals for the Lapine area are shown on the black and white plan design entitled "Comprehensive Plan to 1990 -- Lapine Area" and are described in Part V of the report They take precedence over proposals shown on the multi -colored plan design as they relate to the Lapine community and adjacent lands. Proposals shown on the multi -colored plan design for the County as a whole should be referred to in relating pro- posals for the Lapine Area to surrounding private and public lands within the southeastern part of the County. Rural Service Centers The communities of Tumalo, Terrebonne, Deschutes Junction, Alfalfa and Brothers are shown on the Plan as rural service /,M centers in recognition of their primary functions of service to surrounding farm areas. Smaller centers, such as Cline Falls,ae not shown because of their small scale. it is anticipated that the economic forces which are responsible for their existence today will, with little change, remain the primary cause for their continued existence. At the present time, little basis can be found to anticipate additional population and urban growth of these rural service centers and therefore to warrant the immediate preparation of plans for its accommodation. The principal planning task is to seek and develop ways and means to overcome existing problems within these centers in order to provide the best possible environment for their residents. But while detailed plans for these communities may not be warranted at this time, it should be recognized that the relationship of Tumalo and Terrebonneto the, larger urban communities of Bend and Redmond may increase their attractiveness as areas of permanent resi- dential development. Existing problems of the two larger rural service centers largely concern inadequate public facilities and services and incompatible land use arrangements. Their solution will re- quire a sensitive approach by County government and will not be possible without the organized interest of local residents. Through its continuing planning program, the County should develop plans for these and the other rural service centers which will be in scale with current problems and limitations on economic and physical growth, while retaining flexibility to accommodate additional permanent residential development which may be generated by employment opportunities in the cities. TRANSPORTATION State Highways Freeways or expressways on state highways form the spine of the circulation system proposed by the Plan. The Plan M proposes expressway treatment (limited access) for U. S. Highway 97, U. S. 20, U. S. 126 through rural areas of the County, and freeway treatment of these highways through urban areas of the County. Substantial relocation of U.S. 97 is proposed from the National Forest boundary south of Bend to the Jefferson County line north of Terrebonne. However, since relocation of U.S. 97 is not anticipated within the next ten years, the Plan recognizes the importance of the existing alignment and proposes its full development as an expressway before by-pass sections are constructed. Other relocation proposals involve U.S. 20 from Horse Ridge to Bend, a U.S. 20 by-pass of Bend, utilizing a portion of the U.S. 97 by-pass, a U.S. 20 by-pass of Sisters, and a U.S. 97 by-pass of Lapine. State highways proposed for two-lane expressway treatment in- clude State Route 242, State Route 31, the O'Neill Highway, the Old Redmond -Bend Highway, Powell -Butte Highway, Tumalo- Deschutes Highway, and Century Drive from Bend to the National Forest boundary. With the -exception of State Routes 242 and 31, these state highways are shown on the multi -colored plan design as County Arter"ials because of their function. County Arterials County Arterials provide for the movement of people and goods between the major urban areas, rural service centers and areas of agricultural production and employment. They also link urban and rural areas with major recreation areas, public facilities of area -wide importance and important highways in adjacent counties. Limited access treatment is proposed for all County Arterials outside of urban areas where the high speed movement of traffic is critical to their function. Where County Arterials extend into or through incorporated areas of the cities of Bend, Redmond or Sisters, they are noted on the plan designs for these urban areas as City Majors. County Arterials which lie primarily within the boundaries of the Deschutes National Forest and which are proposed as primary rw means ofaccess to recreation areas within the Forest are: Three Creek Lake Highway (south of Sisters) Cascade Lakes -Century Drive Benham Falls Highway (south of Bend) New Waldo Lake Road River Road -South Century Drive Pringle Falls -Burgess Road East Deschutes Road (between Cascade Lakes Highway and Pringle Falls Road) Upper Deschutes Road (from U.S. 97 to Sun River) County Arterials which link urban areas, rural service centers and areas of agricultural production and employment are: Richard Road (southeast of Bend) Walker Road (between Bend and Alfalfa) Powell Butte Highway Butler Market Road (north Bend) Shevlln Park Road (west from Bend to Shevtin Park) Redmond -Bend Highway Tumalo-Deschutes Highway O'Neill Highway Other County Arterials lie within the Bend, Redmond and Sisters urban areas and are shown on the plan designs for these urban areas and described in Part V.. County Feeder Roads County Feeder Roads which lie within the boundaries of the Deschutes National Forest and which are proposed as secondary means of access to recreation areas within the Forest and to adjacent private land areas are: Sundown Road -Camp Polk Road (north of Sisters) Skyliners Road (west of Bend) Waldo Lake Road Cultus Lake Road Upper Deschutes Road (from Sun River to Cascade Lakes Highway) Spring River Road East Crane Prairie Road Twin Lakes Road Wickiup Road Masten Road East Deschutes Road (from Pringle Falls Road to South Century Drive, and through the Lapine State Recreation Area) Pine Drive -River Road (from Lapine to Sun River) Paulina-East Lake Highway Lava Cast Forest Road Arnold Caves Road County Feeder Roads which provide access to other recreation areas or to lands in adjacent counties are: Camp Creek Road (north of Brothers) Crooked River Highway (eastern county, north from U.S. 20) Willard Road (east from Alfalfa) Johnson Marker Road (north from Alfalfa) Smith Rock Market Road (east from Terrebonne) County Feeder Roads which provide secondary access to agri- cultural areas are: Shevlin Park Road (north from Shevlin Park) Tumalo-Reservoir Road Cline Falls Highway Morril Road (east from Deschutes Junction) Cloverdale Road (between U.S. 20 and U.S. 126) Lower Bridge Road Northwest Market Road All other County Feeder Roads lie within the Bend, Redmond, Sisters and Lapine urban areas and are shown on the plan designs for these areas and described in Part V. 6' The most significant proposals for County Arterial and County Feeder road development relate to the provision of new or improved access to recreation areas within the National Forest. The Three Creek Lake Highway would permit more direct access to higher elevation areas of the Forest in the vicinity of Bachelor Butte; the Benham Falls Highway, between Century Drive and Lava Butte at U.S. 97, would be an all- weather recreation loop providing access to the spectacular Benham Falls section of the Deschutes River; the new Waldo Lake Road, which essentially will be an extension of River Road, would permit direct access from within Deschutes County to the significant recreation potentials of the Waldo Lake special interest zone within Lake .County; all other routes are designed primarily for access to existing and planned recreation occupancy zones of the National Forest. Airports Five airports within the County, located at Redmond, Sisters, Bend, Sun River, and Lapine, are included in the Comprehensive Plan, The new. Sun River air -strip was located initially as part of the Sun River community design and therefore is assured protection from encroachment by incompatible land use. In the case of the other four airports, however, pro- tection from such encroachment will be necessary to assure continued use of the air facilities. Additional private and semi -private facilities are likely to develop in various portions of the County, particularly in areas of recreation and recreation -residential activity.. In such event, it is proposed that they be located careful.ly with respect to surrounding lands and flight patterns of existing airports in the vicinity. RURAL -RESOURCE USE Agriculture The intent of agricultural land use proposals of the Plan is to preserve and enhance the County's agricultural character and economic base, conserve areas of high quality soils and production, and aid in achieving orderly urban expansion. Two classes of agricultural land are indicated on the Plan. Intensive agriculture is shown for areas which are now under irrigation or are capable of being irrigated and where Class and Class II soils are involved. Extensive agriculture is shown for those areas of the County where the primary agri- cultural activity involves grazing for sheep and beef cattle production. It is proposed that recreation subdivisions be discouraged within both the intensive and extensive agri- cultural land areas. Areas shown for extensive agricultural use are also areas where a considerable acreage of BLM and County -owned lands are involved, creating a scattered pattern of public and private ownership. Consequently, multiple use management is also proposed for these areas. To a much lesser extent, some areas shown for intensive agricultural also involve BLM and County -owned lands. it is proposed that public lands having capability for such intensive agricultural activities as field crop production, dairies and poultry production be classified for such use and made available for private purchase. In the case of BLM lands, this would require exchange agreements with the County, with the County then making the land available for private use. It should be noted, however, that public land laws may be revised within a few years to permit the direct sale of BLM lands which may be classified as having their highest and best use for intensive agricultural production. Private Forest Management Three major areas of private land holdings are designated on the Plan for private forest management. In each case, the 1� lands are currently managed for timber production. However, It is recognized that the utility of some of these private lands for timber production may become of secondary impor- tance as compared to the management of the lands for recre- ation and recreation -residential development. The large consolidated holdings west of Lapine and in the area west of Bend and south of Sisters may also have potential for the development of new communities such as Sun River. The Plan recognizes this potential recreation -residential and planned community use even though not specifically designated. Parks and Recreation Areas Parks and recreation areas having County -wide significance are indicated on the multi -colored plan design by a pine tree symbol. Only existing park and recreation areas are shown, including Lapine State Recreation Area, Lava Butte State Park, Shevlin Park, Tumalo State Park, Cline Falls State Park, and Smith Rock State Park. The special recre- ation potential of areas along the Deschutes River and its tributaries is recognized under the description of the Landscape Management Zone included later in this Part of the report. It should be noted that although not specifically designated on the Plan design, lands along the Deschutes River from Bend to the Jefferson County line have considerable potential for special recreation activity related to the river environment. it is anticipated and encouraged that select sites be acquired at intervals by the State and/or County to ensure that public access to the river will be - available. Private endeavor is a most important force in outdoor recrea- tion, involving individual initiative, many kinds of voluntary groups, and commercial enterprise. The Plan does not propose therefore that the total burden of recreation demand be a government responsibility. The total "recreation gap" will never be closed without private effort and provision of recrea- tion facilities. Such provision is encouraged by the Plan to further broaden the base of recreation opportunity within the County and to permit the greatest possible positive economic benefit from the recreation dollar. Local government should: (1) stimulate diversified commercial recreation in- vestments on private lands and waters; (2) promote greater public recreation use of private lands and waters; (3) support the efforts of charitable, service and civic organizations to acquire and conserve outdoor recreation sites which serve public needs; (4) encourage and stimulate donations from pri- vate individuals and groups; and (5) permit private enterprise to play an important role in partnership with government through a concession system of private construction and owner- ship (or lease) of facilities which are in scale with and which complement recreation space and facilities. Recreation -Residential Development Because of the limited acreage of private land in Deschutes County, and the economic potential of subdividing land for recreation use, the Plan proposes substantial areas within southern, central, and northern portions of the County as areas suitable for encouraging recreation -residential development. Generally speaking, private lands which are considered suitable for recreation -residential development are those lands which are located close to or within areas of significant recreation attraction, where methods and techniques of water supply and sewage disposal can be utilized without degradation of surface and underground water supplies, where access via highways and roads is now or reasonably can be made available, and where recreation -residential development will not conflict with - other proposals of the Plan which reserve lands for agricul- ture and other resource management purposes. The most easily identifiable areas which meet these criteria are private lands within the upper Deschutes River Basin south of Sun River, and lands west and northwest of Bend and in the vicinity of Sisters. Other areas within the County which may be suitable for recreation -residential development include lands designated 10 for Private Forest Management. It should be noted, however, that many parcels of land suitable for recreation -residential development lie within the fragmented pattern of BLM and County -owned lands and therefore must be considered in re- lationship to such public lands during the process of sub- division review. FOREST MANAGEMENT ZONES The Pian recognizes the essential requirements for maximizing the utility of National Forest lands under the principle of multiple use management, including timber production on a sustained yield basis, fish and game management, grazing, watershed protection, the preservation of wilderness areas, the protection of scenic quality, and broadly based oppor- tunities for outdoor recreation. In December of 1968, the Pacific Northwest Region of the National Forest Service published the management guidelines which are and will be used for the management of the Deschutes National Forest as well as other national forest within the Oregon Cascades. Six zones of special use or activity are shown for the Deschutes National Forest providing the manage- ment direction and coordination policy for wilderness and primary recreation zones. They are: recreation occupancy zone, wilderness, landscape management zone, Alpine zones, special interest zone and multiple use management zone. These special management zones are shown on the Plan design and are described below. Recreation Occupancy Zone A Recreation Occupancy Zone has the same meaning as a site for recreation development which is either suitable for future use or is already developed for a specific recreation use or combination of uses. Typical development includes campgrounds, picnic facilities, winter sports, organization camps, resorts and recreation residences. This zone has particular signifi- cance for Deschutes County in that it identifies the areas where intensive recreation activity within the National Forest is to be encouraged, and also indicates the extent to which commercial recreation activities may be encouraged within the Forest. More than 50 separate recreation occupancy zones are shown on the Plan, ranging from individual campgrounds to large existing and planned recreation complexes. The majority of development sites are located adjacent to major lakes and reservoirs within the Forest with most of the remainder located along the Deschutes River. Proposals of the Plan for the location of County Arterial and County Feeder roads within the National Forest relate directly to areas proposed for recreation occupancy. It should be noted that recreation occupancy for ,general public use will be given preference over exclusive occupancy for individual use. Areas which have particular potential and significance for commercial recreation activities such as resorts will be subject to specific con- trols and requirements to assure preservation or enhancement of the natural environment characteristics of a site while accommodating the public. Wilderness Zone Two contiguous wilderness areas are shown along the western border of the County. The Three Sisters Wilderness Area is the largest within Deschutes County, but represents less than half of the entire Three Sisters Wilderness Area. A small portion of the Mount Washington Wilderness Area is also in- cluded on the Plan, with the remainder located in Lane and Linn Counties. These wilderness areas are to be administered "... to preserve and restore the wilderness resource including the opportunity for solitude, physical and mental challenge, inspiration, distinctive environment and wilderness characteristics of the lands." The wilderness areas will be managed for "...primitive �� recreation, scenic, scientific, educational, conservation, and historical values and opportunities to the extent con- sistent with the preservation and restoration of the wilder- ness resource of the land." The primary management objectives are: (1) to allow free natural ecological succession;, (2) to allow human use to the extent possible consistent with the maintenance of primitive conditions; and (3) main- tain the dominance of wilderness values in resolving con- flicts in resource use to the extent not limited by the Wilderness Act or subsequent legislation. Landscape Management Zone The Landscape Management Zone is intended primarily for the preservation of areas of outstanding scenic quality as viewed from the principal highways providing access to recreation areas within the Forest and from Recreation Occupancy Zones, lakes and streams. Substantial acreage within the National Forest has been designated within the Landscape Management Zone. Areas within the zone vary in size from narrow bands along highways, emphasizing the foreground or near -view area adjacent to the highway for the observation of details of the landscape, to large areas in the background or distant -view which is generally of massive scale and which provides an attractive backdrop. Areas in the National Forest designated as Landscape Management Zones are too numerous to describe separately. The width and boundaries of the zone should be considered schematic, al- though they are based on more detailed boundaries shown on multiple use pians for the Forest. The large areas and sub- stantial mileage of roads which have been included in the Landscape Management Zone indicate the importance of areas of outstanding scenic quality viewed from the highway by the forest user to the recreation economy of the County. For, it is the scenic quality of the National Forest which combines with specific recreation attractions to create the high levels of recreation demand and use within the County. In addition to those Landscape Management Zones shown in the Forest Service Management Plan, the zones have been extended along all highways which pass through private land areas leading to Forest recreation areas. These extensions will provide continuity between adjacent public and private land areas, and will assure coordination between the County and the National Forest Service in maintaining the integrity of the Landscape Management Zones under the jurisdiction of the Forst Service. It is proposed that the County work cooperatively with the Office of the local Forest Supervisor to determine the more specific boundaries of the zones to be applied along highways leading through private land areas within the National Forest boundary, and that reasonable controls be developed to assure compatibility of private development with the objectives of the Landscape Management Zone. In keeping with the policies underlying the Compre- hensive Plan, landscape Management Zones have also been extended along limited sections of the State and County Highway System outside of the National Forest boundary. A further and unique application of the Landscape Management Zone has been made to areas along the Deschutes River and its tributaries (Fall River, Spring River and the Little Deschutes River) in recognition of the special and sensitive qualities of the river environment within the National Forest and ad- jacent private, BLM and County -owned lands. Management re- quirements along the river demand that the river and adjacent marsh, meadow or forest lands be maintained in their natural state, without any disturbance or with a minimum disturbance of the landscape, depending on the specific character of the area involved. A particularly sensitive type of area is the mar§h and meadowland which borders the Little Deschutes River. These areas are vital as habitats for fish and wildlife and are irreplaceable if damaged. The ecology of these areas is so sensitive that even modest damage, if not treated rapidly, can start a chain reaction which in time will result in con- siderable loss of the surrounding natural landscape. And. 10 what makes the urgency so great for developing cooperative management standards and programs between the County, the Forest Service and the Bureau of Land Management is the fact that much of the marsh and meadow lands are held in private ownership and subject to recreation -residential type develop- ment. The Plan therefore proposes that management controls be developed which can be applied during the subdivision review and construction process to avoid degradation of the river environment. Alpine Zone The Alpine Zone involves areas in upper elevations and which are not already Included in the Wilderness, Special interest or Recreation Occupancy Zones. Generally speaking, the Alpine Zone contains high elevation lakes, open alpine meadows, glaciers, geologic features and outstanding scenery in abundance. The management objective of this zone is to main- tain or enhance opportunities for "... both conventional out- door recreation and wilderness experience with minimum modification of the landscape to maintain a natural, scenic appearance," Because of their Importance in recreation pur- suits, fish and wildlife values are to be emphasized. Four Alpine areas have been designated on the Plan. The largest is located at Bachelor Butte and extends south of Mount Bachelor for approximately 6 miles in a narrow band averaging one mile in width. The second largest area is lo- cated along the south and east slope of Broken Top Mountain adjacent to the Three Sisters Wilderness Area boundary. Two smaller areas are located at the County line near Charlton Lake and Maiden Peak. Because of the sensitive character of the landscape at high elevations, management controls will be applied to avoid over -intensive recreation use likely to cause degradation of the landscape, while permitting and encouraging specialized recreation activity and facilities to give the public and opportunity to enjoy high mountain scenery and activities. Special Interest Zone The Special Interest Zone involves areas having unusual recreation values deserving preservation in a substantially natural condition. Within Deschutes County, five areas have been designated involving special geological, botanical and recreation interest. The broad management objective of the Special Interest Zone is to make available unusual or special values for public study, use, and enjoyment. Special Interest Zones shown on the Plan are: (1) Hosmer Lake, involving 50 acres and a botanical special interest; (2) Lava Butte, in- volving nearly 9,000 acres having a geological special interest; (3) Lava Cast Forest, involving 5,600 acres having a geological special interest; (4) Newberry Crater, involving more than 17,000 acres having a geological special interest; (5) Waldo Lake, involving over 32,000 acres having a recreation special interest; and (6) Lavacicle Cave involving 80 acres having a geological interest. Only a small portion of the Waldo Lake special interest area lies within Deschutes County. More specific management plans are being prepared for each of the special interest areas shown on the Plan. When completed, these Plans will detail management objectives and prescriptions for public use and enjoyment of the individual areas, and will take cognizance of the special care required in the management of these unique areas. A unique special interest feature is the Oregon Skyline Trail, Oregon's part of the Pacific Crest Trail system. It is shown on the Plan design as a dashed line along the western boundary of the County. The Trail will be managed as a continuous route for horseback riding and hiking, extending 450 miles along the Cascades in Oregon and into adjacent states as part of the National Scenic Trail System established by Congress in 1968. Multiple Use Management While the five zones described above relate to the management of specific wilderness and primary recreation zones, the vast /rV& majority of land,within the National Forest not otherwise in a specific zone involves other resources considered to be primary through the application of multiple use manage- ment plans. Thus, land within the remainder of the National Forest will be managed for the five renewable resources (recreation, range, timber, water, wildlife and fish), min- erals, transportation, fire protection, and special land use and administrative occupancies required for the management of the Forest as a whole. It is important to note that a broad variety of land -use conflicts and opportunities exist within the National Forest boundary where National Forest land is adjacent to private lands. An area of particular importance is along the upper Deschutes River from the Benham Falls area south to the Klamath County line. In January of 1969, a proposed plan setting forth management directions was prepared for the Deschutes River Recreation Area. The proposed manage- ment plan covers the full range of resources and problems posed by the intermingling of public and private lands. The proposals of this Plan which relate to the planning policy underlying proposals of the Deschutes County Comprehensive Plan are too numerous and detailed in their description for inclusion in this report. It is proposed that the Deschutes River Recreation Area Plan be studied carefully by the County in cooperation with the Office of the Forest Supervisor as an initial step towards advancing the achievement of the many objectives contained in the Plan in which the County and the Forest Service have common objectives. The Deschutes River Recreation Area Plan prepared by the Forest Service represents an important step toward implementation of policies and proposals of the Deschutes County Comprehensive Plan as it relates to the upper Deschutes River area. Its application to landscape management zones and other areas outside of the National Forest is now warranted. INITIAL HOUSING ELEMENT The Initial Housing Element of the Comprehensive Plan repre- sents the first step toward achieving the goal of decent, safe and sanitary housing for all of the people residing in Deschutes County and its communities. The Element was not initially included in the comprehensive planning program, but has since been added to comply with recently adopted federal guidelines and requirements. The Initial Housing Element is concerned primarily with: 1. A general appraisal of major current problems and obstacles in meeting the housing needs of people in all economic segments of the market and in all urban and rural 'areas of the County, and 2. The directions required for overcoming problems and obstacles and for meeting the housing needs of the new residents who will move to the County in coming years. The Initial Housing Element is consistent with national housing objectives as set forth by Congress in the Housing and Urban Development Act of 1968, and with guidelines and requirements subsequently established under the authority of th A by the Department of Housing and Urban Develop- ment.�1t 0� The Congress established a target of 26 million new housing units to be constructed by 1978, in response to critical shortages in housing which are expected if housing starts are not substantially increased, and in response to the already common problem nationally of inad- equate housing to meet the needs of todays population. (10) Comprehensive Planning Assistance Handbook No 1, Guidelines Leading to a Grant, Department of Housing and Urban Development, March, 1969. Itco The relationship of the Housing Element to other objectives, policies and proposals of the Comprehensive Plan is mani- fested In several ways. One particularly important rela- tionship at this time concerns the objectives of the Plan for economic development and the raising of income levels. For, it seems clear that counties which fail to tackle their housing needs will not fulfill their economic poten- tial or responsibilities for assisting in improving the quality of life for all local residents. In Deschutes County, such inattention would result in the denial to many thousands of people of the opportunity to improve their standard of living and to attain goals for themselves and their families. Existing Housing Problems It would (and does) appear to many that Deschutes County does not exhibit the problems of inadequate housing which are so characteristic of urban counties, major cities and metropolitan areas. However, such an appraisal is illusion- ary in the face of a glaring statistic that approximately 27% of all dwelling units in the County are in a dilapi- dated or deteriorating condition. This illusion nevertheless persists because of the general physical and economic character of the County which tends to obscure the realities of existing housing conditions, needs and requirements. Some of the factors which con- tribute to this obscurity are: 1. The vast scale and natural beauty of the County. 2. A County population under 30,000 distributed among three cities, small unincorporated communities, and rural area, where the largest concentration has an urban area population under 18,000. 3. A style of living where a low-density residential environment is dominant. 4. A relatively low income and employment scale for per- manent residents which is overshadowed by the relatively high level of affluence of tourists visiting the County. 5. The virtual absence of publicly expressed social unrest associated with the problems of people in low-income minority groups. In 1960, the non-white population of the County constituted only six -tenths of one percent of the total County population. The table below further indicates the relationship of economic conditions and the ability of families to improve their housing conditions: Percentage of Households by Income Group, Deschutes County 1960, 1963, 1966 Income Group Percent of Total Households 1960 1963 1966 $0,000 - $2,499 19.0% 25.1% 21.9%% $2,500 - $3,999 22.2% 29.8%/% 23.7% $4,000 - $6,999 35.0% 23.6%/% 28.4% $7,000 - $9,999 14.7% 11.2% 13.0% $10,000- and over 9.1% 10.3% 13.0%/ (Source: Survey of Buying Power, Sales Management Magazine, 1960, 1963, 1966) Between 1960 and 1966, the percentage of households having annual incomes under $4,000 actually increased --- from 41.2% to 45.6%; whereas the percentage in the middle and upper - middle range ($4,000 - $9,999) declined from 49.7% to 41.4%. Only those households in the $10,000 and over group increased, from 9.1% to 13.0%. Thus, during a period when income was increasing generally throughout the country, income declined for nearly 50% of the County's population. When viewed in relation to the rise in the total cost of living during the same period, it indicates that the "buying power" of many families was reduced even greater than is apparent from the income statistics. in 1967, Sales Management Magazine changed its income groupings partly to indicate better the effective buying income of households in relation to inflationary forces of the first part of the decade. The change for the period 1967 - 1969 is shown below for the new income groupings: Percentage of Households by Income Group, Deschutes County, 1967 - 1969 Income Group Percent of Total Households 1967 8 1969 $0,000 - $2,999 24.0% 24.2% 23.6% $3,000 - $4,999 16.3% 16.5% 15.6% $5,000 - $7,999 33.6% 33.6% 33.4% $8,000 - $9,999 12.5% 12.4% 13.0% $10,000- and over 13.6% 13.3% 14.4% During the last few years, the percentage of households in the three lower income groupings shows a slight decline. This is consistent with the stablizing influence of the gradual transition of the regional and local economy dis- cussed in Part II. However, it is still quite apparent that nearly 40% of the households have incomes under $5,000, and that at least 25% of the households live under conditions of object poverty. In contrast, only 35% of the households in the State had incomes under $5,000 in 1969. A comparison of both tables indicates that the highest group ($10,000 and over) has increased steadily as a percentage of total households over the decade -- from 9.1% to 14.4%. But even this group, is substantially behind the State as a whole for the same period, where percentage changes went from 9.5% to 19.0%/% The steady rise in the $10,000 and over group helps to account for the concentration of home-building at prices which are out -of -reach of the majority of the population. But in an economy where the total costs of housing are rising at rates much faster than household income, a higher percentage of the County's population is priced -out of the market for new housing today than was the case in 1960. It is not unreasonable to assume that a majority of the over 70% of all households (those under $8,000 in income) are priced -out of the market today. The discussion above takes on greater import when it is realized that: (1) the County continues to attract population from other areas in search of a place for retire- ment; (2) the County is in something less than a good posi- tion for meeting the housing requirements of people moving to the County to fill job openings; and, (3) the potential for new industrial development is diminished as long as housing is unavailable In sufficient quantity and type to meet the varying needs of all people who would be employed by industry. Only a relatively small percentage of retired families have income security sufficient to off -set inflationary trends in housing and general living costs. Many retired families are on fixed incomes under $5,000 per year and have a desire for the small housing unit which takes little up -keep and frees time for other pursuits. The housing requirements of this group will aggravate further the problem of providing housing for families in the lower income groups. The overall economic considerations associated with the availability or capability of providing housing for employees In new industries are serious, particularly where skilled personnel from outside the County would be imported to fill certain jobs which could not easily be filled by people in the existing local labor force because of the specialized training required. And even where such training would be instituted, industrial managers are becoming increasingly concerned for the overall well-being of their employees, including their ability to obtain adequate housing commensurate with their income. .K 0 Obstacles to the Solution of Housing Problems This section classifies and describes several obstacles to the solution of housing problems. They are listed gener- ally in their order of importance, but it should be under- stood that the order of description is relative to the views of the analyst, based on limited data available for analysis. 1. The Limitation of Lav -Income: This factor has been described at length above, and clearly represents the most difficult of all obsctacles to overcome for a majority of the County's residents. It hits hardest at those households in the lower income groups, but also serves to limit people in the middle-income group because of the percentage of households concentrated in the $4,000 - $6,999 income group. 2. The Lack of Local Governmental Authority and Interest: A very limited local governmental interest has been shown over the years in providing the governmental machinery and capability required to provide federally - assisted low-income public housing units for the many families who could qualify. If such units had been provided in some reasonable quantity for a sus- tained period of time in the past, housing needs would be far less severe today than they are. It must be understood, however, that lack of support historically by local government is largely a response to the prevailing attitudes of many people who them- selves have relied on a "pioneer spirit" which is still prevalent in Central Oregon. With over 57% of the households in 1960 within the $2,500 - $6,999 income groups, resentment to the concept of publicly -assisted housing is better understood. For, many people who would not have qualified under federal programs developed prior to the middle 1960's were (and are still) not much better off than those who could qualify. 3. Lack of Data and Analysis: Related to Item 2 is the lack of data and analysis which is needed to provide the basis for understanding the extent of housing problems and needs within the County, and the directions for solutions which are available. There is little knowledge of the quality of the existing housing stock nor of housing needs related to all economic segments of the population. 4. The Costs of Conventional Housing: Related to Item t is the cost -price squeeze within the housing market nationally and which affects even more critically the populations of rural counties where disparities in income capability are more pronounced than in more highly populated urban areas. Higher costs of home construction and financing combine to require a further draining of family financial resources to purchase or rent a home or apartment today as com- pared to only one year ago. Thus, the list of families who are"priced-out" of the market because of infla- tionary forces likely has been lengthened considerably in Deschutes County only recently. 5. Age of the Existing Housing Stock -Sound Older Homes Generally Not Available: A majority of .the existing older homes which are not sub -standard are unavailable to families who desire to "trade -up". And even for families who can afford to trade -up, the option of an older home often is unde- sirable because of inadequate size. 6. Limitation in the Type of Housing Available: Until recently, little attention was given to providing greater variety in the type of housing units available. V40 For example, in 1965, housing types in Bend were: 86% single-family; 2.5% two-family; 9.2% multi- family; and 2.5% mobile homes (in mobile home parks). Recent apartment starts and growth in the mobile home industry point to a change, but progress is slow in relation to need. The over -concentration on conven- tional single-family home starts limits the availa- bility of improved housing for many families. 7. Inadequate Codes: The inventory of substandard dwellings continues to grow, not only as a result of attrition, but also because new units continually are being built in the County with structural or other deficiencies. The County lacks building, electrical, plumbing and housing codes to assure that all new construction is built to reasonable standards of health and safety. 8. Inadequate Water Supply and Sewerage Disposal Systems: This obstacle has at least four dimensions: (1) The threat to public health posed by existing develop- ments where contamination of water supplies has been detected; (2) there are no central sewerage disposal systems within the County except one small system serving part of the Bend Central district; (3) sub- divisions are being created in recreation areas without demonstrating capability for water supply or waste disposal; and (4) new State regulations will add high costs to housing development and further impede efforts to provide housing for families in the low and moderate -income groups. The first three dimensions have been described in Part il. The fourth factor relates to recently adopted State requirements that municipal sewerage systems be developed by 1980. While such development is critical and essential to the future economic well-being of County and City residents, the geologic character of underlying strata (lava) presents cost considerations which are far beyond the financial cap- abilities of the cities and unincorporated communities if conventional approaches to the design and construc- tion of waste collection systems are followed. Conven- tional approaches, involving the laying of all pipe underground, will involve extraordinarily high costs and thus add substantially to the costs of housing construction. It may even require an allocation of local financial resources to such an extent as to deprive the people of funds for many other essential public services -- including housing programs for people of low and moderate -income. Housing Objectives, Planning Activities and implementing Actions to 1975 This final section presents a series of housing and housing - related objectives and the programming of activities and actions required to achieve those objectives for the next 3 - 5 years, in relation to the problems and obstacles described previously. A brief description of recent planning activities related to housing is provided first as general background. To the extent possible, target dates for initiation and completion are shown (e.g., 1970-1972). More refined programming will not be possible until the recommendations of the Initial Housing Element have been discussed and policy adopted officially. An overriding consideration is that the development of an effective approach to the solution of housing problems insists on a comprehensive intergovernmental approach involving the County, the three cities and private enter- prise. Private interests should be represented by a cross- section of both "producer" and "consumer" groups, including real estate, home building, developers, construction materials supply, title insurance, fire insurance, banking, savings and +Jr (of loan institutions, utilities, major employers and the public -at -large. All economic segments of the market should be represented. Previous Planning Activities: Planning activities initiated or undertaken by the County and three cities during the previous year which are related to housing have centered on: (1) the preparation of the Comprehensive Plan for the County; (2) the appointment and organization of the County Planning Commission; (3) the appointment of a County Planning Director; (4) the provision of planning services by the County to the cities on a contract basis; (5) the preparation of proposed development regula- tions concerning the subdivision and zoning of land; (6) the preparation of an area -wide comprehensive plan for water and sewer facilities for unincorporated urban areas of the County; (7) the preparation of sewerage facility plans for the cities of Bend and Redmond; and (8) the conduct of the Deschutes County Long -Range Planning Conference, sponsored by the Deschutes County Extension Advisory Council in cooperation with the Cooperative Extension Service of Oregon State University. With the publishing of this Comprehensive Plan document, all activities have been completed with the exception of Item 5 (proposed zoning ordinance) and Item 6. Housing Objectives to 1975: 1. Provide the policy framework within local government which will assure that private enterprise will have access to federal assistance programs for the con- struction and management of housing for families of low and moderate income. (1970) attention should be given to Tumalo, Terrebonne and Deschutes Junction because of their close relationship to the larger urban areas of Bend and Redmond. Additional Elements of the Comprehensive Plan In order to carry out the policies and proposals of the Comprehensive Plan on a County -wide basis, additional ele- ments of the Comprehensive Plan will be required. Those elements in the following list which are marked with an asterisk (%,) are those which the federal, and/or state governments have identified as being an essential component of a Comprehensive Plan for purposes of eligibility under grant-in-aid and loan programs: Environmental Management: Water and sewer facilities element (%r) Water quality management (*) Open space and scenic conservation element (%) Flood control and drainage element (*) Solid waste management Air pollution control element Noise pollution control element Housing Element (*) Economic Development Element Public Services and Facilities: Comprehensive health element Fire protection element Law enforcement element Library service element Public utility element (gas, electricity and telephone) Governmental Management: Financial plan element (',) Information management /&21 Citizen participation (%;) Referral REVIEW AND PERIODIC REVISION OF THE COMPREHENSIVE PLAN An alertness to changing conditions and unforeseen impacts is essential to the success of any planning program. Whether it be a new college program, large industrial de- velopment or changes in the administration of local govern- ment, the planning program must respond to these shifts and unanticipated developments. Accordingly, the Compre- hensive Plan, based on the soundest of information and judgment available, must be kept up to date. At any point in time, two, five and ten years from now, the plan for future development should take both a medium and long- range look ahead. The Plan should be reviewed jointly by the cities and the County every two years, preferably during the winter season prior to formulation of the annual budget. It is doubtful that major changes will be required during the annual review period for the next 3-5 years. At least once every five years, the basic studies reviewed in Part II should be re -analyzed to determine whether revi- sions are necessary in the policies and proposals of the Plan and in the program of Plan implementation. 2. Achieve greater use of mobile homes as a means of satisfying low-income, retirement and recreation segments of the housing market. (1970 - 1975) 3. Identify and quantify the full range of housing problems and needs within the County as a basis for the selection and implementation of coordinated actions by the County, the cities and private interests on a systematic basis. (1970 - 1972) 4. Increase employment and wage levels of people in lower income groups through a coordinated approach involving vocational training for those types of jobs described in Part II offering the greatest oppor- tunity for improving employment and income within the existing labor force. (1970 - 1975) 5. Create publicly -assisted housing for those lav -income families who otherwise could not qualify for housing in the conventional market. Locations should be selected so as to avoid a "project" appearance by utilizing undeveloped properties throughout residen- tial areas. (1971 - 1975) 6. Develop a greater mix of housing types offered through the conventional market to meet the varying require- ments of families of different age, size, income, occupation and interests; increase the percentage of multi -family housing starts. (1970 - 1975) 7. Develop governmental policies which will not be re- strictive of innovation or experimentation in the provision of new housing by private enterprise. (1971 - 1972) 8. Develop housing and housing -related codes which reflect the policies developed under Item 7, above, and which are "tailored" to the needs of Deschutes County. (1971 - 1972) 9. Avoid to the maximum extent possible the extraordi- nary costs associated with the provision of sewerage collection, treatment, and disposal facilities on a conventional basis, including costs of system development, maintenance, financing, and manage- ment. (1970 - 1975) Planning Activities and Implementation Actions: Adopt the Deschutes County Comprehensive Plan. 2. Undertake a comprehensive County -wide study of housing conditions, including: (a) housing quality; (b) housing quality in relation to the socio-economic characteristics of occupants; (c) characteristics of the existing housing market; (d) factors affecting the pricing of rental and purchase housing locally; (e) effective demand and need for housing to 1975 and 1980; (f) methods for the elimination of sub- standard housing; and (g) action programs required for implementation. The study should result in the preparation and adoption, on an intergovernmental basis, of a Comprehensive Housing Plan and Program for Deschutes County. The study should utilize socio-economic and housing data to be provided by the 1970 Census, involve field surveys and personal interviews, and utilize the experience and knowledge of local producer and consumer groups. (1970 - 1972) 3. In relation to Item 2. above, create a Local Housing Authority (County -wide) as provided under Oregon Statutes, and identify the extent to which federally - assisted low -rent public housing program alternatives should be used as compared to publicly -assisted private and conventional approaches to providing housing for low and moderate -income families; develop an action program for providing low -rent units as required throughout the County. (1970 - 1975) 4. In connection with Item 2, above, undertake an analysis of existing city subdivision zoning and building devel- opment regulations, amend existing regulations as appropriate and provide regulations at the County level designed to carryout Objectives No. 7 and 8. (1971-1972) 5. Drawing upon State and Federal assistance as required, develop a manpower training program in cooperation with local industries, high schools and the Central Oregon Community College to carry out Objective No. 4. (1970-1975) 6. Undertake a comprehensive study of the Metolius and Upper Deschutes River Basin to determine ground and surface water characteristics, sources of pollution and contamination, and methods of liquid waste treat- ment and disposal which will maintain water quality at high levels at reasonable costs of development, maintenance, operation and management. (1970 - 1975) 1f IAC PART V URBAN ELEMENTS Of THE DESCHUTES COUNTY COMPREHENSIVE PLAN INTRODUCTION This Part of the report describes the proposals of the Comprehensive Plan as they relate more directly to the Bend, Redmond and Sisters urban areas and to the recreation service center of Lapine. In interpreting these proposals, it is important to use the written descriptions in this Part of the report together with the black and white plan designs for the four urban centers which are included in the packet for this report. Proposals of the Comprehensive Plan for the Bend, Redmond, Sisters and Lapine Areas reflect the projections of popu- lation and economic activity,and the statements of policy described in Part 111. The proposals as shown graphically on the plan designs contained in the packet were developed first through the preparation of "sketch plans" for each urban area. These sketch plans were reviewed with the Citizens Planning Advisory Committee, with the planning commissions and legislative bodies of the three cities, and with the County Planning Commission and County Court. Simi- larly, this sketch plan and review process was followed simultaneously in the development of proposals of the Com- prehensive Plan for the County as a whole as shown on the multi -colored pian design. x AW7 PART V - 1 COMPREHENSIVE PLAN TO 1990 - BEND AREA LAND USE ELEMENT Residential Areas Residential areas shown on the Plan for the Bend Area are capable of accommodating a 1990 urban population of from 25,000 to 28,000 people, with additional areas designated as residential reserves in the event that the population of the urban area increases more rapidly than as currently anticipated. Two categories of residential development are shown on the Plan for the Bend Area in consideration of the different intensities (densities) of residential development which must be accommodated. They are: Urban Residential: (Lots ranging from 7,000 square feet in the more densely urbanized part of the community to one-half acre in areas closer to the out- lying fringe of the community) Suburban Residential: (Lots ranging from one-half acre to five acres and located in out- lying.fringe areas of the com- munity) These categories reflect to a great extent the trends in residential development which have emerged over the past decade. The tendency toward large lots (suburban residential) is not only a reflection of the need for space to permit in- dividual water and sewage disposal systems, but also is the result of a desire for "space" in a setting where wide open grandeur is the dominant characteristic of the land. Urban residential areas reflect existing patterns of growth to the north, east and west and the area which is capable of being served economically by a central sewage collection and disposal system. Urban residential expansion to the northeast is limited somewhat by requirements for the location of a sewage treatment plant capable of serving urban residential densities within the entire community. Urban residential expansion to the northwest is limited by the location of Aubrey Butte. However, the amount of develop- able land on the south and east faces of the Butte is con- siderable. Both the character of the terrain and scenic views offered from these slopes combine to create an attrac- tive residential environment for those people who can afford the higher costs of development involved. Urban residential expansion west along Shevlin Park Road reflects the attraction of the Community College environment, the rolling topography and heavy natural vegetation in the area. Expansion to the south and north is limited, however, by existing industrial areas and areas which have potential for industrial use. Expansion to the southeast and east reflects the attractiveness of the area for large scale development where topography is not a limiting factor and where the costs of developing subdivisions will be more reason- able in relation to the dominant characteristics of the market for housing within the community. Suburban residential areas are shown in all quadrants of the community. Areas to the northeast, east, southeast and south generally are committed to suburban residential densities be- cause of the existing patterns of large lot development in these areas and the pattern of land ownership which makes it Jt difficult to assemble land for subdivision into urban residential lots. A considerable acreage has been designated on the Plan as "suburban reserve". Such reserve areas denote a sense of timing in having a low priority for development -- i.e., areas which are not expected to develop to any considerable extent until after 1980. However, it does not mean that these areas could not develop sooner if development stand- ards and needs for municipal -type services and facilities can be met. A particularly important factor which will influence the extent of suburban residential development will be the extent to which more costly approaches to water supply and sewage disposal will be required through the imposition of more stringent water quality controls. Such controls might easily result in a much lower population density 'in suburban residential areas through an increase in the amount of lot area required for individual sewage disposal systems. Two areas designated suburban reserve require special mention. They are the area south of the community between U.S. 97 and the .Deschutes River and the area on and below the northerly slopes of Aubrey Butte. The southerly area is already subdivided into five acre parcels. But because of poor platting and poor access provided by a street circu- lation system which is circuitous and underdesigned, sig- nificant development in the area is not anticipated for many years, and even may be postponed indefinitely. The area north of the Butte offers spectacular views of the Cascades and heavily forested areas west of Bend. This area might develop early if College Way is extended around the north slope of the Butte and across the Deschutes River to provide better access to the Community College from com- munities and agricultural areas in the northern part of the County. Commercial Areas Three categories of commercial land use are designated on the Plan. They are neighborhood commercial, general commercial and highway commercial. Neighborhood commercial areas are designated by a triangle and circle symbol to indicate general location. Only two such centers are shown on the Plan along Portland Avenue. However, additional centers may be required in eastern and southern sections of the community and would best be located in areas designated for highway commercial in those sections. General commercial areas are limited primarily to the central business district, to the area along Th.i.rd Street (existing U.S. 97) between the railroad crossings, and to Greenwood Avenue from Third Street east to Pilot Butte. Whereas the central business district remains as the primary retail center for the community, Third Street has become the center for tourist -oriented and convenience shopping activities, including motels, restaurants, business offices, supermarkets and re- lated neighborhood commercial store -types. Greenwood Avenue has developed more as an office center, with neighborhood shopping facilities located near Pilot Butte. General com- mercial areas are shown also along Third Street north and south of the railroad crossings and along First Street north of the central business district. These areas would accom- modate those types of uses which are more service oriented, such as repair shops and wholesale activities. Highway commercial areas providing services which cater primarily to highway traffic are encouraged at entrances to the community along Century Drive, along existing U.S. 97 (south), along U.S. 20 (east of Pilot Butte) and at the intersection of U.S. 20 and U.S. 97 (north). In addition, a highway commercial "reserve's area is shown west of the proposed interchange which would link the proposed realign- ments of U.S. 97 and U.S. 20 east of the community. Highway commercial development would not be encouraged at this loca- tion until the U.S. 97 by-pass is constructed, 101 Industrial Development The Plan proposes that existing industrial areas are to be preserved, with additional land available to accommodate the expansion needs of existing industries. Such areas are concentrated along the Deschutes River (south) between Century Drive and U.S. 97 and along the railroad between First and Third Streets. Substantial acreage for new industrial development is encouraged along Boyd Road and U.S. 97 on either side of the railroad north of town, along either side of the rail- road south of town, and between the railroad and the pro- posed U.S. 97 by-pass south of town. The latter area is indicated as an "industrial reserve". PUBLIC FACILITIES AND SERVICES Public facility and service areas shown on the Plan include schools, parks and recreation areas, refuse disposal and sewage treatment facilities and governmental office facilities. Schools Elementary and secondary education facilities are shown by a flag symbol on the plan design. New school facilities are shown east of Deschutes Road and north of Neff Road, south of Hunnell Road and east of Ferguson Road, and in the large suburban residential area east of U.S. 97 and north of Murphy Road. These locations are to be considered only as general locations, indicating the areas of the community where new school facilities will be required as residential areas expand. The area shown for the Community College represents a con- siderable expansion over the present site in order that lands may be preserved for expansion as required. Parks and Recreation Areas Because of the extensive State, County and City park and recreation area development already available within the Bend Area, the Plan proposes only one additional recreation -park area of major significance. It is proposed that land along the top and north slope of Aubrey Butte adjacent to the Com- munity College be developed for passive recreation use, taking advantage of the exceptional views of the community as a whole and of the mountains afforded by the elevation of the Butte. In the areas where new school sites are developed, additional land (10-15 acres) should be acquired adjacent to the school site to permit integrated development and operation of school and park recreation areas and facilities. Refuse Disposal and Sewage Treatment The refuse disposal site located along Century Drive at the southwest edge of the community is shown on the Pian to be retained for that use. Care is required to avoid encroach- ment of the site by uses which would be incompatible with the refuse disposal. The sewage treatment plant site shown on the Plan is based on the recommendations of a recent engineering study which concludes that the site is the most appropriate location for a plant in view of problems and needs associated with the design of a collection system capable of serving the City and areas of municipal expansion. As in the case of refuse disposal, the site should be reserved and protected from encroachment by incompatible uses. A separate question of land use is raised by the location of effluent disposal ponds if ponds are determined to be the most efficient and economical means of effluent disposal, consistent with water quality standards. In the event that such ponds are required they would have to be located north of the community if gravity flow between the treatment plant and ponds were to be feasible. Since treatment ponds and the treatment plant do not have to be on the same site, and in view of the desirability of residential expansion on land in the vicinity of the plant site, it is a policy of the Plan that such ponds be located sufficiently north of the urban area where urban encroachment is not likely and where land is available for pond expansion. A favorable location would be on BLM lands north of the North Unit Main Canal where seepage to the canal would not occur. County Government Civic Center The Plan,proposes that the County Government Civic Center be expanded as required at its present location in accordance with the recommendations of the Public Building Study pre- pared for the City of Bend, the County and School District No. 1 and submitted in March, 1969. Expansion of the County Center would continue the favorable traffic relationship between governmental office facilities at opposite ends of the central business district. TRANSPORTATION State Highways The Plan envisions the eventual realignment of U. S. Highways 97 and 20 in the Bend Area to permit by-passing of the urban area by through traffic. The general alignments of these by-pass sections are shown on the plan design as dashed lines to reflect the uncertainty which exists currently con- cerning the timing of realignment. The proposed realignment of U.S. 97 reflects an examination of highway functions and alternative alignments for the entire area extending from the Deschutes National Forest I boundary south of Bend to the Jefferson County line north of Terrebonne. In applying the criteria concerning State high- way proposals as outlined in Part II, a realignment which passes east of Pilot Butte at Bend and adjacent to Roberts Field at Redmond appears most desirable. The full length of the preferred alternative from Bend to the north County line is shown on the multi -colored plan design for the County as a whole. In the Bend Area, U.S. 97 would leave the existing alignment near the Forest boundary south of Bend, proceed northeasterly to the east of the railroad and generally parrallel to the Central Oregon Canal, then swing northerly parallel to and east of Deschutes Road (Denser Road), avoiding the Bend Pine Nursery. It then would cross the North Main Unit Canal and continue north to Deschutes Junction along the east side of the Deschutes Market Road. The by-pass would permit sub- stantial urban expansion, 'avoid built-up areas and railroad crossings and minimize crossings of canals and County roads. The Plan envisions full right-of-way acquisition and initial construction of the U.S. 97 by-pass as a two-lane expressway, with at -grade crossings of State highways and County roads, followed by the construction of full interchanges and grade separation structures after 1980. This would provide a reasonable solution to limitations of the existing alignment through heavily populated areas of the County at reasonable cost. With completion of the Federal Interstate highway pro- gram in the early 1970's, it is reasonable to anticipate an expansion of the Federal highway program to interstate and intrastate highways of second level importance such as U.S. Highways 97 and 20. Interchanges along the U.S. 97 by-pass in the Bend Area would be located where the highway leaves its present alignment at Arnold Caves Road, at Ferguson Road (providing access to in- dustrial areas), at U.S. 20 east of Pilot Butte (major en- trance), and at Butler Market Road. Grade separation struc- tures would be located at Arnold Market Road, Bear Creek Road, Neff Road and where Denser Road becomes the Deschutes Market Road north of the Bend Pine Nursery. U.S. 20 would be realigned at two locations in the Bend Area: (1) from Horse Ridge to an intersection with the U.S. 97 by-pass; and (2) from its intersection with the U.S. 97 by-pass; via the 97 by-pass north to the vicinity of Butler Market Road to the existing alignment of U.S. 20 north of the community. Only one additional interchange and two grade separation would be required by utilizing a section of the U.S. 97 by-pass. The grade separation would cross Byrum Road east of town and the railroad and existing U.S. 97 north of town, while the interchange would be at the point of return to the existing U.S. 20 alignment to Sisters. By util- izing part of the U.S. 97 by-pass, through traffic along U.S. 20 could by-pass the community entirely. City Major Arterials and County Arterials County Arterials shown on the plan design which also have significance as Major Arterials within the City limits are: East-West Butler Market Road (East 8th Street) Greenwood Avenue Bear Creek Road (west of Arnold Market Road) Reed Market Road (Hunnell Road west of Ferguson Rd.) Shevlin Park Road North-South Century Drive Ferguson Road Butler Market Road Denser Road Four other County Arterials are shown on the Plan: Alfalfa Market Road (Walker Road), Denser Road, Galen Baker Road and Richard Road. Galen Baker Road would provide a much needed by-pass between U.S. 97 and Century Drive for traffic destined to the Mount Bachelor area of the National Forest. Richard Road would become an important by-pass between U.S. 20 and U.S. 97 once both State highway by-passes have been constructed. City Collector Streets and County Feeder Roads County Feeder Roads shown on the plan design which also have significance as Collector Streets within the City limits are: Skyliners Road (Galveston Ave., east of W. 14th St.) College Way (extended around Aubrey Butte) West 12th Street (over Aubrey Butte) O.B. Riley Road Studio Road Sheppard Road Neff Road (Penn Avenue) Baker Road (9th Street) Other County Feeder Roads shown on the plan design which serve unincorporated parts of the urban area are: Boyd Road Ward Road-Hanmby Road Erickson Road Byrun Road Arnold Market Road Brosterhouse-Sipchen Roads Murphy Road Rail Facilities The location of joint trackage of the Great Northern and Oregon Trunk Railroad through the Bend area will continue to /10 pose traffic problems and conflicts, primarily as the result of its effect on east -west traffic through the community. The Plan does not, however, propose the elimination of these conflicts either through the relocation of trackage or the construction of grade separations with major or collector streets because of prohibitive costs to the community. The limitations on east -west traffic movement would be modified somewhat by the development of Scott Street as a major arterial between Hill Street and the existing alignment of U.S. Highway 97. While structural changes to the railroad right-of-way are impractical, the appearance of the right- of-way can be improved through a planned program of land- scaping to screen unsightly sections of track from adjacent lands and to enhance the approach to the community from the north at several points along the existing alignment of U.S. Highway 97. Airports The Plan envisions substantial improvements to the Bend Airport, including the construction of a new runway along a northeast -southwest alignment to avoid the frequent crosswinds caused by wind patterns from the mountains along the upper Deschutes River basin. The several private airstrips within the urban area would be phased out over time as the airports become a hazard to residential expansion. N PART V-2 COMPREHENSIVE PLAN TO 1990 - REDMOND AREA LAND USE ELEMENT Residential Areas Residential areas shown on the Plan for the Redmond Area are capable of accommodating an urban population of from $,000 to 10,000 people. This is higher than the projected figure of 7,400, but residential areas were expanded during the sketch plan review process to reflect the greater growth potential of the community in the event of substantial industrial development. Two categories of residential development are shown on the Plan for the Redmond Area in consideration of the different intensities (densities) of residential development which must be accommodated. They are: Urban Residential: (Lots ranging from 7,000 square feet in the more densely urbanized part of the community to one-half acre in areas closer to the out- lying fringe of the community) Suburban Residential: (Lots ranging from one-half acre to five acres and located in out- lying fringe areas of the community) Trends in residential development toward large lots have been quite similar to those in the Bend Area -- i.e., the desire for space and capability for individual sewer systems. However, this trend has been even more pronounced in the Redmond Area, particularly in the southwestern part of the urban area. /11 Urban residential areas reflect existing patterns of growth to the west and southwest. No residential expan- sion is shown to the east and southeast because of indus- trial areas and the location of Roberts Field. Three areas west of the community aredesignated as urban residential reserves. With the selection of a new high school site along the north side of U.S. Highway 126 near Euston Road, an urban residential concentration near the new site can be anticipated during the next decade. Suburban residential areas are shown extensively to the southwest and west where large lot developments have been prominent and where water service is easily available. In addition, extensive areas have been designated as suburban residential reserves. In view of the capability of urban residential areas to accommodate almost all of the projected population increase, and the fact that urban and suburban residential areas are capable of accommodating a greater population than that projected, caution should be followed in encouraging residential development within reserve areas in order to permit the most economical solution to providing central sewage collection and disposal for the community as a whole. Commercial Areas Two categories of commercial land use are shown on the Plan -- general commercial and highway commercial. General commercial areas are shown along both one-way legs of U.S. 97 (Fifth and Sixth Streets), along U.S. 97 south of the Fairgrounds, and along Highland Avenue (U.S. 126) west of the central business district. The central business district would serve the dual purpose of being the primary retail shopping area as well as the location for neighborhood shop- ping stores. The general commercial areas north and south of the central business district would accommodate tourist and service-oriented commercial activities. Neighborhood commercial areas are not proposed because of the amount of land available within general commercial areas which can accommodate neighborhood -type commercial uses, and because the size of the community does not warrant the development of neighborhood shopping centers removed from existing com- mercial areas. Highway commercial areas providing services which cater primarily to highway traffic are encouraged at the intersection of Whitted Market Road and U.S. 126, along U.S. 97 north of the general commercial area, and along U.S. 97 at the southern edge of the urban area. Highway commercial "reserves" are shown near interchanges along the proposed realignment of U.S. 97 at U.S. 126 and at Negus Road. These reserve areas would not be developed until the U.S. 97 realignment is constructed. Industrial Development An extensive amount of industrial land -- far greater than is likely to be needed for many decades -- is shown on the Plan in response to the unique factors of land ownership in the Redmond area and because of the potential for industrial development in the vicinity of the municipal airport (Roberts Field), U.S. 97 and the railroad. With the exception of lands required directly for airport use, the.entire eastern half of the urban area is devoted to industrial use on the Plan design. Most of the land east of the railroad and north of the airport was acquired by the County under an exchange program with the Bureau of Land Management, Because of this public ownership, it is possible to assure that lands will be available at a variety of locations to meet the requirements of different types of industries -- without fear of encroachment by uses which would be incompatible with industrial development. 112- Similarly, much of the land east of the railroad and south of the airport is held by the Bureau of Land Management, and thus can be held in reserve to protect the airport from en- croachment by incompatible uses and to be available (through) a n exchange program with the County) for industrial uses which are particularly compatible with air freight and com- mercial passenger services at the airport. A further factor having influence on the amount of land shown for industrial use is that of topography. Much of the terrain is rolling and rough because of rock at surface levels. This limits the number of locations available for industries having requirements for large relatively level sites. This would be especially true for industries related to agriculture with expansive storage requirements. Generally, lands which lie close to the railroad should be held for those industries which have requirements for shipping and receiving by rail. Land further removed from the railroad but close to the proposed realignment of U.S. 97 should be held for those industries which depend only on trucking for shipping and receiving. Lands close to the airport should be held for airport -related industries. And, lands in the north- eastern part of the industrial area shown on the Plan should be held for industries having characteristics which would be either,hazardous or otherwise obnoxious in relation to other industrial use and commercial and residential areas of the community. PUBLIC FACILITIES AND SERVICES Public facility and service areas shown on the Plan include schools, parks and recreation areas, and the County Fairgrounds, Schools Elementary and secondary education facilities are shown by flag symbol on the plan design. With the construction of a new high school along Highland Avenue (U.S. 126). near Euston Avenue and west of the canyon, secondary requirements will be met for the projection period of the Plan. No new elementary school sites have been shown on the Plan because of the uncertainty of questions concerning the timing and location of new residential development raised by the extensive low-density residential pattern shown on the Plan. if stringent water quality and health standards limit the amount of suburban residential land which is developed, then new school sites will be required within areas designated for urban residential use. Locations in the vicinity of Ogg Road and N.W. Market Road, and along Atkinson Road west of Euston Avenue would be favorable. However, these locations would be favorable regardless of the influence of water qual- ity and health standards since locations within suburban residential areas would tend to further fragment the pattern of residential development within the community and limit the availability of municipal -type services. Parks and Recreation Areas Because park and recreation areas are somewhat limited in the Redmond Area, the Plan proposes that the large sections of the canyon west of North and South Canyon Drive respectively be acquired and developed for recreation use. Development would be "natural' in character, creating a scenic asset which would be available to a majority of community residents and attractive to business and industry contemplating investment in the Redmond Area. Such development also would tend to in- fluence the location of new residences closer -in within areas designated for urban residential development. Use of the canyon adjacent to the new high school site for outdoor athletic training and games would expand the utility of the new site. While not shown on the plan design, a policy of the Plan is that a strip be acquired which would connect the two major canyon park sites with the high school /13 site and existing athletic field and be landscaped and developed for pedestrians and bicycle and horseback riding. Such a strip would also be extended north of Maple Avenue to expand the recreation utility of the strip. Other park areas shown on the Plan are adjacent to the golf course, at the reservoir site on Reservoir Road, and along the south side of Obsidian Avenue (Atkinson Road) on either side of 16th Street. The latter two facilities would be developed as neighborhood parks. Special recreation areas shown on the Plan include State roadside rests and natural preserves along existing U.S. 97 south of the community, Juniper Golf Course, the athletic field, the ball park, and the site of Redmond Cave. Fairgrounds The County Fairgrounds eventually would be relocated to a larger site on County or BLM lands where sufficient space would be available to hold large-scale events, attracting people from the tri -county area of Central Oregon, and to permit full promotion of agriculture and industry within Deschutes County. An area south of the Prineville Highway and east of the airport (away from airport approach zones) would be appropriate for a new site, offering capability for future expansion on public land. The existing fairgrounds would either become an expansion of the ball park or be converted to an appropriate private use. TRANSPORTATION State Highways The Plan envisions the realignment of U.S. 97 for its entire length through the community and the realignment of U.S. 126 east of the railroad to the Crook County line. The general alignments of these new sections are shown on the Plan as dashed lines. U.S. 97 would be located east of the railroad, as an extension of the realignment proposed in the Bend Area. (Note: The description of the by-pass in the Bend Area ended at Deschutes Junction). From Deschutes Junction, the highway would paral- lel the railroad on the east. Approaching Redmond from the south, the alignment swings close to Roberts Field east of Redmond Cave, continues north skirting the golf course on a curve, and proceeds on a northeasterly diagonal through lands proposed for industrial development. The highway then con- tinues northerly, by-passing Terrebonne on the east and re- joining the existing alignment near the Jefferson County line. The alignment from Deschutes Junction to Redmond offers flexibility for utilizing the existing highway west of the railroad for south -bound traffic as an interim measure if construction along the east side of the railroad were to involve initially only two lanes. However, four -lane divided construction eventually would be required, and an alignment entirely east of the railroad between Bend and Redmond would avoid the necessity for two railroad crossings. Interchanges in the Redmond Area would be located at the Redmond Cave Road to provide access to industrial areas, at U.S. 126 north of the airport, and at Negus Road. Grade separation structures would be provided at a new arterial road located on the section line south of the airport, at Sisters Avenue, at First Street along the west boundary of the golf course, at Antler Avenue, and at a new north -south arterial road within the proposed industrial area north of the airport. The proposed alignment from Redmond Cave to U.S. 126 reflects recent studies by the County Planning Department to assure that industrial lands west of the airport will have sufficient space for development. With U.S. 97 relocated as proposed, the industrial potential of lands in the vicinity of the airport would be enhanced 49 _• greatly, and traffic service to the Redmond Area would be maintained without loss of convenience to traffic passing through the community. U.S. 20 would be relocated along a more direct alignment east of the central business district to the Crook County line. Following the alignment of Highland Avenue, it would curve gently at its intersection with the U.S. 97 by-pass to permit the construction of an interchange at that point, continue east, cross the North Unit Main Canal, and return on a curve to its existing alignment at the County line, The existing alignment of U.S. 126 east of the golf course would become a major arterial, intersecting the new align- ment east of the interchange with U.S. 97. The new align- ment would eliminate the circuitous route of the existing highway through town, permit an interchange with U.S. 97, and provide better access to the airport and nearby indus- trial lands. City Major Arterials and County Arterials County Arterials shown on the Plan which also have signifi- cance as Major Arterials within City limits are: Old Dalles-California Highway First Street (new) extension along the west boundary of the airport. Northerly extension (new) of Evergreen Avenue (existing U.S. 126 east of the railroad.) Both First Street and Evergreen Avenue would provide access to industrial areas shown on the Plan. Negus Road, a new north -south road extending north of the airport, Redmond Cave Road and a new east -west road south of the airport have been designated as County Arterials on the Plan. I City Collector Streets and County Feeder Roads County Feeder Roads which also have significance as Collector Streets within the City are: Canal Boulevard Ogg Road (Black Butte) Antler Avenue Atkinson Road (Obsidian) Other County Feeder Roads shown on the Plan within unincorpor- ated parts of the urban area are: Northwest Market Road Maple Avenue McCaffery Road King Road Whitted Market Road W. Salmon Avenue (between 21st and Old Dalles-California) 21st Street (between W. Salmon and Old Dalles-California) Euston Avenue (between U.S. 126 and W. Salmon) Reservoir Road A new Feeder south and east of the airport A new Feeder along the southern edge of the planning area. Rail Facilities No changes in the alignment of the Oregon Trunk Railroad are proposed through the community. However, three new railroad crossings would be required to accommodate the realignment of U.S. 126 and the two new east -west roads shown in the in- dustrial area south of the airport. It is proposed that the appearance of the right-of-way be improved through a program of landscaping to screen unsightly sections of track from the vicinity of the County Fairgrounds on the south to Negus Road on the north. Airport The development of Roberts Field as a "regional" airport facility is a key transportation proposal of the Plan. The term "regional" is meant to imply the importance of the facility as the commercial and general aviation hub of the tri -County area. It further implies that it would be the exclusive facility for air carrier and air cargo activity. The allocation of local and Federal funds would be concen- trated on improvements to Roberts Field, rather than at- tempting to develop other air fields in the region to com- pete with the air carrier and air cargo potential of Roberts Field. The emphasis clearly is on commercial air carrier operations as compared to general aviation activity. This recognizes that while Roberts Field is an important general aviation facility, funds may be allocated in time to other airports in the region to assure adequate general aviation facilities. Roberts Field is currently included in the National Airport Plan and thus is eligible for financial aid under the Federal -Aid Airport Program. Special attention is given to the importance of protecting the airport from encroachment by incompatible land uses. The Plan proposes that lands east and southeast of the airport be retained in their open use, while lands along the western, southern, and northern boundaries of the air- port would be developed in airport -related industrial and public uses. Airport approach control zones necessary to protect the instrument landing potential of the airport are also shown by dashed lines extending from the ends of the runways. These approach control zones extend as 10,000 -foot cones from the ends of the runways, and are 4,000 feet wide at the base and 1,000 feet wide at the end of the runways. PART V-3 COMPREHENSIVE PLAN TO 1990 - SISTERS AREA LAND USE ELEMENT Residential Areas Residential Areas shown on the Plan for the Sisters Area are capable of accommodating a 1990 urban population of approxi- mately 1,100 people, with additional areas shown as residential reserves in the event that the population of the urban area increases more rapidly than as currently projected.. Three categories of residential development are shown on the Plan in consideration of the different intensities (densities) of residential development to be accommodated. They are: Urban Residential: (Lots ranging from 7,000 square feet in older sections of the com- munity to one-half acre in area closer to the outlying fringe of the community) Suburban Residential: (Lots ranging from one-half acre to five acres in area, located in outlying fringe areas) Recreation - Residential: (Lots ranging from 1 - 5 acres in area, improved to standards estab- lished for recreation subdivisions) Urban residential areas reflect the existing pattern of growth to the south, the pattern of public land ownership, and the area which is capable of being served economically by a sewage collection and disposal system. Limited expansion to the north reflects the need to preserve approach and take -off zones igl(p of the Sisters airport from encroachment. Expansion to the south is limited by the location of Squaw Creek. Suburban residential areas are encouraged along Pine Street north of the rodeo grounds, along Cascade Street east of the school playing field, within the area between Squaw Creek and the National Forest boundary south of the community, and along the curve of the proposed U.S. Highway 20 by-pass south and west of the community. These areas are partially devel- oped in suburban -type use and are generally accessible via the existing street system, Recreation -residential areas are shown on private lands southwest of the community. However, recreation -residential development would also be possible on lands northwest of the community, designated for "Private Forest Management". It Is anticipated that.a stronger market for recreation lots in the Sisters Area will develop because of the beautiful set- ting of the community, its accessibility from the Wilamette Valley via U.S. 20-126, and the threshold position of the community to recreation areas of the National Forest and Wilderness areas. One of the more important factors which in time would work toward enlarging the market in the Sisters area may be the fact that private land in other scenic areas of the County (e.g., the Upper Deschutes River Basin south of Bend) may be unavailable because of difficulties in meet- ing water quality and health standards of regional, state and federal agencies. Commercial Areas Two categories of commercial land use are shown on the Plan -- general commercial and highway commercial. The General Commercial area is shown along Cascade Street in the center of the community and is proposed to be extended westerly to the eventual interchange with the proposed U.S. 20 by-pass. The large amount of expansion would be in support of the build-up in seasonal population as well as in support of the permanent population. I Highway commercial areas are shown at the proposed interchange of U.S. 20 and State Route 242 west of town, and at the pro- posed interchange of the U.S. 20 by-pass and the existing U.S. 20 alignment southeast of town. The major highway com- mercial area west of town is encouraged for early development, whereas reserve areas shown at both interchanges would not be encouraged for development until the U.S. 20 by-pass is con - strutted. It is important to note that development on lands required for both interchanges should be discouraged so that costs of land acquisition are not increased to the point where development of the by-pass and interchanges as planned will not become feasible. Industrial Development The Plan does not encourage industrial development to the extent of showing specific areas to be reserved for that purpose. This is in keeping with the very large majority response of people in the Sisters area (as reported in the Deschutes County Opinion Survey Analysis, 1968) in favor of maintaining the predominant retirement and recreation attrac- tion of the community. In order to maintain the option for industrial development at a later date, it is recommended that lands in the immediate vicinity of the airport be reserved for industrial purposes. PUBLIC FACILITIES AND SERVICES Public facility and service areas shown on the Plan include the school sites, parks and recreation areas and highway maintenance station. Schools are designated by a flag symbol on the plan design, with the existing sites adequate to meet space requirements for the projected population. As the population increases, it is anticipated that the school child population will de- crease as a percentage of total population because of the recreation and retirement orientation of the community, 43m Recreation proposals of the Plan concern expansion of the Rodeo grounds and expansion of Sisters State Park. The Rodeo grounds would be retained at the present location with expansion to the east if required by increased regional popularity of the annual Sisters Rodeo. A modest addition to the State Park is proposed for that portion of the park along the north side of U.S. 126. Expansion would be to Squaw Creek on land which is too isolated for any other compatible use. The added Creek frontage would expand the utility and attractiveness of the Park while preserving the attractiveness of the Creek as a recreation asset. Lands on either side of Squaw Creek extending from the west end of the park southwest to Elm Street were proposed initially for development as a narrow recreation strip as part of the park. This strip is now designated for Landscape Management. Thus, as adjacent lands develop for residential use, special care would be taken to maintain the natural character of the Creek and to avoid any construction which would impede the free-flow or degrade the quality of water. While not shown on the plan design, it is anticipated that a sewage treatment plant and effluent disposal area would be located north or. northeast of the community where collec- tion to the plant would be by gravity flow and where effluent disposal to the land would avoid any discharge to Squaw Creek TRANSPORTATION State Highways Two important State highwaysconverge within the Sisters community from the east (U.S. 126) and southeast (U.S. 20) and follow a common alignment northwest of the community over Santiam Pass into Linn County where they separate again to provide connection with major cities in the Willamette Valley. U.S. 20 is proposed as an eventual freeway along a new alignment, by-passing the City to the south and west. The new alignment was selected in consideration of the following criteria: 1. The need for a by-pass to handle through traffic. 2. A location which would not require the acquisition of existing developed property. 3. A location which would permit logical expansion of the community without dividing areas of the community 4. A location which would maximize opportunities for highway commercial and tourist oriented commercial• development as the result of highway construction, and the location of interchanges with existing highways. 5. A location which would minimize the costs of right-of- way acquisition through use of public lands. An alternate alignment was considered which would by-pass the community to the north and east. However, the alternate would require placement too far north of the community to provide any significant local benefit. The by-pass would leave its existing alignment southeast of the community at an interchange which would permit traffic destined for Sisters to enter the community along the existing alignment. Through traffic would take the by-pass 'through National Forest land south of the city, crossing under the Three Creeks Lake Highway (separation structure)'and curve north to an interchange with the McKenzie Highway (State Route 242) and continuing north to rejoin the existing alignment. U.S..126 is proposed to remain along its existing alignment through the Sisters Area since it does not have the importance as a traffic carrier as does U.S. 20. pe State Route 242 is a scenic highway connecting Sisters with U.S. 126 in La ne County via McKenzie Pass. Because the alignment through the Cascades is in rugged terrain, the highway is impassable during winter months. City Major Arterials and County Arterials The only County Arterial on the Plan, Three Creeks Lake Highway, also serves as a Major Arterial within the City limits (Elm Street). City Collector Streets and County Feeder Roads Pine Street and Locust Street are Collector streets for north -south traffic within the city limits and become County Feeder Roads north of the community. Airport The Sisters airport is a general aviation facility, and is proposed as one of the five major airport facilities within the County. Its location north of the community is main- tained, and it is proposed that the airport be protected from encroachment by incompatible land use. if industrial development were to occur in the vicinity of the airport, it should be located so as to avoid the creation of a hazard to aircraft in landing and take -off zones. PART V 4 subdivision development without adequate provision for water supply and waste disposal, vehicular access and fire pro - COMPREHENSIVE PLAN TO 1990 - LAPINE AREA tection. PERMANENT AND SEASONAL POPULATION The Plan for the Lapine Area anticipates a permanent population of up to 1,000 people by 1990, plus a seasonal population of 3,000 to 5,000 residing in nearby recreation subdivisions. The attainment of the projected permanent population and the ful- fillment of the community's potential as a recreation service center will depend largely on whether public lands will be- come available for development within the community and whether solutions to problems of water supply and sewage disposal are provided. Because of the many parcels of land within the community which are held by the Bureau of Land Management, a consolidated pattern of urban development is inhibited. It is proposed that the existing scattered pattern of BLM ownership within the community be eliminated under current Federal policies which permit the disposition of lands which have limited value for continued Federal management and which are needed for the expansion of urban areas. A seasonal population of 3,000 to 5,000 is based on the assump- tion that existing and new recreation subdivisions will be developed with central water supply systems, and that eco- nomically feasible methods of sewage collection and disposal can be found to avoid contamination of waters in the Upper Deschutes River Basin. The validity of the assumption that satisfactory utility systems will be created depends also on the strength of the market for recreation subdivision lots in the future. If the market develops with enough strength, then more people will be willing to stand the costs of utility systems. This is not assured, however, in view of the speculative character of N11 On the other hand, the market may well be strengthened by governmental policies and regulations which seek higher de- velopment standards. For, a large segment of the market has been purely speculative, with little seasonal use by the owners and with few improvements. Higher development stand- ards are therefore likely to attract fewer speculative ven- tures and generate developments which will appeal to people who wish to invest in building improvements which in turn will increase the seasonal population of the area. With the provision of adequate utility systems, there is even the possibility that the permanent population will enlarge well beyond the projected increase to 1,000, in response to the growing retirement market. Thus, the attainment of higher levels of economic activity and stability in the community will depend in part on the availability of basic services for living in the Lapine Area on both a seasonal and perma- nent basis. Additional thousands of people are anticipated as part of the total seasonal population, drawn by the varied recre- ation attractions of the surrounding National Forest, exist- ing and enlarged opportunities for camping, and large-scale commercial resort facilities which are likely to develop within recreation occupancy zones of the Forest and on pri- vate lands in the area. It should be recognized that private lands within Klamath County south of Lapine will receive increased attention for recreation development. All of these factors combine to indicate a substantially increased role of the Lapine community as the support center for recreation activity in the Upper Deschutes River Basin. LAND USE ELEMENT Residential Areas Two levels of residential development are shown on the Plan for the Lapine Area in consideration of the different intensi- ties (densities) of residential development to be accommo- dated. They are: Urban Residential: (Lot sizes ranging from 10,000 square feet to one acre in area) Recreation - Residential: (Lot sizes ranging from 1 - 5 acres in area, improved to standard for recreation subdivisions) Urban residential areas are confined to the immediate Lapine community, where the development of central utility systems will be feasible over time. They involve the filling-in of vacant lands within existing platted areas, the conversion of BLM parcels for private use, and expansion into undevel- oped areas north to the Little Deschutes River area, east to the railroad, south to the proposed diagonal alignment of U.S. Highway 97 and west of Prairi.e Slough for approximately one-half mile. The urban residential category is a combi- nation of the urban and suburban categories shown on the plans for the Bend, Redmond and Sisters Areas. The Plan shows approximately 2,700 acres for urban residential use. While this acreage is several times greater than ever would be needed to accommodate a permanent population of 1,000 people, it reflects: (1) the uncertainty of whether BLM lands will be available for the residential market; (2) the greater potential for permanent residents if central utility systems are developed; (3) the need for flexibility in the location of residential plats to avoid a monopoly on the land market; and, (4) the possibility that some older platted areas will not be attractive as compared to newer areas because of the costs of developing central utility systems and road improve- ments to urban standards. Recreation Residential areas are shown on the Plan for virtually all private lands surrounding the Lapine community and assume a continued strengthening of the market for recre- ation parcels for seasonal use. It is not likely that all of the lands shown for recreation -residential will develop for that use because of previous land speculation, variations in topography, soil conditions, capability for providing water supply and limitations on finding suitable means for the dis- posal of domestic sewage: Commercial and Industrial Areas The Plan envisions a substantial increase in the amount of land devoted to retail, commercial service and highway com- mercial use to meet the needs of the resident and seasonal population of the surrounding area. Commercial areas are shown along existing U.S. 97 through the heart of the commun- ity and near the intersection of U.S. 97, State Route 31 and Masten Road south of Lapine. No areas are shown for industrial use, in keeping with the strong preference for a retirement and recreation orientation for the community as expressed by local residents in the 1968 County Opinion Survey. The absence of industrial areas on the Pian emphasizes that industrial development is not being encouraged as a major development policy for the Lapine Area. Such emphasis is further supported by the physical relation- ship of existing development, the fragmented pattern of public and private land ownership which limits the amount of land available for the concentration of industry, and the outdoor recreation character of surrounding lands. If industrial development were desired and possible to attract, only lands north of the community would be suitable, and this would re- quire their being made available by the Bureau of Land Management. Such a use of public lands would be warranted if the industrial activity were related to new developments in the forest products field, such as developing new commer- cial markets for species of Pine which have had little com- mercial value in the past. PUBLIC FACILITIES AND SERVICES School and park areas are the only public facility and service areas shown on the plan design. The existing school site would be adequate for the projected permanent population. A new community park is proposed on land north of the school site at the north end of Morson Street, involving considerable frontage along the Little Deschutes River. The park would straddle Long Prairie Slough and would be accessible from Morson Street and an existing road along its southern boundary. TRANSPORTATION State Highways The Lapine community is accessible via U.S. 97 and State Route 31, and U.S. 97 serves as the spine of the street system with- in the community. U.S. 97 would be relocated as an expressway by-pass along an alignment which would have the least impact upon developed private lands while preserving the potential of undeveloped public and private lands for residential expansion. The highway would leave its existing alignment near Masten Road south of the community on a diagonal which would cross the railroad and proceed northerly along the railroad, rejoining the existing alignment near Burgess Road north of town. A crossing of the railroad in the vicinity of Finley Butte Road would eliminate the necessity for a costly and complex sepa- ration between the highway, the railroad, and the existing alignment of U.S. 97 at Burgess Road. A highway interchange M11 may be required in order to accommodate all traffic move- ments safely. State Route 31 is shown on its existing alignment. An interchange may be required at its intersection with the proposed U.S. 97 by-pass near Masten Road in order to accom- modate the traffic movements involved. County Arterials With construction of the U.S. 97 by-pass, the existing highway alignment would become a County Arterial, serving commercial areas as a business route under conditions of lower speeds and increased traffic safety. Burgess Road would be the only other County Arterial within the Lapine Area. County Feeder Roads County Feeder Roads shown on the Plan include the Paulina- East Lake Highway, Pine Drive and Masten Road. Sections of Pierce Road, Sixth Street and First Street would serve as Feeders within the immediate Lapine community, and a new Feeder Road would be developed utilizing sections of existing roads. The new road is shown along the south boundary of the proposed park site, extending westerly to link with Pierce Road. A particularly important requirement in the Lapine Area is to provide improved access between recreation subdivisions. Access currently is poor and circuitous in many areas because subdivisions were developed without consideration of Feeder Road requirements. The County Planning Department should prepare a special study on access requirements within the recreation subdivision area so that beter access can be pro- vided to existing platted areas and to assure that Feeder Roads are extended as new subdivisions develop. I Land Access roads are shown on the Plan only for purposes of orientation. Airport The Lapine Airport, located south of Masten Road and east of U.S. Highway 97, would be one of the five major airports in the County system. Surrounded by BLM lands, sufficient space is available for its expansion to meet general aviation re- quirements. Public control of the land assures protection of the airport from incompatible land use. Nb- PART VI PUBLIC REVIEW, OFFICIAL ADOPTION AND INTERPRETATION OF THE PLAN PUBLIC REVIEW With the publication of this report, the policies and proposals of the Plan should be given wide -spread public review before they become official policy of the County and the cities. This review is absolutely essential, even though the entire plan development process has involved extensive participation by citizens and public officials of the County. To facilitate this review, it is urged that a series of feature articles be published by local newspapers on the con- tent of the Plan document and proposals which are shown in map form. With such articles available to the public, it is recommended that a series of public meetings be held through- out the County to familiarize people with the contents of the Plan and to afford residents the opportunity of constructive comment. Only with this background of public exposure should the Plan be presented officially at public hearings as a step precedent to official adoption. ADOPTION OF THE PLAN Under the provisions of the Oregon Revised Statutes, the responsibility for the adoption of the Comprehensive Plan at the County level rests with the County Planning Commission. The Commission after advance public notice, must conduct one or more public hearings on provisions of the Plan prior to adopting the Plan as official policy. Because the Statutes are limited in their specific direction regarding procedure for adoption of the Plan, the following procedure is recommended as a means of assuring not only compliance with legal requirements but also with the practical 0/ requirement that there will be public faith and trust in the manner in which the Plan is adopted. Adoption by the Planning Commission After conducting a program of public review as described previously,the Planning Commission should hold several public hearings at locations throughout the County conven- ient to residents of various urban and rural areas. The hearings should be held to invite constructive comment and discussion and to provide an official record which can be studied carefully by the Commission after all hearings have been concluded. Based on the hearing record, the Planning Commission should then make such modifications or changes to various sections of the Plan document, including proposals shown in map form, as are deemed necessary and desirable as the result of public hearings or as the result of views expressed during the public review phase preceding the hearings. Adoption by the County Court Since the Statutes do not provide any procedure for Plan adoption by the County Court, it is easy to construe that the Plan need not be adopted by the Court. To make this assumption would constitute a critical error in interpreting the responsibilities of the County Court to the people. Furthermore, it would violate the fundamental relationship between the Planning Commission and County Court established when the Commission was created. The County Planning Commission has been established as an advisory agency to the governing body. Given this relation- ship, then it is essential that the County Court also hold hearings, modify the Plan as appropriate, and adopt the Plan as the official policy of the County. Without such action by the Court, the final authority of the Court as the policy- making body would in effect be pre-empted by an advisory body It is therefore recommended that the ultimate decision-making responsibility of the County Court be retained by the Court, and that public hearings be held jointly with the Planning Commission. Joint hearings would reduce the number of hear- ings which the public would have to attend; they would broaden the base of Commission and Court understanding of public comment received at hearings; and they would broaden the base for answering questions and describing proposals for the benefit of the public. A further benefit would be to create full and complete understanding between the Com- mission and the Court on what the official policy of the County will be. The Role of the Cities Since certain policies and proposals of the Plan affect directly the interests of the three cities, it is recommended that proposals affecting the cities be aired at joint public hearings within each city which also involve the City Plan- ning Commission and City Council of each City. Thus, when a hearing is held in Sisters, it would involve the County Court, County Planning Commission, City Council and City Planning Commission. Public notices of the hearings would indicate that they will be joint hearings. Similarly, hearings would be held in Redmond and Bend as the Plan relates to those communities. The Mechanics of Adoption The act of official adoption would be handled by resolution of the city and County bodies involved with the Planning Commissions acting first, followed by their respective legislative bodies. The following form of resolution adopting the Plan is suggested for use by all bodies concerned. It refers to the County Court, but with a few changes it would serve the needs of the cities and County at both the com- mission and legislative levels. It was moved by Commissioner and seconded by Commissioner that the following resolution be adopted: WHEREAS, The Deschutes County Court has prepared a Comprehensive long-term Plan for Deschutes County, pur- suant to provisions of the Oregon Revised Statutes; and WHEREAS, said Plan entitled "Comprehensive Plan to 1990" consists of a report and five maps ent.itled "Deschutes County", "Bend Area", "Redmond Area", "Sisters Area" and "lapine Area" which sets forth the objectives and policies used to develop it and includes all of the follow- ing elements: A land use element which designates the propcsed general distribution and general location and extent of the uses of land for housing, business, industry, and other categories of public and private uses of land, correlated with other ele- ments of the Plan; 2. A transportation element consisting of the general location and extent of existing and proposed state highways, county arterials, county feeder roads, city major arterials, city collector streets, airports and railroads, all correlated with other elements; 3. A rural -resource element which designates the proposed general distribution and general location and extent of development of rural areas and natural resources within the County, including lands for agriculture, private forest management, parks and recreation, recreation -residential use, and zones required for the management of lands within the National Forest, correlated with other elements of the Plan; 4. An initial housing element which identifies the general character of housing problems, obstacles to the solution of housing problems, short-range housing objectives, and the planning activities and implementing actions required to achieve housing objectives, correlated with other elements of the Plan; 5. Statements setting forth the policies of the Plan concerning population growth and economic activity, resource management and conservation, transporta- tion and urban development, and projections of future population growth, all correlated with other elements of the Plan; Supporting maps, diagrams, charts, tables, descrip- tive material and analyses of basic studies used in developing the Plan; and WHEREAS, in preparing the Comprehensive Plan, the County consulted with the cities of Bend, Redmond and Sisters and with a Citizens Advisory Committee for Planning concern- ing the development of basic policies underlying proposals of the Plan and in the selection of proposals to be included in the Plan; and WHEREAS, the County Court held joint public hearings on policies and proposals of the Comprehensive Plan with the Deschutes County Planning Commission and with the Planning Commissions and City Councils of the cities of Bend, Redmond and Sisters as follows: 1. On 1970, at the hour of p.m. in the (name of bldg.) , in Oregon. 2. etc. 3. etc.; and WHEREAS, in the judgement of the County Court, the public interest, necessity, convenience and general welfare will be served best by the adoption of said Plan; NOW THEREFORE BE IT RESOLVED, that the County Court adopts all portions of the Comprehensive Plan and hereby authorizes the Chairman and Clerk of the County Court to certify said Plan to the County Planning Com- mission and to the cities of Bend, Redmond and Sisters; and BE IT FURTHER RESOLVED, that the County Court, with the advice, counsel and participation of the juris- dictions concerned shall conduct a biennial review of said Plan prior to the end of each even -numbered fiscal year to further define and keep current the policies and proposals of the Plan. INTERPRETATION OF THE COMPREHENSIVE PLAN In the administration and interpretation of the Comprehen- sive Plan, it must be clearly understood that the material contained in this report and the five maps contained in the packet accompanying the report together constitute the Comprehensive Pian. While the Plan maps will be referred to frequently, the proposals shown on the maps cannot be understood fully or interpreted properly without referring to the descriptive analyses, policies and proposals of this report. The value of the Comprehensive Plan will not be realized if official bodies and people within the County I W attempt to rely solely on graphic proposals of the conducting its planning program. Development of a Compre- Plan. hensive Plan represents planning in its truest sense -- it looks ahead and deals comprehensively with major aspects The Comprehensive Plan implies overall agreement on major of the environment. In contrast, a zoning ordinance is questions without a straight jacket of inflexibility; it short range in scope, dealing largely with the private use implies variation while working toward the achievement of of land. The Comprehensive Plan is a statement of policy common goals, and it implies adjustment of policies and while the zoning ordinance is a statement of law. And proposals as changing conditions may dictate. While a even though properly conceived and administered, a zoning properly administered Comprehensive Plan demands flexibil- ordinance is but one of many tools (as discussed in Part ity, variation and adjustment, any changes in policy or VII of this report) which are necessary to progressively of proposals must result from careful study independent carry out policies and proposals of the Plan. Since of pending applications for controversial zoning permits, zoning for years has been permitted under the law in the problems created by inadequate public facilities, temporary absence of planning, confusion has developed. Many fiscal problems, and other matters of the "moment". thousands of hours are wasted in controversy over zoning proposals throughout the state because zoning is handled The policies and goals of the Plan should not be changed out-of-phase. Zoning must be kept as a tool of planning merely to accommodate special public and private interests. rather than as its substitute. Nor should they be changed because of critical temporary conditions which may warrant a justifiable action contrary to Plan policy. The integrity of the Plan must be main- tained at all times if it is to be an effective instrument of public policy among the County, the cities, private enterprise and the public at large. Changes which may be required over the years should be made during the process of biennial review. However, if required sooner, a formal process of study, review and public hearings must be followed similar in nature to the initial process of Plan development and adoption. The word "planning" as applied to the process of guiding future growth is one of the most misunderstood functions of local government. The word often becomes synonomous with "zoning" when in reality planning and zoning are widely different in intent, character and function, it is there- fore in order to discuss their differences for the per- spective and understanding of the reader. Preparation and maintenance of a Comprehensive Plan is the most important responsibility of local government in PART VII CARRYING OUT THE POLICIES AND PROPOSALS OF THE COMPREHENSIVE PLAN INTRODUCTION In recognition of the requirements for Plan implementation, the County's current comprehensive planning program included The Comprehensive Plan can become an effective instrument of only two of the many tools necessary for carrying out the County and city government only if public officials and local Plan -- the Subdivision Ordinance and the Zoning Ordinance. citizens are able to understand its practical uses and limi- However, a variety of tools required for Plan implementation tations. It is not enough merely to prepare the, Plan and are discussed in this final section of the report to provide then expect its implementation to be automatic. Such an an overall perspective of the purposes, application and expectation will start a chain reaction of misunderstanding relationships of various tools to be utilized in the process. or needless public controversy which eventually will render the Plan useless in practical terms. If human needs and desires are maintained as the ultimate criteria for new programs and development, then public acceptance will follow progress toward accomplishing the primary goal of the planning process --a better environment for the people. The people are the heart of our system of government --the government, in fact, is the people. Their needs, both collectively and as individuals must be respected and given primary consideration. Proposals of the Comprehensive Plan will not be attained overnight. The task is continuous, on a weekly, monthly and yearly basis. Over a span of several years,,literally hundreds of recommendations on individual matters will be made by the city and County planning commissions and other appointive bodies. Decisions by administrative officials and legislative bodies will cover nearly every aspect of public and private development activity. An important test of the Plan will be the extent to which -agencies relate their actions to recommendations and decisions of the Plan. This can become a hopeless task unless the relative impor- tance and roles of the various methods by which the Plan can be carried out are known and understood. r, CO.ORDINATION OF GOVERNMENTAL ACTIVITIES Once a Comprehensive Plan has been adopted, the greatest challenge to the local planning agency is to promote coor- dination of the programs of many agencies of government -- local, state and federal --whose activities affect the development patterns of the planning area. The challenge is posed because each of the many agencies involved has distinct interests which rarely extend beyond concern for their single function. At first glance, coordination at the local level would appear relatively simple because local agencies are oriented to the same scene. However, such is not the case in practice because these local agencies do not always report directly to the same legis- lative body for complete policy direction. The challenge is further complicated by the fact that agencies of State and Federal government operating within the Deschutes County area are not always coordinated with the activities of their sister agencies at the same level. Planning agencies have no power to compel. Their real power lies in their ability to influence positively the programs and activities of other agencies. Since the planning agency is advisory to the legislative body, it must The Comprehensive Plan identifies the broad extent of needed look to the County Court (City Council) for policy directives public facilities and permit decisions on their general lo - establishing the framework within which other agencies may cation and relative importance as a matter of official policy. work with the planning agency towards the achievement of Upon adoption of the Plan, the need becomes one of scheduling overall goals. Two important tools for insuring systematic the provision of needed facilities over a period of years. coordination are the establishment of a long-range financial The device which will permit the programming of capital ex - plan and regular referral. penditures is called the long-range capital improvement program. Financial Plan Local government provides services to the people and regu- lates certain activities for the common good. Therefore, the more important decisions of local government are those which determine what services shall be provided and what activities shall be regulated., Of the many service require- ments of a growing population, those involving capital ex- penditures for public facilities are of particular impor- tance in carrying out the Comprehensive Plan. The framework for the systematic development of needed public facilities is provided by the Financial Plan. The capital expenditures involved generally fall into two cate- gories: (1) acquisition of land and rights-of-way; and (2) construction of major public works, such as major streets and highways, sewer and water systems, public buildings and recreation -parks. Over a period of years, these expendi- tures involve many thousands of dollars. Considering the growing competition for the use of these dollars, it is apparent that local government cannot hope to meet the requirements for new and expanded facilities by distrib- uting available funds equally among public works projects -- the spreading of money too thinly results inan inadequate job and often increases costs in the long run. Determining which facilities shall be provided becomes a critical policy matter, requiring careful scrutiny of the type of facility needed and the immediate and long-range fiscal capacities of local government. \ S6 5impiy stated, a capital improvements program is a priority list of public improvements which will be needed over a six to ten year period. From this list, projects are selected and recommended to the legislative body for inclusion in the annual budget. Each year, the program is extended to main- tain the long view. Financial data, including revenue es- timates, costs of capital projects and operating costs of projects once they are completed, becomes a vital part of the program. The role of the planning commission in this process is to review ail proposed projects to determine their conformity with policies of the Plan; to list and classify all pro- posed projects, and to recommend a coordinated program of public works for the ensuing fiscal year. All public agencies, including city school districts, and other special districts, should submit their capital improvement projects to the County for such review. Thus, the local planning agency becomes an important tool of governmental management, assisting the legislative body and operating departments (through the chief administrative officer) in one of their most vital and difficult responsibilities. The capital improvement program also encourages public understanding of major problems faced by local government in providing for the needs of an expanding population and economy. The capital improvement program is but one of the three major elements of a long-range financial plan. The services and revenue programs are the other essential elements of the financial plan. These elements provide a long look at the fiscal requirements for operating and maintaining public services and providing needed public improvements. The public services program seeks to balance the operating and capital expenditures for all public services with the area's needs and desires for these services. Capital improvements must be related to their operation and main- tenance costs if the gradual provision of these improvements are to be realistic. The revenue program deals with the acquisition and allocation of operating and capital expenditure funds necessary to carry out the public services and capital improvement pro- grams. The principal purpose of the revenue program is to identify all possible sources of revenue to determine the amounts of money which these sources realistically can be expected to provide. Once it is determined how much money will be available over a period of time, it is necessary to adjust the public services and revenue programs to keep them in balance. Preparation of the financial plan, however, should be pursued as a single project, considering all ele- ments at the same time. Because the property tax is the basic source of revenue to finance necessary public projects, it is important to note the relationship which should exist between tax policy and long-range fiscal planning. There must be a clear under- standing of the relationship between fiscal policy and the total set of objectives government seeks to attain over a period of several years. When anticipated revenue and spending is projected only on an annual basis, local govern- ment often finds itself shaping tax policy in a continual atmosphere of crisis. Each year, problems of financing and taxation become more difficult to resolve when there is no program of long-range fiscal planning to achieve long-range objectives. Tax policy should result from an explicit and clear definition of goals, evaluation of alternative plans and a deliberate choice from among the alternatives. Such a procedure will minimize the possibility of establishing spending and taxation policies by accident, often as a by-product of another decision. ,J�Sy Referral While the programming of public works is an important and essential tool, it is limited to the determination, finan- cing and construction of major public works which lend themselves to systematic scheduling. There remains a great need for dealing effectively with matters which develop on a week -by -week basis. The agendas of local governmental agencies are continuously filled with matters which develop "overnight." Because of the press of regular business and unfamiliarity with the various functions and interrelationships of governmental activities, there is often a lack of coordination, and the public interest suffers. The problem becomes one of es- tablishing effective procedures of "referral" --of keeping related agencies and the public informed on rapidly emerging problems, requests and changing conditions, and of developing a collective approach to meet them within limited time periods. Because referral items often must be processed swiftly if the public interest is to be properly served, care must be taken to establish procedures which will not consume time out of proportion to the importance of the matter being studied. Complicated procedures can thwart the expeditious and efficient processing of matters referred to or from planning agencies. This is particularly true in handling zoning or subdivision matters. The principle of "action within reasonable time limits" must prevail. The function of the planning commission in the referral process is both interpretive and instructional. By law, it is the only agency of local government charged with the responsibility of comprehensive study of all activities affecting physical development. The total value of the referral process can be realized only when the planning agency extends advice and counsel beyond the immediate task of determining the conformance of projects and development proposals with policies of the Comprehensive Plan. Through its research and study activities, the planning agency can materially aid a referring agency or private individual in the initial stages of project con- ception. Two classic examples are: (1) assisting a school district in determining needs and selecting alternate sites for school plants; and (2) assisting the subdivider in developing his plans before a preliminary plat is officially filed. It must be noted that the task of achieving coordination through referral requires a team effort. Many talents are required, including private as well as public, if the referral process is to be effective. Many public agencies are totally unaware of their legal responsibility to refer certain pro- jects to planning commissions. Occasionally, agencies simply ignore the requirement. Planning agencies also may fail to take advantage of the skills and knowledge possessed by other agencies before starting or completing a project. If the referral process is to be effective planning and other agencies must look to their legislative body for policy direction establishing the procedural framework for the process. DEVELOPMENT REGULATIONS The preparation and administration of development regulations traditionally has been the major activity of planning agencies in Oregon. Although not always fully understood by the general public, such measures as zoning, subdivision control and building codes have become familiar activities of local government. Planning commissions and legislative bodies can become so involved with regulatory measures that little time is available to develop sound policies as a basis for the regulations being administered. From a strictly planning point of view, it can be argued that development regulations have been advanced out of proportion to their importance, resulting too often in unreasonable and arbitrary decisions no matter how dedicated the attempt to avoid them. This is especially true in rural counties and communities where the pace of growth and development has not been rapid enough to point up the need for establishing planning policy as a basis for administering development regulations. The purpose of this section is to place the role of development regulations in proper per- spective in carrying out the Comprehensive Plan. Zoning Properly conceived and administered, the zoning ordinance becomes a most important means of translating proposals of the Comprehensive Plan into reality. However, it should be immediately,recognized that the scope of zoning is limited, dealing almost exclusively with the private use of land on a relatively short-range basis. Zoning is specific and precise and cannot be substituted for non -regulatory programs such as the financial plan, referral, and the preparation of more detailed plans establishing the feasi- bility and basis for development of major public facilities. The influence exerted by these kinds of programs on the development pattern is so great that zoning becomes, in part, a complementary tool, supporting policies involving the expenditure of large sums of public money. Controversies which develop in applying zoning often are a result of lack of attention to the role of non -regulatory programs in shaping community development patterns. A planning commission and city council can attempt to force urban land patterns in certain directions and at certain intensities, but it will not happen satisfactorily if the areas cannot be economically serviced with sewer and water facilities, if access is poor or non-existent, if the surrounding area is badly blighted or if there appears little prospect of other complementary facilities developing in the vicinity. Many city and county plans fall short of their goals because regulation through zoning and other measures are offered as the only means of carrying out the Plan. A zoning ordinance is being drafted as part of the County's current planning program, and will consist of a map estab- lishing the boundaries of various land use districts and a set of regulations and administrative procedures which govern the activities and standards of development permitted within the districts. The zoning ordinance should establish a definite relationship between land use regulations and policies and proposals of the Comprehensive Plan; it must provide sufficient flexibility to accommodate changing conditions; safeguards to assure the protection of individual liberty and the right of property and to avoid unjust dis- crimination must be balanced with the necessity for public regulation in the public interest. Subdivision Regulations In contrast with a zoning ordinance, which regulates land use, the subdivision ordinance sets forth specific standards of design and physical improvements for the development of land as a subdivision. A subdivision ordinance has been drafted and reviewed by the Citizens Advisory Committee for Planning. It prescribes standards for street and lot design, sewer and water service, storm water drainage, street lighting and fire protection facilities. Special requirements are included for reserving sites for public use and for conserving natural assets of the land. Years ago,(and even now) land was developed casually. It was not too important whether streets were paved or drained properly, whether a house was connected to a septic tank or public sewer, or whether sidewalks, lighting and fire hydrants were provided. But these conditions have changed because of continuous urban population growth, the demand for recreation subdivision lots, increased costs of public services and the ever present automobile. Building, Housing and Fire Protection Codes Up-to-date building, plumbing and electrical codes are important measures toward reducing trends of urban sprawl and further expansion of blighted housing conditions. These codes establish minimum standards of structural strength, plumbing and electrical installations, and fire protection. Potential zoning ordinance violations can be discovered and corrected in the process of checking building plans and Initial field inspection prior to construction. Quite often, advice and counsel can be given which will result in lower costs and better construction. The housing code is a means of securing proper light and ventilation, basic sanitary and heating equipment and mini- mum space requirements per occupant. A building may be structurally sound and yet lack basic facilities and equip- ment for a healthful living environment. Lack of a housing code poses an obstacle to achieving the gradual up -grading of older homes and prevention of the spread of blight. Health Regulations There are a number of health-related services and facilities which are vital in achieving Comprehensive Plan policies. Health regulations administered at both the State and local level can become a continuing positive force in checking the spread of blight and in avoiding problems of new development. The local health program should be evaluated carefully to determine areas requiring special attention in relation to the planning program. Regulations and advisory activities relating to on -lot water supplies, refuse collection and disposal, on -lot sewage disposal, interim sewage treatment plants, sewer and water connections, air pollution, water pollution, and housing are essential in maintaining a proper living environment. The long-range effectiveness of regulations dealing with these factors depends to a great extent on comprehensive and systematic attention. Regulations which are based on a "comprehensive environmental health plan" will provide assurance that the programs of the planning, health and public works agencies are being effectively coordinated. Specific Thoroughfare Plans and Building Line Setbacks In view of existing street deficiencies, coupled with the lack of funds to eliminate them, it is essential that coop- erative City -County -State efforts be made to protect existing and future street road and highway alignments from encroach- ment. The Comprehensive Plan identifies City, County and State street and highway needs. The task now is to establish specific plans for their alignments to facilitate the widening of existing road beds and the building of entirely new road facilities. Precise planning and engineering as far in advance of construction as possible is a necessity. Two legal devices may be used to protect the beds of existing and future streets: (1) the Official Map which can be used either for entirely new sections of streets and highways or to protect areas requiring only widening of the existing rights -of -ways; or (2) a building line setback ordinance along all roadways identified for protection. There can be no doubt that these two functions made possible by the joint cooperation of City, County and State agencies, can save the taxpayers many dollars over a short period of time. The cost of acquiring developed real estate can be so high that governmental agencies may be unable to acquire and build an essential facility. This, in turn, will create unsolvable problems of traffic movement and block development of desirable growth patterns. 4 9a. DETAILED STUDIES REQUIRED Since the development and adoption of a Comprehensive Plan is but the beginning step in the continuous process of planning, the plan -making activities of local government must extend beyond preparing and maintaining the Plan in an up-to-date form. There exists a major gap between identifying future needs on a broad scale and constructing facilities when needed. For example, the Comprehensive Plan indicates the probable extent of growth, but detailed plans must be prepared before sewer and water lines can be extended, school sites acquired and developed and arterial roads constructed. Several of these further plan -making activities require team efforts on the part of the planning agency and other agencies of government and private enter- prise. Refining Urban Elements of the Plan The plans which have been prepared for the four major urban areas of the County must now be refined to deal more specifically with the "internal" requirements for growth. This is particularly true for the Bend and Redmond areas, where the existing development patterns are sufficiently large and complex as to require the preparation of more specific plans for neighborhood areas. In order to develop plans for the enhancement of a community's "neighborhood" areas, it will be necessary to develop more refined studies and plans concerning such needs as housing and renewal, water and sewer facilities, parks and recrea- tion, industrial development, public buildings and grounds, esthetics, local streets, and airport facilities. Refining Proposals for Rural Service Centers As described in Part IV, specific plans must be developed for the County's rural service centers. Priority of attention should be given to Tumalo, Terrebonne and Deschutes Junction because of their close relationship to the larger urban areas of Bend and Redmond. Additional Elements of the Comprehensive Plan In order to carry out the policies and proposals of the Comprehensive Plan on a County -wide basis, additional ele- ments of the Comprehensive Plan will be required. Those elements in the following list which are marked with an asterisk (*) are those which the federal, and/or state governments have identified as being an essential component of a Comprehensive Plan for purposes of eligibility under grant-in-aid and loan programs: Environmental Management: Water and sewer facilities element (%`) Water quality management (%,) Open space and scenic conservation element (*) Flood control and drainage element (%;) Solid waste management Air pollution control element Noise pollution control element Housing Element (%;) Economic Development Element Public Services and Facilities: Comprehensive health element Fire protection element Law enforcement element Library service element Public utility element (gas, electricity and telephone) Governmental Management: Financial plan element () Information management � �3 Citizen participation (%;) Referral REVIEW AND PERIODIC REVISION OF THE COMPREHENSIVE PLAN An alertness to changing conditions and unforeseen impacts is essential to the success of any planning program. Whether it be a new college program, large industrial de- velopment or changes in the administration of local govern- ment, the planning program must respond to these shifts and unanticipated developments. Accordingly, the Compre- hensive Plan, based on the soundest of information and judgment available, must be kept up to date. At any point in time, two, five and ten years from now, the plan for future development should take both a medium and long- range look ahead. The Plan should be reviewed jointly by the cities and the County every two years, preferably during the winter season prior to formulation of the annual budget. It is doubtful that major changes will be required during the annual review period for the next 3-5 years. At least once every five years, the basic studies reviewed in Part 11 should be re -analyzed to determine whether revi- sions are necessary in the policies and proposals of the Plan and in the program of Pian implementation. I