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HomeMy WebLinkAboutPL20■ IN THE BOARD OF COUNTY COMMISSIONERS OF THE STATE OF OREGON FOR DESCHUTES COUNTY In the Matter of an Ordinance ) Establishing a Comprehensive ) Plan for Deschutes County ) VOL 32 PAvr 724 J L ' *01/1 , MgRyP��? 9�9 FRS000N ORDINANCE NO. PL -20 The Board of County Commissioners of Deschutes County,a political subdivision of the State of Oregon ordains as follows: 1. The Deschutes County Year 2000 Plan as amended to the date hereof (herein referred to as "The Plan"), is adopted pursuant to ORS 203.045 , 215.050, and 215.060 as the Comprehensive Plan for Deschutes County. A true copy of said Plan is attached hereto as Exhibit "A," incorporated herein by reference. The Map entitled "Deschutes County Comprehensive Plan", attached hereto as Exhibit "B," and signed on the date hereof by the Board of County Commissioners (herein referred to as "The Board"), is adopted as part of the Comprehensive Plan for the lands shown therein. ' 2. Quasi-judicial amendments may be made to The Plan in accord- ance with the procedures described in ORS Chapter 215, and County Procedural Ordinance PL -9 and subsequent amendments and revisions thereof. The Map referred to herein shall be maintained by the County Clerk, and any quasi-judicial amendments thereto shall contain legal descriptions of the affected areas, be filed in the Journal of the Board of County Commissioners, and shall become effective upon the date signed by The Board. The Planning Director shall maintain a true copy of the original map and draw theron all quasi-judicial amendments to The Plan, as they are made by The Board. yDt 32 25 Failure so to revise said Map shall not affect the validity of any Plan amendment. The Board may, from time to time, direct the Planning Director by order to replace Exhibit "B" or a portion thereof with a map which includes all lawful amendments to The Plan to the date of said order. Such map, or portion thereof, shall bear the dated, authenticating signature of The Board, and shall be filed as a replacement superseding Exhibit "B" with the County Clerk. Any map or portion thereof thereby replaced shall be retained in a separate file by the County Clerk. 3. In that the Land Conservation and Development Commission of the State of Oregon has required Deschutes County to adopt a Compre- hensive Plan for Deschutes County by November 1, 1979, in order to be in compliance with Statewide planning goals affecting the health, safety and general welfare of the public, an emergency is declared to exist, and this ordinance, pursuant to ORS 203.045(9) shall take effect upon adoption. ADOPTED this lst day of November, 1979. ATTEST: ^-- Cou ty Cle BOARD OF COUNTY COMMISSIONERS CHAIRMA t. COMMISSIONER COMMISSIONER VOL 32 mH 726 Z Alo O R08 1 19j9 Rypq��so N CO, C�ERk F I N A L DES CHUTES COUNTY GOAL EXCEPTION STATEMENT INTRODUCTION VOL 32 'A`` 727 The purpose of this document is to identify the lands where Deschutes County shall request the Oregon Land Conservation and Development Commission grant an exception to meeting the requirements of either Planning Goal 3 (Agri- cultural Lands) or Goal.4 (Forest Lands). Further, this statement shall also explain, the findings and reasoning which justifies such an exception be granted. During the preparation of the Deschutes County Comprehensive Plan it became apparent that many of the rural areas in the County had already received substantial development. These lands have largely been sold and become committed to non -resource uses. The County's plan is to restrict future division of the resource lands while recognizing that development which exists, and establishing a more efficient development pattern. Because of the rural development there have been created rural service centers to provide necessary public ji.e. schools) and private services to the rural population. These service centers reduce transportation require- ments and serve as a focus for social and some economic activities. Deschutes County has chosen to emphasize the rural service centers as the appropriate location for the services and facilities needed by the rural residents and to encourage most additional rural residences to be constructed in the rural service centers. This development of the service centers would then permit some limited rural living opportunities, while ensuring they occur in areas of existing development at higher densities, compatible with the rural environ- ment and consistent with future transportation and utility networks. To accom- modate the rural service centers some of the less productive resource lands are being committed to non -resource uses. The commercial areas are those vot " 32 FA -028 lands already developed or committed to commercial use, while the residential ureas are relatively small surrounding areas where some development has already occurred. The other areas being used for non -resource uses are thou lands included within the urban growth boundaries. Each of the three urban areas has identified an urban growth boundary (UGB). Inside the UGB the ultimate use of the land is to be of an urban nature. Each urban area plan contains the findings and reasoning which justifies the lands contained within that UGB; therefore, this statement will not address resource lands which are included in the urban areas. The flexibility which the exceptions process permits will allow Deschutes County to accommodate the existing and future needs of the County's ever-growing population, while serving as abase upon which the County can construct its plans for the protection of the resource lands which are so important to the local economy and environment. - 2 - VOL 32 fnr 729 METHODOLOGY To determine where an exception to the state goals is required it was first necessary to obtain adequate data as to the location of the lands with agri- cultural and timber capabilities. The Resource Element of the Deschutes County Comprehensive Plan contains maps which reflect the information that was gathered, and serves as much of the basis by which the County has determined what lands have agricultural and/or forest capabilities. Agricultural Lands One of the most hotly debated issues in the preparation of the Deschutes County Plan was agricultural lands. Considerable testimony and evidence was sub- mitted which indicated that the County is a relatively marginal agricultural producer. Other information pointed to the livestock capability of the area and the stability of agricultural production locally. Complicating the issue further was (and is) a lack of detailed soils information, which would have permitted the identification of lands with agricultural cap- ability Classes I - VI. The General Soil Map that was available for the county- wide area did not reflect the character of the soils locally. Much of the soil in the western and southern areas of the County is derived from pumice and ash that has been deposited in depressions in the underlying basalt. The result is pockets of soil with adequate rooting depth intermixed with some very low productivity areas. The result is certain areas, such as Lower Bridge, Terre - bonne, Cloverdale, Alfalfa, Tumalo and Redmond have a mixture of cropland rangeland and non-productive land. Other areas do not have the cropland and may find the rangeland varying in its ability to support livestock. - 3 - VOL 32 FnE 733 An example of the difficulty in using the General Soils D1ap is the Deschutes Deskamp Association which has the best agricultural capabilities in the County. Of that association six percent of the soils have "good"irrigation capability (the rating system uses excellent, good, fair, poor and very poor).. I "Fair" soils constituted 89 percent of the soils and the rest are poor or very poor. Yet a look at the topsoil capabilities of the soil indicate 50 -percent is "good", "fair'' is 12 percent, while "poor" is 38 percent. A look at the U.S.Soil Conservation Service data indicates the Deschutes Soils are generally class VI but can be classed as II and III when. irrigated, while Deskamp Soils are classes III and IV when irrigated and otherwise class VI. Some other less productive soils also are part of this association. What this seems to indicate is that even in the "best" County soils the agricultural capability is limited, there is considerable mixing with poor soils and that without irrigation water the land is only suitable for livestock. Obviously, what was needed was more detailed soils mapping. The local SCS office was able to furnish the County Planning Department with detailed soils mapping and agricultural capability maps for only that portion of the County near Terreborme, Redmond, Bend and Tumalo. This small area constituting only a portion of the known agricultural lands. To supplement the soils information the County obtained high altitude infra -red photography of the County, which clearly revealed the irrigated lands. Since crops require irrigation in Central Oregon this information could be relied upon to have identified the cropland areas. To determine the rangeland areas the County Assessor's records were surveyed to obtain all lands on farm tax deferral Because the County had an active deferral program it was determined that combining the soils, irrigated lands and farm deferral information would pro- duce a reasonable representation of all the private agricultural lands in the County. Public lands in agricultural areas were assumed to be agricultural - 4 - VOL 32 PAF- 731 for purposes of zoning while public lands in forested areas were assumed to be timber areas, unless some toher use was known to exist on a particular site. Using the preceding information and assumptions, the County was finally able to determine the local agricultural lands in an ob- jective amd empirical manner. Forest Lands The identification of lands with timber producing capabilities was not chacterized by as much controversy. Working with the Oregon Department of Forestry, the County Planning Staff utilized a document entitled, A Technique for Mapping Forest Land by Site Productivity Using Soil Survey Information. The techniques supplied by this document, coupled with the experience of local ODOF foresters, permitted the drafting of the Timber Productivity Map, which can be found on page 86 of the Comprehensive Plan's Resource Element. Utilizing this map, it was possible to determine the lands with commercial timber potential (High -site Class 4 through Moderate -site Class 6). It was immediately apparent that the Lapine and Black Butte areas, which have received significant recreational and rural develop- ment, were going to be in conflict with the requirements of the Forest Lands Goal. However, before taking any formal action, it was necessary to determine the extent of the lands already developed, and what remained to be utilized for timber. - 5 - VOL 32 PAUf 732 EXCEPTIONS ANALYSIS To determine which lands are already committed to development, aerial photography at a scale of 2" = 1 mile was obtained and used as a base map. Areas of concern not covered by the aerial photography were few and in these instances, other maps were obtained. Lapine - First the public lands were identified. Since these areas are to be zoned for timber, they were excluded from consideration. Next private agricultural and timber lands were identified and marked for an appropriate zone complying with the state goals. Thirdly, all lands upon which a house had been constructed, were identified. And, finally, all lands which had been subdivided or partitioned into parcels less than 10 acres in size, were added to the map. The result was a series of overlays indicating which areas are substantially committed to residential development; committed to timber or agriculture; and, uncommitted. In the Lapine area these categories amount to the following: Residential Committed . . . . .13,048 acres Resource Committed . . . . . . 18,232 acres Uncommitted . . . . . . . . . . 4,860 acres Redmond -,The major concern in the northern portions of the County was compatibility with the Agricultural Lands Goal. Again, on the aerial photo base map, the private and public lands were identified. The public lands were marked for agricultural (or other resource) use. Lands which met the agricultural definition (SCS Class I -VI soils, or where detailed soils information was unavailable, identification as having obtained Farm Tax Deferral in the five years preceding the plan or found under irrigation as shown on the County's Irrigated Lands Map) were determined. Then the houses which had been constructed and the - 6 VOL 32 WE 733 lands which had been subdivided were added. From the resulting map, it was possible to determine those areas where substantial development had taken place, and therefore, to be identified as committed lands. In areas where agriculture continued to be the predominant use, the development was seen as not committing the area to further division and the area was to be zoned as an agricultural district. In addition to the agricultural and forest lands, there is in addition,. a 56 acre parcel containing aggregate deposits which is being excepted in the Tumalo area. This parcel is surrounded on three sides by existing residential development which would be incompatible with mining the resource, particularly when alternative aggregate sites exist. The Redmond N1ap reflects the following figures: Residential Committed . . . 16,868 acres Resource Committed . . . . . . 1, 0 5 9 acres Uncommitted . . . . . . . . .14,780 acres Bend - The process followed in the Bend area was the same as that for the Redmond. area and the results were very similar, although even more residential development has occurred because of proximity to the City of Bend: Residential Committed . . . . 9,894 acres Resource Committed . . . . . . 46,716acres Uncommitted . . . . . . . . 7,315 acres In addition to the preceeding, 95,227 acres East of Horse Ridge are being designated for Exclusive Farm Use. The remainder of the private lands in the County are either in private forest lands being protected for timber production or within one of the three urban growth boundaries. 7 - VOL 32 FA; E 734 Near the Bend Urban Growth Boundary an additional 360 acre area originally identified as Surface Mining Reserve has been changed to agricultural because of testimony indicating incompatibility with surrounding development. There also existed testimony that other sites were available which would not be so offensive. VOL 32 MUE. M EXCEPTION AREA PLAN It is apparent that Deschutes County has had significant rural develop- ment in the past. From the perspective of the state land use goals, perhaps this rural area growth is unfortunate, however, it is an existing reality. The County's efforts shall be aimed at recognizing those areas that are committed and servicing them in the most efficient and equitable manner possible. On the other hand, there are also policies in several sections of the Comprehensive Plan (particularly the Rural Development Agriculture, Forest Lands and Public Facilities chapters) which seek to prevent further losses of resource lands. Each of the three areas is dealt with separately and a program drafted to fit that area's particular needs. The major differences in the programs largely result from whether they involve agriculture or forest land. LaPine The subdivisions in Lapine are characterized by small lots (one acre or less) and to a great extent have already been sold. Some have been purchased for retirement, others for speculation and some for an immediate permanent residence. In those areas where subdivision, construction and existing rural services have largely committed the land to residential use (see Lapine Map) Deschutes County proposes to zone the area for rural residential, rather than forest lands. The rural residential zone would permit the construction of homes, but the new 10 acre minimum lot size would prevent further significant division. These areas would then satisfy the need for recreational and lower cost rural lots in the County. Other County actions to encourage clustering, foster adequate public facilities and prevent development - 9 - VOL 32 Fhn x136 in,hazardous or resource areas, would ensure the growth of the area is consistent with appropriate economic, social, environmental and energy considerations (see the Rural Development chapter of the Comprehensive Plan). Resource areas would be committed to resource use, as would be the uncommitted lands. The encouragement of small -forest land management for the smaller acreage timber lands that can be found between the residential and large - ownership timber areas shall be a County policy. In this way the small timber owners are compatible with each adjoining use, while buffering the residential and timber areas from each other. Redmond On the committed lands the County will establish a Multiple Use Agricultural (MA) Zone which will encourage the use of these lands as agricultural, although at a "hobby farm" or non-commercial level which requires a subsidy of the agricultural operation by employment elsewhere. Here again the County seeks to supply the need for rural living opportunities and the need to subsidize more marginal farm land by non-agricultural employment to maintain the area's farm production (see Agricultural chapter of the Compre- hensive Plan). But equally important is the recognition that the development and services exist already and must be dealt with. County policies shall seek to encourage clustering of housing and to otherwise improve the efficiency of supplying services to these existing areas while preventing substantial increases in the rural population. Better review of proposed development -10 - VOL 32 FACE 737 is also established with the new plan and ordinances to assure the long- range economic, social,environmental and energy effects are acceptable. The WA areas also serve to provide a buffer between residential and agricultural lands, while permitting some people to enjoy a rural lifestyle. More stringent enforcement of the goal would save little agricultural land and would not make farming more viable than will the proposed course of action. A stricter policy would certainly adversely effect a large segment of the population and raise serious questions in regard to the County's ability to satisfy state Land Use Goal 10 (housing), which requires the County to provide a variety of housing opportunities to meet the needs of the area's population. The conditions in the area covered by the Bend map are the same as those in the Redmond area. Actions proposed for the Bend area are the same as the Redmond area. Rural Service Centers Rural service centers -are a special situation. Originally established to provide needed public and commercial services to rural areas thereby increasing public services while receiving transportation costs, these centers have had mixed results. Some have been very useful in providing necessary facilities, I while others have been used to foster sprawl. One of the purposes of the new County Comprehensive Plan is to identify which of the existing rural service centers should be continued and where new ones shall be established. The plan identifies nine RSC's and leaves the possibility of another in the future as an option if needed. The nine - 11 VOL 32 FADE 738 identified were; Alfalfa, Brothers, Hampton, LaPine, Millican, Terrebonne, Tumalo, Whistlestop and Wickiup Junction. Of these only Brothers, Hampton and Millican are not on the three aerial photo base maps. All the others except Alfalfa, are within the areas identified as having significant exist- ing.development and are designated as already committed to development. Alfalfa is a special case in that existing development consists of a small store, a public school and a few nearby farm and non-farm residences. The land identified for the center is that containing the store and lands owned by the Central Oregon Irrigation District and Alfalfa Water Users Association. The expectation is that these lands will be needed.for facilities necessary to the continued existence of Alfalfa, which may include some limited commercial use and residences (at a five acre density three houses would be permitted). No other sites exist for the location of the center and the land is not pre- sently creating agricultural products. The proposed development would cer- tainly be compatible with existing and proposed uses and consistent with the County's long-range environmental, economic, social and energy policies. Brothers, Hampton and Millican are small communities along Highway 20, in the eastern portion of the County. Each community has small existing commercial and residential areas. These uses serve important functions for the residents of the area and transients through the area. Without these centers local residents would have a -long (sometimes impossible) drive into Bend for gasoline, groceries, etc. The areas identified in the plan are those already in existence. Once again the County is simply recognizing that which exists.. The centers are also important public service and social activity focal points. No alternative sites are available or desirable, and their anticipated environ- mental, social, economic and energy consequences are seen as beneficial. - 12 - VOL 32 FAI,;E 139 TOTAL AREA The total area to be excepted from the State Land Use Planning Goals is 39,810 acres. These lands are those residentially developed, committed to development or needed for rural service centers. Once again the County's purpose here is to recognize that which exists, while attempting to foster an efficient and equitable plan for the County's growth. - 13 - VOL 32 tAGE 743. CONCLUDING RBIARKS This exceptions statement is not meant to be an elaborate document. Deschutes County is not proposing large new areas for rural development. The primary concern is simply to acknowledge the development which exists, and to seek reasonable ways to deal with those committed lands. Many areas which have some development, but not enough to justify identification as committed. lands, have been placed in resource zones which will permit non - resource uses only by conditional use on non-productive sites. Only those areas with significant amounts of development have been identified and the County has developed policies to promote greater efficiency in the growth of those areas. In light of County policies encouraging other dlter11at1vCj (i.e rural serviue centers and urban pians) when combined with increasing service and energy costs, it is anticipated actual development will not actually use all the excepted areas. To obtain approval of any future rural develop- ment will be more difficult than in the past, and shall be compatible with County needs and state planning goals. - 14 - 1 1 1 VOL 32 PA -CE 741 vol 32 FACE 742 DE SCHUTE S COUNTY Y E A R 2 Q 0 0 COMPREHEN S IVE PLAN OCTOBER 1 9 7 9 TABLE OF CONTENTS Y01 32rnf743 THINGS YEi TO BE DOIZ . . . . . . . . . . . . . . . . . . . . . . . 179 121PLF NTATION . . . . . . . . . . . . . . . . . . . . . 162 CONCLUDING REMAR1KE . . . . . . . . . . . . . . . . . . . . . . . . . 191 Page INTRODUCTION. . . . . . . . . . . . . . . . . . . . . . . . . . . 1 DEFINITIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 EXISTINGCONDITIONS . . . . . . . . . . . . . . . . . . . . . . . 18 PLANNING ORGANIZATION . . . . . . . . . . . . . 27 ALTERNATIVES. . . . . . . . . . . . . . . . . . . . . . . . . . 33 GOALS AND POLICIES . . . . . . . . . . . . . . . . . . . . . 40 GROGJTHMANAGII�nm . . . . . . . . . . . . . . . . . . . . . . . . . . 45 Rural Development . . . . . . . . . . . . . . . . . . . . . 46 Urbanization . . . . . . . . . . . . . . . . . . . . . . 75 Economy . .. . . . . . . . . . . . . . • . 84 Housing . . . . . . . . . . . . . . . . . . . . . . . . . . 90 Transportation. . . . . . . . . . . . . . . . . . . 94 Public Facilities and Services . . . . . . . . . . . . . . . . 107 Recreation . . . . . 117 Energy . . . . 125 Natural Hazards . . . . . . . . . . . . . . . . . . . . . . . . . 132 RESOURCEMANAGEMENT . . . . . . . . . . . . . . . . . . . . . . . . . 137 Agriculture . . . . . . . . . . . . . . . . . . ... .. . . . . . 138 ForestLands . . . . . . . . . . . . .. . . . . . . . . . . . . . 148 OpenSpaces . . . . . . . . . . . . . . . . . . . . . 152 Surface Mining . . . . . . . . . . . . . . . . . . . . . . . . 158 Fish and Wildlife . . . . . . . . . . . . . . . . . . . . . . 163 Historic and Cultural . . . . . . . . . . . . . . . . . . 167 Water . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 170 CITIZEN INVOLVE` . . . . . -. . . . . . . . . . . . . . . . . . . . 174 PLAN FLEXIBILITY AND UPDATING . . . . . . . . . . . . . . . . . . . 177 THINGS YEi TO BE DOIZ . . . . . . . . . . . . . . . . . . . . . . . 179 121PLF NTATION . . . . . . . . . . . . . . . . . . . . . 162 CONCLUDING REMAR1KE . . . . . . . . . . . . . . . . . . . . . . . . . 191 VOL 32 rxE 744 'DESCHUTES COUNTY COMPREHENSIVE PLAN INTRODUCTION Recent years have witnessed dramatic growth and change in Deschutes 1 County. A rapidly increasing population causes ever greater pres- sures on the land as well as the economic, governmental and social structures of the area. These pressures require many adjustments. Unfortunately, in the past, many of these public decisions on land 1 use and related matters were made without adequate consideration of alternatives or consequences. To provide part of the answer, the comprehensive planning process has been developed. This process provides for the gathering of information, the prudent review of alternatives and the final development of reasonable policies. In ithe present case, the local need for planning is also spurred by the requirements of the people of Oregon, as manifested through the Legislature and the Land Conservation and Development Commission, which require all local jurisdictions to prepare adequate plans and planning programs. PURPOSE The purpose of the Comprehensive Plan for Deschutes County is not ' to provide a site-specific identification of the appropriate land uses whicn may take place on a particular piece of land but rather J it is to consider the significant factors which affect or are affected by development in the County and provide a general guide to the various decisions which must be made to promote the greatest efficiency ana equity possible, while managing the continuing growth and change of the area. Part of that process is identification of an ap- propriate land use plan, which is then interpreted to make decisions about specific sites (most often in zoning and subdivision administra- tion) but the plan must also consider the sociological, economic VOL 32 PAGE 745 ' and environmental consequences of various actions and provide guidelines and policies for activities which may have effects beyond physical changes on the land. 1 The plan must also consider factors other than those of a strictly local nature because the policies must serve not only as an inter- nal guide but also as a way of relating to the larger society of , which we are a part. The planning process has to be oriented toward the production of the most beneficial long-range results possible for the residents of the community, not as an end to growth, but as a way to guide growth for the general welfare of the public_ THE PROCESS In Deschutes County, as well as throughout the State of Oregon, there is a strong commitment to citizen participation in the. planning process. This is consistent not only with state regula- tions, but also withstandardlocal planning practice and common sense, because citizen involvement with the planning process im- proves the quality of the plan and insures greater acceptance of the final document since it is the direct product of the people's involvement. Deschutes County's citizen involvement program involved hundreds of participants representing the various geographic areas and interests in the County. Thousands of hours were spent by the citizens in the preparation of the plan. Predictably, because of the plan's importance to the future of the residents of Deschutes County, there is still controversy and continual improvements are being made. The planning process calls for regular updates to assure that the plan is functioning properly and adapting to the changing needs of the local populace. Undoubtedly, the on-going participation of the local citizenry will be an important part of that process. 1 i r t 11 1 VOL 32 SAG_ 46 THE PLAN The Deschutes County Comprehensive Plan is a reflection of the needs and desires of the people now and for the future. Important re- sources, such as agriculture, wildlife'and forest lands, have been identified and marked for protection. The inefficient, ex- pensive development pattern which has characterized the County's growth in recent years is being restricted. Emphasis is being placed on accommodating development in urban areas, while providing areas in and around Rural Service Centers and on the urban fringes for those who wish to live in a rural area. This growth pattern is considerably more efficient, as far as energy and public facilities are concerned, as well as less environmentally damaging than the present land use pattern. Further, this polynucleated pattern will lend.itself to the future transportation, public service, energy, housing and urban expansion needs of the County during and beyond the present 20 year planning period, while preserving as much as possible, the rural character and environmental quality of the area. By maintaining large open -spaces and keeping development clustered together along transportation/energy corridors not only is sprawl reduced but services may be provided more efficiently and air pol- lution may be kept at lower levels. Naturally, the plan must be a compromise between the need for protec- ting existing resources and the demand to accommodate a growing popu- lation. Intermixed in this situation are also the complexities of individual rights and the public's needs. Difficult decisions have been made. More will yet be required. However, the County Compre- pensive Plan will serve as a appropriate and useful basis for making those decisions and will serve the needs of the people of Deschutes County well, especially as long as the people stay involved - working toward the goals they have set in this plan. _ 3_ ` VOL 32 FACE 747 DEE'INITIONS Access or Access Way: the place, means, or way by which pedestrians ' and vehicles shall have safe, adequate and usable ingress and egress to a property or use. ' Aquifer: a water -bearing rock, rock formation, or group of formation . Annexation: to add or join to, append or attach, especially to a P y larger, or more signigicant thing. To incorporate into a county or city. Annexation is the process by which usually contiguous fringe territory is added to an existing municipality. Archeology: the systematic recovery by scientific methods of materia evidence from man's life and culture inas p t ages and the detailed study of this evidence. The study of antiquity, ancient times or ' early conditions. Architectural Control: regulations and procedures requiring struc- tures to be suitable, harmonious and in keeping with the general ap- pearance, historical character or style of their surrounding area. Average: a number that typifies a set of numbers of which it is a function. The arithmetic mean. Berm: a narrow ledge or shelf, as along a slope. Relative to I surface mining operations, a berm is a mound of dirt used for screen- ing operations or for storage of material to use during reclamation of the mining site. I Bonuses: (also known as incentive zoning): the awarding of bonus credits to a development in the form of allowing more intensive use of the land if such public benefits as greater than the minimum open spaces or agricultural lands are preserved, special provisions for r low and moderate income housing are made, or public plazas and courts' are provided at ground level. VOL 32 PAGE 748 ' Buffer Zone: a strip of land created to separate and protect one type of land use from another; for example, as a screen of planting or fencing to insulate the surrounding area from the noise, smoke, or visual aspects of an industrial zone or junkyard. In other instances, a greater width of land to separate and protect farm production from ' more dense, urban land use. Capital Improvements --Program: a timetable of public improvements budgeted to fit the jurisdiction's fiscal capability some years into the future. ' Cluster Development: is intended to concentrate residential im- provements and to preserve and.protect open land; should be con- sistent with the public facilities and services policies; should ' require a minimum of 65 percent open land and a maximum of 35 per- cent for improvements (excluding fencing) of the contiguous land ' under the same ownership. Community Facilities: public or privately owned facilities used by the public, such as streets, schools, libraries,.parks, and play- grounds; also facilities owned and operated by non-profit private agencies such as churches, settlement houses and neighborhood asso- ciations. Commuter: a person who travels regularly from one place to another, as from a suburb to city and back. Comprehensive Plan: a generalized, coordinated land use map and policy statement of the governing body of a state agency, city, coun- ty or special district that inter -relates all functional and natural systems and activities relating to the use of lands, including but not limited to sewer and water, transportation, educational and ' recreational systems and natural resources and air and water quality management programs. "Comprehensive" means all-inclusive, both in 1 - s- VOL 32 FACE 749 terms of the geographic area covered and functional and natural ac- tivities and systems occurring in the area covered by the plan. "Generalized", means i a summary of policies and proposals in broad catagories and does not necessarily indicate specific locations of any area, activity or use. A plan is "coordinated" when the needs of all levels of governments, semipublic and private agencies and the citizens have been considered and accommodated as much as pos- 11 I I 1-1 sible. "Land" includes water, both surface and subsurface and the , air. Conditional Use: a use which meets certain conditions and may locate t some zoning districts provided it will not -be detrimental to the publ' health, morals and welfare and will not impair the integrity and chart- ter of the zoned district. , Conservation Easement: a tool for acquiring open space with less than full -fee purchase; the public agency buys only certain speci- fic rights from the owner. These may be positive rights, giving the public rights to hunt_, fish, hike or ride over the land, or they .may be restricted rights limiting the uses to which the owner may put his land in the future. Scenic easements allow the public agency to use the owner's land for scenic enhancement such as roadside land- scaping and vista point preservation. Dedication a turning over of private land for a public use by an ' owner or developer and its acceptance for such use by the governmental' agency in charge of the public function for which it will be used. Dedications for roads, parks, school sites or other public uses are often made conditions for the approval of a development. Dedication,payment in lieu of: cash payments required as a substitute for a dedication of land by an owner or developer usually at so many ' dollars per lot. This overcomes the two principal problems of land - dedication requirements by applying the exactions on development more I_1 Vbl 32 FACE 750 equitably and by allowing purchase of sites at the best locations ra- ther than merely in places where the development is large enough to be required to dedicate a.school or park.. Density: the number of residential dwelling units per acre of land and/or. the amount of land area expressed in square feet of land as- signable to each dwelling unit in a residential development, includ- ing but not limited to, one house on one lot. It is computed as follows the gross area of land within the development, less the total aggregate area dedicated for streets, schools or other public facilities, but not including public or private parks and. recreation facilities dedi- cated or created as an integral part of the development; divided by the total number of dwelling units in the proposed development, equals the density. Density Transfer: a technique of retaining open space by concentrating residential densities, usually in compact areas adjacent to existing urbanization and utilities,where outlying areas are being left open, so that the residential density of the entire community will average out at the same number of dwelling units as if the community were devel- oped from end to end with large lots. A variation of this involves allowing density transfers by private developers who buy the develop- ment rights of outlying properties that are publicly desirable for open space and adding the additional density to the base number of units permitted in the zone in which they propose to develop. Destination Resort: is a resort which is basically self-contained; provides most or all services and facilities including but not limit- ed to fire and police protection, water and sewer; provides a variety of recreation facilities, is comprised of privately -owned residential units, lots intended for residential uses and general use facilities (such as a lodge or a recreation facility) intended and -7- VOL 32 MUE 751 suited for ownership incident to the ownership of residential units and lots; has a property owner association is set-upn , to rent living accommodations to vacationers, caters only incidentally, if at all, , to.drop-in trade; serves custom -prepared food; offers limited com- mercial functions for guests; and is basically designed for vaca- tion use by the -non-residents. Black Butte Ranch and the Inn of the Seventh .fountain, near Bend, are existing examples - ' p of desti na tion.resorts. ' Dude Ranch: a ranch operated primarily or in part as a resort which offers horse -related activities as its primary outdoor recreation ' opportunities and provide only temporary rental accommodations, serves custom -prepared food and which is intended and suitable only for vacation use by non-residents. Easement: a right afforded a person to make limited use of another's .real property, as a right-of-way. ' Eminent ;domain: the right of a government to appropriate private property for public use or benefit upon payment of just compensa- tion omPensa-tion to the owner. The terms "eminent domain" and "Condemnation are often used interchangeably, although condemnation may also mean the demolition by public authority of an unsafe structure where no ' compensation is paid to the owner and the condemned property does not become public land. "Inverse condemnation" is a condition in ' which the use of police power to regulate the use of land is so severe that it represents a de facto taking of private property for public benefit or use without just compensation. ' Erosion: to erode is to wear away by or as if by abrasion, dissolu- tion, transportation, weathering and corrosion. The removal, loosen- , ing or dissolution of earth or rock material from any part of the , earth's surface. Exception: (also called variance) the official provision of an VOL 32 fAGE 752 exemption from compliance with the terms of conditions or a building or zoning regulation by a local board or administrator vested with the power to authorize it. It is usually granted if there are practical difficulties in meeting the existing requirements literally, or if the deviation or exception would not have a detrimental impact on ad- jacent properties or affect substantial compliance with the regula- tions. While an exception (or variance or special use) is a departure from the standard application of the zoning ordinance, it is provided for within the ordinance. Goals: in terms of land use planning, the mandatory statewide planning standards adopted by the Land Conservation and Development Commission pursuant to ORS 197.005 to 197.430 and the goals adopted in this plan. Groundwater: water beneath the earth's surface between saturated soil and rock that supplies wells and springs. Improved Land: raw land that has been improved with basic facilities such as roads, sewers, water lines and other public infrastructure facilities in preparation for meeting development standards. It some- times refers to land with buildings as well, but usually land with buildings and utilities would be called a developed area, while the term "improved land" more often describes vacant land with utilities only. to official decisions in regard to the distribution and intensity of private development, as well as public decisions on the location of future public facilities and open spaces. It is also a basic guide to the structuring of zoning and subdivision controls, urban renewal and capital improvement programs. LCDC: the Land Conservation and Development Commission of the State of Oregon. Leapfrog Development: land development that occurs well beyond the existing limits of urban development and thus leaves intervening vacant land behind. This bypassing of the next -in-line lands at the urban fringe results in the haphazard shotgun pattern of urban- ization known as "sprawl". Median: the middle value in a distribution, above or below which lies an equal number of values. Mobile Home (trailer): a factory -built home, equipped with all of - to- II� I 11 11 J VOL 32 FACE 753 f In -filling: the use of undeveloped lands in areas of existing high densities. ' housing and Interim or Study Zone: a zoning technique used to.temporarily freeze , development in an area until a permanent classification for it can be decided upon. It is generally used to preserve the status quo , while an area or communitywide comprehensive plan is prepared to basis for zoning. ' serve as a permanent Land Use Plan: a basic element of a comprehensive plan, it desig- nates the future use or reuse of the land within a given jurisdic- tion's planning area and the policies and reasoning used in arriving , at the decisions in the plan. The land -use plan serves as a guide to official decisions in regard to the distribution and intensity of private development, as well as public decisions on the location of future public facilities and open spaces. It is also a basic guide to the structuring of zoning and subdivision controls, urban renewal and capital improvement programs. LCDC: the Land Conservation and Development Commission of the State of Oregon. Leapfrog Development: land development that occurs well beyond the existing limits of urban development and thus leaves intervening vacant land behind. This bypassing of the next -in-line lands at the urban fringe results in the haphazard shotgun pattern of urban- ization known as "sprawl". Median: the middle value in a distribution, above or below which lies an equal number of values. Mobile Home (trailer): a factory -built home, equipped with all of - to- II� I 11 11 J VOt 32 �f E 754 the basic amenities of a conventional home (bath, kitchen,elec- tricity), which can be moved to its site by attaching it whole or in sections to an automobile or truck. (A trailer is a much smal- ler mobile shelter, usually used for camping and outings rather than as a permanent dwelling). Prefabricated modular units currently come complete with built-in furnishings, appliances, porches and other extras. "Double-wides" and "triple-wides" are units connected to- gether to form a single structure of size and roof design similar to that of a conventional home built on a foundation on site.. Mobile home parks rent spaces with utility hookups to mobile home owners; sometimes they also rent the mobile homes. The parks range in size from a few parking spaces equipped with plumbing and electrical con nections..to elaborate mobile -home communities with swimming pools and community centers. About a quarter of the single-family home sales since 1968 have been captured by mobile homes. Moratorium: in planning, a freeze on the approval of all new devel- opment pending the completion and adoption of a comprehensive plana In recent years, building moratoriums have also been instituted by water and sewer agencies when sewage treatment facilities are inadequate or when water shortages are threatened. They have also been voted into being by residents of communities whose schools and other public facilities have been overwhelmed by rapid growth. Multiplier Effect: an economic base multiplier is a mathematical de- vice used to estimate the number of jobs that will be created in service or nonbasic industries which will provide needed goods and services to'the new community residents (such as retail stores, professional services, entertainment facilities, etc.) because of new employment in basic industries, such as manufacturing.An example might be as follows: VOL 32 PAGE 755 300 total_ 100 new jobs 150 new jobs in 50 new jobs - + private services + in public services new jobs in steel plant (groceries, eta) (police, fire, etc.) the Base Multiplier here is 3..0 ' The Base Ratio is 1:2 So, for every new basic job there is created two nonbasic jobs, or ' three new jobs totally. ' Open Land: is land without tree cover, land which is exposed, land .without cover except grass, brush and sparse or immature trees; lands' or topography which are not such as reasonably to conceal structures, improvements and personal property. Open Space: that part of the countryside which has not been developed , and which is desirable for preservation in its natural state for ecological, historical or recreational purposes, or in its culti- vated state to preserve agricultural forest, or urban greenbelt areas ' More specifically, open space consists of any land area that would, if preserved and continued in its present use: a. Conserve and enhance natural or scenic resources b. Protect air or streams. or water supply ' c. Promote conservation of soils, wet lands or beaches ' d. Conserve landscaped areas, such as public or private golf courses, that reduce air pollution .and enhance the value of abutting or neighboring property e. Enhance the value to the public of abutting or neighboring parks, , forests, wildlife preserves, nature reservations or sanctuaries or other open space f. Enhance recreation opportunities ' g. Preserve historic sites ' voL 32 Pta 7% h. Promote orderly urban development. Parcel: a unit of land that is created by a partitioning of land. Partition: either an act of partitioning land or an area or tract of land partitioned as defined below: ' "Partitioned land" means to divide an area or tract of land into two or three parcels within a calendar year when such area or tract of ' land exists as a unit or contiguous units of land under single owner- ship at the beginning of such year (ORS 92.010). Performance Standards:Zon ing regulations providing specific criteria. ' limiting the operations of certain industries, land uses, and buildings to acceptable levels of noise, air pollution emissions, odors, vi- bration, dust, dirt, glare, heat, fire hazards, wastes, traffic gener- ation and visual impact. This type of zoning may not bar an industry ' or use by specified type, but rather admits an use that can meet P Y ' the particular standards of operation set for admission. Instead of classifying industries in districts under the headings "light", "heavy" or "unrestricted", it establishes measurable technical stan- dards and classifies the industries in terms of their probable environ- mental impact. Terms such as "limited", "substantial" and "objection- able" determine the overall acceptability rating of a pi.a:ticular use. Planned Community: a fully self-contained complex of residential, commercial and industrial areas, transportation facilities, utililities, public facilities and recreation areas. Planned Development: (PD) a self-contained development, often with a mixture of housing types and densities, in which the subdivision and zoning controls are applied to the project as a whole rather ' than to individual lots as in most subdivisions. Therefore, densi- ties are calculated for the entire development, usually permitting a trade-off between clustering of houses and provision of common open space. - 13- VOL 32 FACUE 757 Plat: a map, diagram, drawing or replat or other material contain- i ing all.the descriptions, locations, specifications, dedications, provisions and information concerning a subdivision. i Police Power: the inherent right of a government to restrict an individual's conduct or his use of his property in order to pro- i tect the health, safety, welfare and morals of the community. In i the U.S., this power must relate reasonably to these ends and must follow due processes of the law; but unlike the exercise of the i state's power of eminent domain, no compensation need be paid for losses incurred as a result of police -power regulation. i Predominant Lot Size: the most frequently occurring lot size in a i given area. The arithmetic mode of lot sizes. Right -of -Way (ROW): the right of passage over theproperty of anoth- er. The public may acquire it through implied dedication -accepted access over a period of time to a beach or lake shoreline, for ex- i ample. More commonly, it refers to the land on which a road or i railroad is located. The pathways over which utilities and drain- age ways run are usually referred to as easements. i Riparian (zone, habitat, or vegetation): of or pertaining to the bank of a river, or of a pond or small lake. Riparian habitat is i river bank vegetative cover and food for many wildlife species. i Road Types: Arterial: roads designed for through access between major traffic i generators. Arterials provide primarily for the traffic mobility needs. i Collector: roads which gather the traffic from local roads between i arterials. These roads provide a balance between the needs of land access and traffic mobility. i Local:roads designed for land access, serving local traffic only. i 14- ' VOL 32 FACE 758 Rural Lands: those lands outside recognized urban growth boundaries ' which are necessary and suitable for such uses as: a. exclusive farm use b. general agriculture ' c. forest d. rural residential ' e. rural service center f. destination resort, dude ranch, planned community g. landscape management h. special ;interest .areas . i. open space j. fish and wildlife protective area k. recreation 1. surface mining ' Industrial, commercial and urban and suburban residential uses are not generally appropriate on rural lands. Rural Service Center: an unincorporated convenience -commercial and residential center of a nature and size only as required to serve the convenience -commercial needs of the surrounding rural lands. Planning area boundaries are not the boundaries for rural ' service centers. Scabland: level and undulating upland plains where blisterlike out ' crops of basalt occur. Scabland consists of areas in which the bedrock, stony shallow soil and soil -forming material predominate. The natural vegetation consists mainly of big sagebrush, open stands of juniper, rabbit -brush bunchgrass and annual grasses and asso- ciated herbs. Level areas can be suitable for irrigated pasture. ' Septic Tank: a tank plus a leaching field or trenches in which the sewage is purified by bacterial action. It is distinct from a - )67- VOL 32 FAU,L 759 cesspool, which is merely a perforated buried tank that allows ' the liquid effluent to seep into the surrounding soils but retains most of the soils and must be periodically pumped out. ' Sewage System: a facility designed for the collection, removal, treatment and disposal of waterborne sewage generated within a given service area. It usually consists of a collection network ' of pipelines and a treatment facility to purify and discharge the treated wastes. ' Shall: the word "shall" indicates a mandatory, non -discretionary policy or regulation. ' Should: the word "should" indicates a non -mandatory, discretionary policy or regulation. Silica or Siliceous: a white or colorless crystalline compound, Sio2 , occurring abundantly as quartz, sand, flint, agate and many other to materials and used manufacture a wide variety of materials, notably glass and concrete. , Special District: any unit of local government, other than a city or county, authorized and regulated by statute and includes but is not limited to: water control, irrigation, port districts, fire, hospital, mass transit and sanitary districts, as well as regional air quality control authorities. ' Spot Zoning: the awarding of.a use classification to an isolated parcel of land which is detrimental or incompatible with the uses of the surrounding area, particularly when such an act favors a particular owner. Such zoning has been held to be illegal by the courts on the grounds that it is unreasonable and capricious. A general plan or special circumstance such as historical value, environmental importance, or scenic value may justify special zon- ing for a small area. ' VOL 32 FAGE 160 Strip'Zone: a melange of development, usually commercial, extend- ' ing along both sides of a major street leading out of the center of a city. Usually a strip zone is a mixture of auto -oriented ' enterprises (e.g., gas stations, motels and food stands), truck - dependent wholesaling and light industrial enterprises, along with ' the once -rural homes and farms overtaken b the haphazard leap- frogging P ' of unplanned sprawl. Strip development, with its inces- sant turning movements in and out of each enterprise's driveway, C L has so reduced the traffic -carrying capacity of major highways lead- ing out of urban centers, that the postwar limited -access freeway networks have become a necessity. In zoning terms, a strip zone may refer to a district consisting of a ribbon of highway commer- cial uses fronting both sides of a major arterial road. Subdivide: to divide a part or parts of land parcels into at least four smaller parts or lots. A subdivision is the result of lay- ing out a parcel of raw land into lots, blocks, streets, and public areas. Its purpose is the transformation of raw land into building sites. Urban Fringe: an area at the edge of an urban area usually made up of mixed agricultural and urban land uses. Where leapfrogging or sprawl is the predominant pattern, this mixture of urban and rural may persist for some time until the process of urbanization is completed. Urban Growth Boundary (UGB): is an established line identifying an area which contains land lying within and adjacent to an incor- porated city and which is determined to be necessary and suitable for future urban uses capable of being served by urban facilities and services. Urbanizable Lands: those lands within the urban growth boundaries which can be served by urban services and facilities and are necessary and suitable for future exPafnsion or an urban area. 14DL EXISTING CONDITIONS AND CONCERNS 32 rAGF 761 i Before a plan can be prepared for a community, there must be an understanding of the physical structure, general attitudes and existing trends which identify that community as the unique society that it constitutes. Further, it is important that there exists some understanding of the problems and issues facing the local community. The purpose of this portion of the plan is to briefly review the status of some of the elements which make-up Deschutes County in 1979 and discuss the apparent direction which the County seems to be taking into the future. More detailed information on local conditions and trends may be found in the Resource Element which is part of this plan. POPULATION Probably one of the most dramatic indicators of local conditions is population. Certainly the rapidly expanding growth in Deschutes County is having dramatic effects throughout the community. In- creasing at a rate of 6.3 percent annually (average from 1970-77) the County is known as the fastest growing county in Oregon. The 1978 population estimate by the Center for Population Research and Census indicated the local population is 49,700, an increase of 63.26 percent from the 30,442 of 1970. Present indications are that the rapid rate of growth is expected to continue for the im- mediate future and slow ,sometime in the late 1980's. Overall, it is anticipated that the growth rate between now and the year 2000 will average approximately 4.5 percent annually, resulting in an overall increase of 158 percent to a population 128,200. Much of this growth is expected to take place in and around the two major r I I I I I I I I I I 7 I I C VOL 32' existing population centers, Bend and Redmond. Somewhat slower growth ' is expected elsewhere, except in LaPine. LaPine is an exceptional situation. Original appraisals of two percent annual growth have -been questioned and estimates as high ' as 12-15 percent have been suggested. Certainly the higher growth rate would help to explain the growing problems the community has had with poor water quality, loss of forest and agricultural lands, ' increasing strip commercial development and.logging public facili- ties and services. As important as the number of people,is some knowledge of the age distribution of people moving here. A comparison of the estimated populations for the County and the State made in Socio -Economic Indicators - 1978 revealed that Deschutes County has a higher per- centage of people 17 years and younger and 65 years and older than ' is characteristic statewide. Apparently, the area is attracting numerous retirees, as well as young families with children. Charac- teristically, these groups make demands on a variety of services, ' particularly schools and health care. Young families tend to seek single family residences, while the retirees seem to find a vari- ety of housing styles acceptable (depending on income) but are usually attracted by lower maintenance facilities such as apart- ments and mobile home parks. Apparently, both of these groups ' are being attracted by what is seen as the higher quality of life, whether for raising children or for retirement activities, ' which may be found locally. ECONOMY ' Equally important in understanding the local area is the economic ' base of the community. Presently the timber and wood products sec- tor is the major manufacturing employer locally, with 2,720 employees VOL 32 FACE 763 as of March 1978. However, major changes may be expected during the 20 year planning period and the overall result is difficult ' to assess. It does appear that conversion to processing smaller , trees and maintenance of the allowable cut will permit some growth in employment but overall timber and wood products will probably ' playa proportionally smaller role in the County's future economy. In fact, total manufacturing is presently decreasing in importance locally. How much decrease this ultimately will amount to is dif- ficult to predict. Regionally and nationally the economy is shifting to a more service and trade oriented status. Given the ' emphasis on promoting manufacturing in Redmond and to a lesser extent in LaPine and the growing local labor pool, it seems pro- ' bable that some gains in industrial employment may be expected ' although as a proportion of the economy some small decline may occur. ' One of the strongest segments of the local economy is construction which grew 187.5 percent between 1970 and 1978. Related to construc-' tion is the growth in finance, insurance and real estate employment, I up 95.8 percent during the same period. These industries are direct- ly related to the large in -migration of people occurring in the ' County. Tourism is also a signigicant factor locally, as is reflected in I I the strong growth (up 107.3%) taking place in the services sector ' of the economy. Some of this growth is likely to be related to population growth and a national trend to more services. Unfortunati ly, service jobs tend to be somewhat lower paying and more seasonal than some other types of employment. However, the City of Sisters has chosen to base its economy almost solely on tourism. And , tourism locally is a less seasonal economy which seems to provide VOL 32 PACE 764 many jobs for the young and second incomes for families. 1 ' Wholesale and retail trade has also witnessed -rapid growth, up 96,9 percent and is probably tied to a burgeoning population and ta growing importance for Bend as a regional shopping center. Agriculture, once a major factor in_.the local economy, has contin- ued to decline. Only livestock areas and some of the better crop- land areas, which have remained largely undivided, have continued to produce significant amounts of agricultural products. Many ' small farms exist in the County but their agricultural production is largely subsidized by off -farm employment. The definition of ' marginal farm land and how much is marginal is a major issue in this` area It appears Deschutes County is shifting from a rural economy to one ' more characteristic of a growing urban area. Growth in trade and services seems likely to continue with.a growing interest in manu- facturing employment, presently not evident, probable once an ' adequate pool of labor exists. Unemployment has consistently been higher in Deschutes County ' for many years. To some extent, this situation is related to the seasonal fluctuations of such industries as tourism, logging ' and agriculture. Most recently, the major reason is probably the ' rapid influx of new residents. Many of these people are young skilled individuals who have moved here for the higher quality of ' life available locally and are willing to accept jobs for which they are overqualified or to create their own employment. Given the rapid influx of people, which likely hides a large out -migration ' of people unable to find adequate employment (in -migration is still faster than the out -migration so the population increases), it is VOL 32 FACE 7'65 perhaps surprising that the economy,has accommodated so many. HOUSING j 1977 Housing data indicates Deschutes County residents build more single family t units (62.50 of all new dwelling unit permits versus a state average of 55.320), buy more mobile homes (20.4% versus ' 15.92%), and construct fewer multiple family units (17.1% versus 28.75%)than is characteristic statewide. These findings appear ' to be consistent with the earlier population information. The low vacancy rates found locally, for single-family dwellings and multiP li family units are indicative of the rapid growth locally. One aspect of the local housing situation that is difficult to determine is the effect of seasonal housing on local housing demand. ' Surveys indicate about 10 percent of the local housing stock is used as seasonal housing and is,therefore, generally unavailable to meet the needs of local residents. This is a factor which must ' me remembered when assessing how much land needs to be set aside for housing construction. , LAND USE One of the most obvious results of growing County population has been the sprawling residential development that has spread rapidly over much of Western Deschutes County. This has caused the loss of valuable agricultural and forest land and accentuated the need for expensive public services. Recreational and rural tract lots in the County in 1979 accounted for 58 percent of the total lots. Interestingly, of these lots, 17,377 were found to be undeveloped. ' It appears the County presently has enough available empty lots to more than serve the needs of the anticipated new rural resi- dents. ' -. Z2- I n i ' VOL 32 RAC- In the"LaPine area, recreational subdivisions once seen as a boon to the County taxpayer, have slowly been changing to more permanent occupancies that demand schools, buses, sheriff and fire patrol, as well as a variety of other expensive services that must be delivered over a large area. Historic structures and sites, so important to the preservation of the County's history and the education of the community, have been lost to the dictates of unregulated change. Strip commercial development has continued to stretch out from the urban areas along the highways, often obliterating.- scenic views and natural lands while promoting inefficient energy consumption and traffic patterns. Mural Service Centers have not been used as originally intended. often the land uses constructed have little or nothing to do with ' the servicing of the rural population but instead are just further examples of the spread of commercial uses along the highways or ' the use of loopholes to avoid planned development (i.e.,Deschutes Junction). ' PUBLIC FACILITIES ' As has been mentioned previously, the sprawling pattern of develop- ment which has been characteristic locally has resulted in exten- sions of increasingly expensive public services. Further, growth has been so rapid that even in urban areas services have lagged be- ' hind the population growth, although not so seriously as in LaPine. toccasionally, the lack of services has even created the potential for serious problems, such as the lack of sheriff's protection in ' LaPine and the use of irrigation water for drinking in the Bend- Tumalo areas. ' Many people have expressed concern over rising tax rates and the VOL 32 PAGE 767 possibility that they are subsidizing those areas of the County they -would like to see left open and unchanged. TRANSPORTATION ' In Deschutes County, as is'typical of rural areas, the primary mode of transportation is the private automobile. In fact, this ' area's love of outdoor activities and sprawled development seems to have resulted in a higher rate of vehicular ownership than is characteristic statewide. Certainly these attitudes and conditions , are much of the reason mass transit has been so unsuccessful local- ly. The airplane has also continued to grow in importance, not only commercial air traffic but private aircraft as well. Both the Redmond and Bend airports are anticipating significant growth, although Bend is expected to be with private light aircraft while Redmond becomes the major commercial airport. Rail traffic is an important although -small proportion of total transportation but locally, it has remained relatively stable in recent years. One of the growing transportation methods is bicycling. Expanded use of bike paths, as well as other types of trails, is likely to continue locally. ENVIRONMENTAL At present, Deschutes County has no significant air pollution pro- blems, other than occassional smoke from forest or agricultural fires, some relatively minor problems with emissions from local manufacturers, and dust from local roads. This high quality air is often cited as one of the reasons people move to this area and concern that future development may reduce this quality is often expressed. Fortunately, the open character of the local topography -24- i I I I I I y va 32 FArs- and the availability of wind is likely to prevent serious air ' pollution problems in the near future. ' Concern has been expressed over the loss of wildlife habitat, such as the subdivision of deer winter ranges and the blockage of deer migration corridors in the LaPine Area. The Oregon Fish and Wild- life Department has been outspoken in its concern and has, upon ' occasion, sued to protect the dwindling habitat. Problems with water quality have been found to exist in LaPine and septic tanks have failed in Terrebonne. Increasingly the major ' environmental damage has been the loss of scenic vistas and sensi- tive environmental areas along highways, rivers and other areas where development has occurred. Often the resources lost have ' been irreplaceable locally. Fortunately, Deschutes County still has many scenic and natural ' resources available. Public ownership constitutes over 78 percent of the land in the County. Proper management of both public and private lands can assure the area's primary resource - its natural beauty and diversity is maintained for future residents. OTHER ' Energy usage has been growing dramatically in Deschutes County; not only because of the population growth but also due to the low- density sprawled -out pattern, construction of energy consumptive commercial uses and a general unconcern about energy by many citi- zens. Interestingly, the heavy use of wood heat locally does seem to have saved a significant amount of electrical energy. Problems with coordinating activities and regulations between the various federal, state and local agencies have often created un- necessary delays and expenses. Often this has been expressed in comments about excessive government regulation,at the same time 'Zs'. V 32 PAGE 769 * complaints about lax enforcement of local ordinances are being received. While improvement has been noted, much more will be necessary for the coordinated and productive management of public resources and services locally. Particularly if growth and change continue to occur at a pace as rapid as it is now. I This brief summary of conditions, trends and local issues is not meant to be all-encompassing but it does include the major charac- teristics and trends of concern in the preparation of this plan. Deschutes County has available tremendous environmental and human resources but it also suffers from many of the problems common to areas with rapid rates of growth. The scenic and environmental qualities that first attracted people here will be needed in the future as well. However, not all of the results of growth are bad. Increasing pop - ulation has brought new businesses and services to the area. Edu- cational and cultural opportunities have improved significantly. have increased, Employment alternatives as have wages. And, a lot of new people have been able to improve their quality of life. Growth and change is a mixed blessing. The purpose of this plan is to address the issues and provide the best available development I alternative for this County's people. Given the complexity of local issues importance it is I and the of the task, not surprising that the preparation of this plan has been a controversial and lengthy I process. 1 11 `VOL 32 Fxf'0_ PLANNING ORGANIZATION In order to actually prepare a comprehensive plan, it is necessary to develop an organizational framework which outlines tasks and assigns responsibilities within the bounds set by the available time and the applicable state laws. Deschutes County chose to develop an organization that relied heavily upon citizen involve- ment and initiative to complete the necessary plan. Citizen involvement in land use planning has been mandatory state- wide since 1973. Senate Bill 100 (ORS 197.160) required each county governing body to submit a program for citizen involvement in preparing, adopting and revising comprehensive plans within each county. Each program must at least contain provision for a citizen advisory committee broadly representative of geographic areas and interests relating to land use. All jurisdictions must develop, publicize and adopt a program appropriate to the local level of planning and containing the following: 1. Provision for widespread citizen involvement 2. Assurance of effective two-way communication with citizens 3. Provision of opportunities for citizens to be involved in all phases of the planning process 4. Assurance that technical information is available in an under- standable form 5. Assurance that citizens will receive a response from policy mak- ers 6. Assurance that there will be funding for the citizen involve- ment process. Further, the law requires that federal, state and local agencies, as well as special districts, coordinate their planning efforts and make use of existing local citizen involvement programs.- -2-1- VOL 32 PACE 771 In Deschutes County,citizen participation in planning has occurred ' since 1968 but with the advent of the LCDC goals and the project of updating the Deschutes County Comprehensive plan, the citizen ' involvement program experienced a dramatic expansion. ' The planning process followed in the plan preparation was largely based upon citizen participation, agency involvement and both ' local and outside professional analysis to assure consistency with the LCDC goals and good planning. ' DESCHUTES COUNTY COMPREHENSIVE PLANNING PROCESS m FOURTEEN CITIZEN ADVISORY COMMITTEES FEDERAL P OVERALL STATE L CITIZEN'S LOCAL , A ADVISORY DISTRICT N COMMITTEE AGENCIES N ; I N G 1 PLANNING COISSION S PUBLIC ' T TESTIMONY A F CONSULTANTS ' F - PLANNING - LEGAL-ENERGY BOARD OF ' COUNTY C OJ'Ji4I S S I ONE RS ' The program began with a well-publicized educational meeting at ' the local college to acquaint Deschutes County residents with citi- zen involvement in land use planning and the upcoming opportunities ' for participation. One hundred and fifty persons attended to view ' a slide show on the goals, hear an explanation of the program, fill out an attitude survey (later compiled by college students) and receive several handouts. For a month thereafter, people volun- teered for advisory committee membership and were accepted without ' restriction. ' The Board of County Commissioners, acting as the committee to evaluate the citizen involvement program, appointed seventeen technical and area advisory committees and an Overall Citizens Advisory Committee with a total of 326 officially appointed mem- bers. Up to 300 additional persons also were indirectly in- volved. The technical committees functioned as a panel of experts (often including federal, state, local and district agency personnell and interested citizens. These committees covered the following topics; minerals and'aggregates, agriculture, forest lands, fish ' and wildlife, historic and cultural, economy, transportation, public facilities and services, recreation, housing and energy. Each ' committee was given a general work program to collect information, identify needs and problems and prepare justified recommendations. Committees meet two to four times per month and ten to twenty times totally. Each group prepared a detailed and factual pre- liminary report which was then submitted to the Overall Citizens ' Advisory Committee (OCAC) for comment. Revisions to each report were made and submitted as a final report to the OCAC and planning staff. The initially weak data base as well, as the demanding time ' schedule for plan completion were handicaps the committee had to VOL 32 PAGE 773 I overcome. Their detailed reports were often used word for word ' in the preparation of the resource element and preliminary plan. The area committees involved' interested citizens from the three ' major rural service center areas; LaPine, Terrebonne and Tumalo. An attempt was also made to form a Sunriver committee but little ' interest was expressed by residents of that area. The committees addressed each of the LCDC goals -and -developed a list of programs, ' needs and directions for future community growth. Their reports were reviewed by the OCAC in the same manner as the technical , reports and eventually used in the preparation of the preliminary ' plan. There were also three urban area advisory committees appointed to ' work with each city's planning staffs in order to prepare urban area plans for each city and its surrounding urbanizing area. While' the Bend Urban Area Plan was largely completed by the time the OCAC ' was formed, the Redmond and Sisters planner periodically reported to the Overall Citizens Advisory Committee to assure communication ' and coordination. , The Overall Citizens Advisory Committee was the largest committee and the one most broadly representative of the various interests ' and areas of the County. Their primary function was to resolve con- flicts between the recommendations of the various committees. In ' addition, they also reviewed the recommendations to assure they met the state's goals and guidelines. The OCAC also initiated many of the recommendations regarding development in urbanizing and -- I rural areas of the County, thereby tying together the various ele- ments of the plan. It was their direction to the staff which , served as the basis for the preliminary plan. -- 3o- voL 32 FACF774 In this period the County Planning Staff also wrote several ' reports.to provide information to the OCAC. These papers cov- ered geology, geomorphology, soils, areas of special interest, climate, hydrology, history and population. The OCAC also con- sidered this information in their deliberations. During this Citizen's Committee stage -of the process, over 200 meetings were held and in excess of over 10,000 hours of time were ' spent by volunteers working on the plan. More than 5,000 news- letters were mailed to interested citizens and thousands of Iletters, mailings, posters and flyers were also distributed. Once in the preliminary plan stage, the document was brought to the County Planning Commission for review. A newspaper supple ' ment describing the major elements of the plan was placed in the major newspaper in Deschutes County and the local news media ' were very cooperative in disseminating information about the plan. Tile planning staff also spoke to various groups in the community. Copies of the plan were placed in local libraries ' and made available to everyone interested. The Planning Commis- sion held a number of hearings on the preliminary plan and then provided a series of recommendations to the Board of County Com- missioners. The County Commissioners also held hearings on the plan. These ' hearings seemed to be emotion -packed events which generated large turn -outs and spirited testimony. using the public testimony (both Radio, television and newspaper coverage was extensive. The lar- ' gest local newspaper printed an explanatory article on each of ' the committee and staff's reports. This was to ensure that every- one, whether involved directly in the process or not, was kept ' up-to-date as to where the plan was heading. Once in the preliminary plan stage, the document was brought to the County Planning Commission for review. A newspaper supple ' ment describing the major elements of the plan was placed in the major newspaper in Deschutes County and the local news media ' were very cooperative in disseminating information about the plan. Tile planning staff also spoke to various groups in the community. Copies of the plan were placed in local libraries ' and made available to everyone interested. The Planning Commis- sion held a number of hearings on the preliminary plan and then provided a series of recommendations to the Board of County Com- missioners. The County Commissioners also held hearings on the plan. These ' hearings seemed to be emotion -packed events which generated large turn -outs and spirited testimony. using the public testimony (both VOL 32 FADE 775 written and verbal) and the recommendations of the Planning Commission and staff, the Board compiled a working draft of the ' Comprehensive Plan This working draft was then sent to outside ' legal and planning consultants for review and comment. Earlier, the preliminary plan had been given to an outside reviewer to de- termine the adequacy of the energy elements of the plan. All these reports were then delivered to the Board of County Commissioners. ' Their determination was that the planning staff should take some , additional time to use these studies to improve the plan where necessary. This new draft was then taken to the Overall Citizens ' Advisory Committee and Planning Commission for comment, before the Board took any final action. The Board also determined that an �. additional public hearing would be held to hear testimony on planned t exceptions to be taken to the agricultural and forest land goals of the state Land Conservation and Development Commission. ' The use of such an extensive citizen involvement program, as well as the utilization of specific professional assistance, was a ' complex but extremely useful combination. The preparation of the plan was not only speeded but the quality of the overall document was significantly improved. It is expected that this will produce a document that will effectively serve as a basis upon which to guild a bright future for the people of Deschutes County. — 3z 7 r 7 I I ALTERNATIVES ' VOL 32 ms-176 Choosing a course into the future is a difficult task. To help in making adequate decisions, it is often most desirable to consider a number of alternatives. In the preparation of the Deschutes County Plan,_a number of different options were considered at several levels. First, each of the citizen advisory committees ireviewed and discussed a variety of different policies, each with varying impacts and chose the recommendations most likely to achieve the desired result. After their deliberations, the policies were ' sent on to the Overall Citizen's Advisory Committee, where decisions nad to be made about tying the various elements of the plan together ' into a cohesive document. To do that it was necessary for the mem- t 5 0 0 1 bersAip to determine a consistent philosophy and direction for de- velopment in Deschutes County. The initial decision which had to be reached was which popula- tion projection to use in preparing for the future. The Center for Population Research and Census at Portland State University had pre- pared a population estimate indicating Deschutes County would grow at an approximate rate of 2.8 percent annually. A study by the Economic CAC indicated the present growth rate (1970-1977) was 6.3 percent annually. The committees felt that CPRC's estimate was too far off and should not be used but that use of the present growth rate would certainly exceed the actual growth because of economic fluctuations and a declining percentage gain near the end of the planning period.* The preferred alternative was one which would use a 4.5 percent annual growth rate to yield 128,200 people in Deschutes County by the year 2000. *Planning Period = present to the year 2000. 33_ VOL 32 FACE777 1930 3181 1985 6339 1990 7740 1995 9669 2000 11753 38682 The question still remaining was how to allocate this new population and housing througi-out the County. Several different alternatives were directly and indirectly discussed by members of the OCAC. I I I I TABLE 1 DESCHUTES COUNTY i POPULATION PROJECTIONS PSU PRESENT PREFERRED 2.8% RATE ALTERNATIVE ' 1980 50,500 56.214 53,400 1985 56,700 76,298 66,600 j 1990 60,700 103,557 82,900 1995 63,900 140,554 103,400 2000 65,700 190,770 128,200 i Recognizing the need for a single target population and in light of the Economic CAC's research and expertise the 4.5 percent an- i nual growth was chosen as the "best guess" option and the one to be used in the i preparation of comprehensive plans in Deschutes County. Ultimately, this was to result in allocations of population to i different parts of the County with the Bend Urban Area receiving 84,000; the Redmond Urban Area obtaining 23 ,093 ; the Sisters Urban i Area having 2,135 ; and the remainder of the County getting 18,972. Once the figure i population was chosen, it was possible to determine housing needs to the year 2000 by making some assump- tions about household size and rehabilitation. TABLE 2 i NEW HOUSING UNITS 1930 3181 1985 6339 1990 7740 1995 9669 2000 11753 38682 The question still remaining was how to allocate this new population and housing througi-out the County. Several different alternatives were directly and indirectly discussed by members of the OCAC. I I I I j ' VOL '32 FArF 77 Underlying all of the alternatives were a number of basic assump- tions: 1. LCDC will require some protection and coordination 2. Energy will become increasingly expensive and relatively more scarce 3. Much of the area's growth is tied to amenities 4. Federal agencies will continue to use their lands for multiple public uses. Alternative One -.CURRENT TRENDS Land Uses: Contunue with the present trends without modification of the dispersed housing pattern that was developing in Deschutes County. Anticipate that most people would live in the urban areas but that many would chose to scatter throughout rural areas. Recog- nize that much of the agricultural and forest lands of the County would be lost or replaced by nobby farms. And expect a less than stringent enforcement of regulations to protect unique historic and environmental areas. Environmental: Anticipate the loss of additional scenic and natural amenities. Recognize that the deer winter ranges would almost certainly be developed and the wildlife lost. And prepare for increasing problems with air and water qual- ity. Social and Economic: Continue the strong economic growth of the area particularly in the service, trade and construction indus- tries. Expect more cultural amenities. Anticipate increasing so- cial problems such as crime. Public Services and Facilities: Expect to see an expanding road system and a growing demand for other public services. Recognize that these services will continue to lag behind demand and taxes are rising rapidly to provide the necessary services. Other: 3S- VOL 32 FACE 779 1 While there will be some improvement in land use controls and in I I creasing cities and County cooperation that there is likely to be continued state review and occasional intervention. Ultimately, population increase is expected to decline as the environmental ' amenities of the area decline. Alternative Two - UNRESTRICTED DEVELOPMENT Land Uses: Greater amount of urban sprawl from all growth centers, in addition rural'sprawl also occurs in the vicinity of the .Rural Service Centers as they rapidly develop. Some protection is given ' the most dramatic and publicly supported historic and environmental sites. Agriculture ceases to exist as a viable local industry. Environmental: Moderate to severe pollution problems in parts of the County ultimately requiring some areas to be mandated to install ' expensive sewer and water facilities. The growing development on ' private lands interspersed. within the public lands severely reduce the beauty and usefulness of the public lands. ' Social and Economic: Continued nigh employment, particularly in construction, for the next 10 to 15 years with the development ul- timately resulting in a loss of amenities which sharply reduced both ' seasonal and permanent migrants and ending with severe unemployment in the non -manufacturing industries. Cultural amenities increase in conjunction with the population, but there are serious social dis- locations resulting from the inequitable tax burdens created by the ' growth and loss of esthetics. Public Facilities and Services: Serious problems with providing adequate services, resulting in higher taxes and public dissatis- faction. Recreation demands continue to grow and demand expands rapidly as the formerly -available outdoor areas become lost to . 3a_ I I C 7 1 I F1 L VOL 32 FAu-c 781 3'development. Finally an expensive mass transit system must be con- structed to bring prople into the urban centers as the gasoline prices continue to climb. Other: Energy costs locally continue to increase finally leading some people to begin leaving. There is little effective coordination or local authority to control unneces- sary subdivision and construction. Increasingly, the state inter- cedes in Deschutes County to assure state interests and people's lives and safety are protected. Alternative Three - STRICT GROWTH CONTROLS Land Uses: No further residential, commercial or industrial con- struction is permitted in rural areas and ultimately the rural popu- lation begins to decline. Urban areas grow rapidly but the restric- tiveness of the regulations results in a slower growth rate. His- toric and environmental sites receive strict protection. Increas- ingly apartments and 'nigher densities are common. Environmental: Pollution levels rise only slightly and the natural amenties are protected. Public lands receive heavy use but are protected from the more serious effects of development. Social and Economic: Housing and land costs rise rapidly because of the relative shortage of buildable land. Lower and Middle -Income families find themselves effectively excluded from the community. Cultural amenities rise. Employment suffers to some extent and much of the higher paying construction jobs are replaced by lower paying service employment. This situation leads to considerable social and economic dissatisfaction. Public Facilities and Services: Few new roads are constructed and an emphasis on alternative transportation methods provides effective local people and freight movement. Public facilities, such as sewer and water, catch-up and keep pace but may be somewhat more -37- M_ von 32 PAGE 781 expensive than otherwise due to the reduced tax base. Other: Energy costs are down. There is considerable upheaval over government regulations, such as zoning and environmental controls, as well as mandated local government coordination. Alternative Four -CHOSEN ALTERNATIVE After considering the various alternatives available the citizens t I H I chose a compromise between Current Trends and Strict Growth Control.. ' I The emphasis to be on restricting sprawl and protecting resources. while accommodating the new population in adequately large urban boundaries and Rural Service Centers. Land Uses: major growth occurs in urban areas as the County con- tinues its shift from a rural to urban area. Rural development is largely restricted to rural service centers and on existing rural lots. An active housing program seeks to offset the costs created by the regulations. Some hobby farming occurs and the existing 11 I I agriculture and -forest areas are protected. Environmental: Wildlife and vegetative areas particularly vulnerable' to damage are protected from excessive development. Pollution in- creases are small. Public lands continue to be adequate to meet the demand. There is some loss of visual amenities but it is mini mal. Social and Economic: Taxes increase but not so rapidly as in the other alternatives because a more efficient growth pattern exists as does a growing tax base. Jobs continue to increase with some shift from construction to services,and growth in manufacturing but not as rapidly as the commercial sector. Cultural amenities continue to increase. Public Facilities and Services: Few new roads are constructed and a greater emphasis on transit alternatives reduces automobile use. ago I I I'l II 1 VOL 32 %E782 Energy costs rise but within the capabilities of the area's resi- dents. Most public facilities catch-up with the growth and provide adequate services. Other: Continuing controversy over how much control to use but general acceptance of local ordinances and little state interven- tion. Coordination is mandated and controls are strict but oriented ito achieving a specified result rather than being a routine and/or arbitrary mechanism. Tne process by which the final alternative was chosen was not a smooth one. Many meetings were required and the alternatives are certainly more clearly identified here than was true during their discussion by the committees. Yet, as the process continued, it became increas- ingly clear that the people wanted to see growth guided but not stopped, except where development was proceeding too rapidly and needed to be slowed, or where important natural or cultural resources needed to be protected. They were convinced that the inefficient sprawled pattern of development must be curtailed.in a way to restrict additional subdivision while permitting existing develop- ment to be utilized. To do that, the philosophy of Alternative Four was used to develop the goals and policies that are contained with- in this plan. 1 - 3S- GOALS AND POLICIES INTRODUCTION: VOL 32 FaGE 783 t The alternative chosen for growth in Deschutes County was one which empha- sized acccnuK)dating the anticipated growth of the area primarily in the urban areas, with some rural development taking place in the rural service centers and in existing subdivisions. This new pattern would then provide mucin greater efficiency in the provision df public services and foster savings in energy, particularly in transportation. The development pattern would also protect scarce resources, while permitting compatible improvements i I Rural Development is the chapter that serves as the basis for the rest of the I plan. Basic guidelines to do away with the former inefficient development pattern and to accomrodate the anticipated 7,050 new rural residents are con- tained in this section. Emphasis is placed on maintaining the existing rural character of the County, while acknowledging that Deschutes County is becoming more urban, by concentrating new rural development in the rural service centers. In that way people desiring a rural lifestyle may do so without unduly increasing the costs to others or utilizing resource lands. The only exception to this rural pattern is in the LaPine area where emphasis is laid on the incorporation of the community and improvements in local services provided. The LaPine rural area is also likely to receive , many of the over 3,000 new rural homes which will be built, because so many ' lots already exist in that area. Urbanization links this plan to those of the three incorporated communities. This chapter provides parameters for the establishment and expansion of I the urban boundaries and provides common guidelines to the cities to help them accommodate the 71,450 new residents that will live in the urban areas 1 VOL 32 PAu,-E784 by the year 2000. These new'County residents will need over 35,600: homes and 29,000 (perhaps as high as 35,000) new jobs. Sufficient land must be allocated and managed to serve these new local citizens, tThe Econ YchaPter discusses the need to protect our existing timber, agriculture, mining and scenic resources for our future prosperity. It also provides policies to help Deschutes County in its metamorphosis frcm a rural resource economy to a more coranercial/industrial orientation as an urban center,perhaps providing between 7700 and 16,000new manufacturing jobs and 27,000 to 32,000 new non -manufacturing positions. Housing emphasizes the need for flexibility in housing styles and costs so ras to provide adequate homes for all segments of the community. Also fostered are programs to help rehabilitate existing homes and to accommodate low and moderate -inane families through government programs and efforts ' to reduce development costs. The Transportation chapter seeks to aid movement to and between the ccm- munities and to improve the ability of the cannunities to efficiently deal with the new residential, commercial and industrial uses which are an- ticipated. Greater public safety is prcated, as is preparation for a shift frau autambile-dependence to public transit and other transportation ' alternatives. ' To acccrmiodate existing and anticipated populations and land uses the Public Facilities and services chapter provides basic guidelines for the construction of new facilities, wile again fostering urban rather than -41- c � VOL 32 FAGUM5 rural development. Recreation seeks to accommodate both the growing local population and the I tourist industry. New facilities and cooperative plans are identified and, while the County seeks to provide primarily a facilitator function, r there is made a greater commitment to recreation and associated activities. The Energy chapter emphasizes more local independence in providing energy, protection of future energy resources and better coordination with energy providers. Information and education about energy and local opportunities are stressed. As the population continues to grow and because of the importance of tourism, energy will play an ever more dominant role in local planning efforts. These policies seek to emphasize the need for greater efficiency in development patterns and construction, while surveyingour available future options, The Natural Hazards chapter seeks to guide development away from identified j hazards, such as wildfire, while making use of areas that need to be pro- tected from development for other useful purposes. The protection of the 100 -year floodplain is an example of an area where development shall be prohibited but wildlife and recreation opportunities will be fostered. I One of the more controversial resource chapters has been Agriculture. The ' policies in this plan seek to protect identified agricultural areas, while recognizing that marginal agricultural conditions are present in some areas Some hobby farming is permitted in the more marginal areas so as to increase agricultural productivity; while a program to research local marginal lards -42 t e PaV and to determine how they may be utilized, while agricultural production.is preserved, is mandated for future updates of the plan. Forest Lands seeks to protect existing areas with timber capability, while permitting campatible development on non-productive lads that will foster other aspects of the local economy. The loss of much of LaPine to develocme_nt is recognized (see Exceptions Statement) but in those areas where larger lots exist small woodlot management is encouraged and com- mercial timber is protected where it remains feasible (primarily the national forest and on timber company ownerships). The local economy and environment is very dependent on the protection of this County's scenic and natural areas. Because of that the Open Spaces chapter identifies the policies required to protect those resources for the area's tourism, recreation and quality -of -life needs, while recognizing the appropriateness of flexibility when dealing with individual property owners. The Surface Mining chapter seeks to preserve known mining resource sites for 1 ultimate mining activity and to permit mining as it is needed in the ' county. There is also recognition of the County's responsibility to protect adjoining residents (safety and health hazards) and the general public ' (excessive construction costs and hazards created by a shortage of building materials as well as loss of scenic qualities and pollution). Fish and Wildlife seeks to balance the wildlife needs of the area against the requirements of a growing population. The important economic �3 VOL 32 FADE 787 and lifestyle qualities are recognized and irreplaceable wildlife areas ' protected, while precautions that permit limited development are identified. One of the most non -controversial chapters is Historic and Cultural, which seeks to protect the ever -dwindling supply of historic and cultural sites. Protection that will have important economic and social benefits for a I community graving as is Deschutes County presently. I I Water is the resource without which there will be no future growth in Deschutes County. Preservation of existing water quality and greater ef- ficiency in delivering available water supplies is being sought. The new ' and existing residents will need all that is presently identified. Agricul- ture, griculture, new employment opportunities and maintenance of the tourism/recreation industry all require water. This plan seeks to improve coordination and planning for that water's use. The final chapter is Citizen Involvement. Planning is a dynamic process and one that does not stop with the adoption of a plan. More study to keep the plan functional and up-to-date will be required. The County's efforts will continue to be aimed at involving the public, in meaningful ways, with the preparation of future plans and studies. There is also an emphasis on explaining planning, its purposes and techniques, so that it will be better understood and more usable by County residents. , The plan policies must be read as a whole, as the County will grow as a single unit, not sixteen separate pieces or aspects. Taken together these policies point the direction for the County's future. A future full of change but one full of promise as well. -44- D VOL ' G R O W T H M A N A G EME N T Rural Development Urbanization Economy Housing Transportation Public Facilities & Services Recreation Energy Natural Hazards - 4s - RURAL DEVELOP= VOL 32 FAcF 789 1 The primary duty of this carprehensive plan is to guide grc w h and developtlent rural areas of Deschutes County. The Urbanization chapter discusses urban area growth but the primary plans for the County's major cannunities are the three area plans. The Deschutes County Year 2000 Comprehensive Plan is focused upon Thil the changes that will be taking place outside the urban growth boundaries. chapter is meant to tie together the various more specific chapters which deal I with resource and growth management so that an integrated plan for the develowen of the County may be obtained. Being the fastest growing county in Oregon has meant many changes for Deschutes' County. Some of the changes, such as improved social, cultural and economic opportunities, are seen as beneficial. Others, such as traffic congestion, loss of scenic views, and rising taxes to pay for public services, are changes most I I people would like to. do without. Recent years have witnessed county -wide growth occurring at about 6.3 percent nually. The present population of Deschutes County is estimated at 49,700. Growth is expected to continue at a slower rate (4.5 percent annually) to the year 2000. By that time, the County will likely have about 128,200 residents. Of that number 84,000 will be in the Bend Urban Area; another 23,093 will be in around ReOmond; 2,135 are expected for Sisters; and LaPine will have inooroorat and readied an urban area population of 3,620. This leaves a rural population 15,350 people, up from an estimated 8,300 presently. T b acconriLodate the new rural population will require 3,039 lots (assumes 2.32 persons per household). There were available in Deschutes County, as of Janua Jl 1979, 17,377 undeveloped rural tract and recreational lots. It appears that o0 ii t VOL 32 mn 799 wide there is in excess of 14,000 lots beyond the public's housing needs until the year 2000. That does not preclude the possibility of certain areas needing new lots, since the vast majority of those existing lots are in the LaPine Area, but it does indicate the County must give serious review before approving any rural development. .Much of the development which has occurred locally has been the standard parceliza- tion of land into small (less than 10 acres) lots. This dispersed pattern is often the most costly to serve; the most wasteful of energy, land and resources; the least esthetic; and the most destructive to rural character. Planned De- velopments, such as Indian Ford Plaryned Develognent, often provide a more efficient and beneficial manner in which to serve the public demand for a rural recreational or residential experience. Destination resorts, such as Black. Butte Ranch and dude rances have been found locally to be economically and socially desirable land uses, when located and developed consistent with the capabilities of the land and the abilities of various public and private agencies to serve that area. Recreational subdivision was originally seen as a benefit to the County as the non- resident landowners would be contributing to the County tax base. This probably resulted in areas like LaPine subsidizing other portions of the County. Now the recreational sabsivisions are filling -up with retirees and younger people seeking less expensive building lots. The result is a call for more services in areas far from existing service facilities and in subdivisions where roads and other improvements were meant only for seasonal and limited use. As demand continues to grow, to provide adequate service levels it will be necessary for other areas to subsidize the recreational areas for many years. Studies by Oregon State University indicate that Deschutes County is likely faced with such a I situation presently. -47- VOL 32 PAGE 791 The County has witnessed losses of agricultural, forest and other resource lands as well as seen the expense and esthetic losses created by urban sprawl. Studies ■ such.as The Costs of Sprawl have emphasized the greater efficiencies that can tained by a more condensed and planned development pattern. When these factors were combined with state requirements to contain development in urban areas UJ was no question to the Overall CAC that the updated comprehensive plan would have to address the issue of containing urban sprawl and protecting the rural character of the County. The predominant rural land uses in the County are open spaces, pasture and limitt I crop production, livestock production, natural resource utilization and wildlifE cover. There is also residential use and some commercial and industrial activity in the rural service centers. Unfortunately, the unrestrictive zoning permi.ttel in rural service centers has .allowed incompatible adjacent land uses and not re- sulted in providing the needed services for the surrounding rural areas. In I the case of Deschutes Junction this result is combined with another factor in that Bend's arban sprawl is augmented by development at the junction. Interestingly, the residents of the rural service centers, except for LaPine, have expressed concern that higher levels of development in their locales would t be incompatible with the existing rural nature of the area. They agree that I there is a need for limited and controlled growth, but that the rural character of the community must be maintained. To guide development into appropriate patterns. the following goals have been 1 prepared:: VU 32 fw 792 r GOAIS: ' 1. To preserve and enhance the open spaces, rural character, scenic values and natural resources of the County. 2. To guide the location and design of rural develognent so as to minimize 1 the public costs of facilities and services, to avoid unnecessary expansion of service boundaries, and to preserve and enhance the safety and viability of rural land uses. 3. To provide for the possible long-term expansion of urban areas while the destinction between urban (urbanizing) lands and rural lands. POLICIES: Tine policies needed to accomplish t -ie identified goals were largely developed by the Overall CAC during its deliberations on the preliminary plan. It was obvious that sane policies were needed to pull the various resource arxi manage- ment chapters together and to fill --in some gaps so that an integrated and cohesive plan was available. Rural Development policies are meant to pertain to all non -urban areas (areas outside urban growth boundaries) and are the basic policies to be followed in guiding rural growth. Specific resource or management policies fran other chap- ters shall augment these policies so that the plan must be viewed as an integrated whole rather than a series of individual chapters. Residential/Recreational Development 1. Because 91 percent of the new County population will live inside an urban area, with only 3,039 new rural lots required, and in light of the 17,377 undeveloped rural tracts and lots as well as the energy, environmental and public service costs, all future rural development will be stringently 4Q- I M VOL 32 FADE 733 i reviewed for public need before approval. As a guideline for review if a study of existing lots within 3 miles of the proposed development indicates approximately 50% or mare of those lots have not had structures constructed thereon, then the developer shall submit adequate testimony justifying ad- ditional lots in that area. This will permit development in areas where , such is needed (other policies considering energy, public facilities, safety and other development aspects shall also be considered) while re- stricting future division in areas where many underloped lots already exist. 2. To further restrict subdivision outside urban areas the minimum parcel size ' shall be 10 acres, except where other policies supersede this minimum (see Rural Service Centers, Agriculture and Forest Lands). , .3. Cluster or planned development of=e_rs significant savings to the developer because of reduced roadwav, utility and construction costs. Public costs to serve cluster developments are also usually lower. Therefore, to en- ' courage development and planned developments, rather than parcelization, the County shall permit an increase in density up to 33 percent above the density pe�natted in the zone for cluster and planned developments. 4. Cluster and planned developments shall maintain a minimuQn of 65 percent ' of the land in open space, timber or agricultural uses compatible with , the surrounding area and the development area. The open space of the de- 5 velopment may be platted as a separate parcel or in common ownership of some I or all of the clustered.' units, however, the open area shall not be subject to development unless the whole development is brought inside an urban growj boundary. Also, service connections shall be the minimum length necessary and underground where feasible. Roads shall meet County standards, be dedica'l to the public and may be accepted in the County Road System by the County fol maintenance. Destination resorts and dude ranches are important elements of the local ecal-.-.l Densitites will be determined upon the merits of the proposal. These develo�I I be tted in exclusive farm use districts- -50- i 11 VOL 32 FAcE 794 and only under certain conditions in forest districts (see Forest Lands Chapter). They may be allowed in other rural areas if compatible with the envirormental capabilities of the site, near existing transportation and utility facilities, consistent with the rural character of the area, and unlikely to create undue public service burdens. 6. Other than as outlined in policy 5, no further recreational (seasonal) 7. a subdivision will be approved in rural areas. Parcels legally existing at the time of this plan's adoption shall continue to function as legal lots and will not be unduly affected by the new lot size. The County will develop mechanisms to encourage the re -platting of existing rural subdivisions to cluster the dwellings in a mare efficient manner; this shall apply primarily in the LaPine and Sisters. Commercial and Industrial Development Within one mile of acknowledged urban growth boundaries, use of the planned or cluster development concepts shall permit to an increase of 100 percent in den- sity for developments in Multiple Use Agriculture or Rural Residential zones (not under a combining zone which would prevent such) resulting in a density of one unit per five acres. 9. Temporary on -.site processing and storage of either mineral and aggregate materials or agricultural products shall be permitted as appropriate, in or- der to support the continued productivity of the County's natural resources. 10. Certain industrial uses, such as research and development facilities (requir quiet and open surroundings) and manufacturers of hazardous materials (requiring long distances between the plantand neighbors) are more suitably located in rural areas. The County shall consider maki.nq provision for such uses as the need is found to exist (see Tmaalo). 11. Certain industrial uses, suchas research and development facilities $1 - VOL 32 PAGE 795 ' quiet and open surroundings(, wrecking or salvage yards and manufacturers o1 hazardous materials (requiring long distances between the plant and neigh- ' bors) are more suitably -located in rural areas. The County shall consider making provision for such iLses as the need is found to exist (see Tumalo). r 12. Because large scale recreation facilities cannot normally be accommodated urban areas,uses such as motorcross tracks rodeo o , ctr ands and. livestock. arenas shall be conditional uses which may be approved in rural areas adjacent to existing highways and other public facilities. Rural Service Centers ' 13. Because there is a need to accommodate some rural residential development and to provide necessary commercial services to existing rural residents i County shall designate the following rural service centers in order to pro�e a more efficient pattern of development and energy use, as well as provision of public services: Alfalfa, Brothers, HamptonLaPine,Mill ican,TrrebIn Tumalo, Whistlestop, Wickiup Junction, Deschutes Junction and Wild Hunt. In addition other sites, such as in the Fall River/Spring River arel, may be approved in the future as dictated by need of existing rural resides 14. Each rural service center shall have a compact commercial area to serve the convenience -commercial, agricultural and repair service needs of the ' surrounding rural lands_ In addition, larger rural service centers along major highways, where public facilities such as schools already exist, shall have a residential area designated (see individual RSC maps and , policies). The size and uses of rural service centers shall be such as to maintain the rural character of the area.. t Other 15. Construction on open lands shall be in a manner least intrusive to the esthetic and natural character of those lands and neighboring lands (fences and access roads shall not be considered structures). v4t 32 fAu 16. Because there have been problems in obtaining community centers in some areas, centers approved on the original subdivision plat or development plan shall be permitted uses in rural residential zones. 17. Due to the more dispersed pattern of dwellings in rural areas the notice requirement area for public hearings on quasi-judicial land use actions shall -be larger than in urban areas. 18. More effective dog control programs should be considered by the County to counter existing problems. 19. Pre-existing status shall be granted to subdivisions and parti- tions with at least preliminary approval and buildings with at least an issued building permit, at the time of plan adoption by the Board of County Commissioners. —63- VOL 32 PAUE 797 RURAL S ERVICE C ENTER M A P S and P O L I C I E S —574- 32 %E 79.8 ALFALFA T.17 R,14 Sec. 26 Willard Road.26 r cc 1 O 1 C s O RESIDENTIAL scale: 1"= 4009 COMMERCIAL / PUBLIC VOL 32 FACE 799 ALFALFA ' The predominant land use in the area is farming and agreement exists that the 41 atmosphere should be maintained. However, some improvement in fire and police protection is felt to be needed, as is improved road maintenance (cutting ' roadside weeds, leveling gravel shoulders and other safety measures). , one issue of particular concern to Alfalfa residents is the need to protect air , and water quality. .Special anxiety was expressed over possible water contamination from non -local sources (i.e. LaPine and East Bead) as the densities in those ' areas increase. POLICIES ' 19. A rural comcercial area shall be d-.�signated for Alfalfa. 20. Zoning in the area shall promote the maintenance of the area's rural ' character. 21. The County shall encourage the formation of a rural fire district in Alfall. 22. The County Road Department shall consider road maintenance in Alfalfa when preparing its work program. r VOL 32 FACE 860 T. 20 H, 1S �1 tt//�tt�ttt�/ittt�/iaili,iti Ii/iailtt�aiatt�l i 19 j 20 N � � N � � y � E I N i 1 � r 30! 29 11i 1�I it i1i-/i1ilt�ti/�Ii1i till lititt� /�t� PUBLIC RESIDENTIAL COMMERCIAL scale: 1"" = 2000' -57- Y 1 VOL 32 FAGS 8051 1 HAMPTON 1 1 T. 22 R. 21 Sec. Sir i i8 i i i - i •� i N ?0 i COMMERCIAL i ••,• RIESIDENTIAL. scale. 1 - 2000 i 1 . i r VOL MILLICAN T.19 R.15 Sec. 34 034 r ,1 y r • s. 200 «< RESIDENTIAL .iiui 0 R A uu ■ - 451 - scale: 1"= 20009 60 It VOL 32 FACE 803 MRCiERs , HAMPMN, MILLICAN The major economic activity in these areas is agriculture, but service to transients on Highway 20 also'provides relatively significant amounts of inadequate' income. Population numbers are very low. While problems exist with roads and police protection the local school facilities are generally believed ' to be adequate. POLICIESr for 23. An area for each community should be designated commercial arra residentj[:' uses. ' 24. Zoning should permit motels and other uses catering to travelers. 25. The County shall consider ways to improve roads and services in the area ' consistent with the level of population to be served. 60 • VOL 32 rAcE , LARNE ...... U NNN./.NN..r.a. NN ■..i\Igloo/\..r..../■■.......i ■t/.\1/\.i./.fi.rr.r..rf.riGOP uunuNruuuuououN N.IU ■NsruuuosNN/.uuuul u NN.NNNruNUN gg.■ U'l1.l.N.f r.i...Nga.gi..\t \ear ■■gigolo■\.\... /.../..\/.y 0HUHNr r i■..�. ..... .. ... r ■Nor ..■..\r.._CJ.0 I ■t.....i■\fr lt.i. qq■...../..for.//.\.. ......,....WOWI.\..ff.....iri.....ir.i Yii.li\ry�.aa./I....i...i.N..\olio/.■/.. . . me ei.1lttr.Y..i��.ii.■\.iiff.tlr..\i..e../ . . ■t■ llJ1......UMi.N./iNitfi.. N..N. ■..11/......Yr.i.//i.ieg\/■i.gii.Nr.i■ '�� 1 a . ■\tn.rwif.11. i.i.git...N/r./f.itN.■.r r.WlY.rr/MCI Olis •. gnn uoaN•..N ta.6.RL.../a...i • . . .■clip./.../.. t.f • ! . ... J..Nfa... '/f ! .. ..M Y.Y.iN\Y rMo MGM 0■� .a I.N.N.i �t o o 0 1r\..N aNNg.a �f ! ! • . !.!!.. l ..fl. ! 0 ! ! a . .... ! ! . .1Y .Ia.. i r i.1rf■ ■goes. N.N. iiiiii 7040 7L AL ESERVE FLOOD PLAIN _G 1_ scale: 1" : 1000' VOL 32 PAGE 805 LAPINS I I Several characteristics that are unique to the LaPine area have shaped and modified the needs and desires of the LaPine community. The mixture of public and private ownership has scattered the population and made the creation of a col hesive corcmunity difficult. The residents of the area seem to be a mixture of retirees and younger families. The distance to Bend, which is cofounded by , winter driving conditions, also creates a certain amount of isolation from the populated pulated areas and a demand for local commercial and public services. J high water tables and flood plains also create problems in planning the co munitl a growth. The original intent for the LaPine area was to provide a recreational env' be for seasonal. housing. Since permanent structures would be few, there would be little demand for public facilities and services. A recent survey by Midstate Electric Cooperative has shown that in 1977,70 percent of their customers were permanent and only 30 percent seasonal. The Co-op also indicated their customel were increasing as 12 - 15 percent annually in the last few years. ' It is well-known in the comzunity that public facilities and services are very inadequate. Schools and police protection are the Wo most often identified as problems. Difficulty with adequate snowplowing and emergency access are , also problems. Fire protection is providers by a highly motivated and hard mework-' ing volunteer department that has a large area to cover. 1 Water pollution problems have been identified in the core area of LaPine and are suspected elsewhere. In addition, deer migration corridors in the area havi been seriously affected and large areas of forest land have been lost to de- ' velopnent. The low density residential pattern spread over approximately 50. •6z- 11 r voz 32 miles is creating serious problems and is in conflict with LCDC Goals 11, 13 and 14 .(public facilities and services, Energy Conservation and Urbanization) While there are problems there are also opportunities. The conrnunity is on the verge of becoming an incorporated town and evolving into a useful service and local trade center. Action now to properly guide the caonnunity's growth could solve existing problems and avoid future difficulties. Preparation of the plan has been very controversial in LaPine. Later controversy erupted over the Overall CA -'s chancres to the Lapine CAC`s recommendation because. the Overall CAC felt the suggestions failed to ccmply.with state goals and were in- consistent with other eonmittee's reccamendations. The County has sought to includ as much of the original Lapine ideas as possible while meeting the requirements of the state goals. POLICIES: Policies affecting LaPine may also be found in the Forest Lands, Agricultural, Open Spaces, Natural Hazards and other sections of the Rural Development Chap- ters. Core Area Development 26. The Lapine Core Area shall be the community center for the area and the County shall seek to improve the core area ownership pattern by cooperation with state and federal agencies, including the exchange of County lard ' for other public lands if necessary to facilitate a better ownership pat - 11 tern for community development. -G3- J r VOL 32 PAGE 83 27. The LaPine Core Area shall be encouraged to incorporate and/or to form special service districts to provide necessary public services. First priority shall be given to a sewer system. 28. The County Planning Departrnent shall assist the cormxmity in reviewing incorporation alternatives and in preparing a community plan, , 29. Adoption of an urban growth boundary and plan by LaPine, Deschutes County and the state supercedes existing policies and standards.. 30. A lousing plan for the LaPine Core Area shall be prepared which permits scene flexibility in housing densities consistent with providing adequate facilities (such as school and water). In -filling as appropriate to water , quality, of existing subdivisions,shall be encouraged. 31. A resource center area for LaPine should be developed which would include al library, comamunity center and sheriff or police facility. , 32. Adequate commercial area shall be established along Highway 97, Huntington Road and William Ross Road to serve the community's commercial needs. , 33. Identify an industrial area east of the railroad tracks to allow the devel- opment of a better employment and tax base for the con=:nity. The County shall control the development of this site and provide some basic infra- structure facilities such as roads. Zb help pay for the costs involved and to obtain the nest efficient use of the land the area shall be managed ' for its timber until needed for industrial use. 34. Other existing industrial areas shall receive industrial zoning and the aret".. between the railroad tracks and the existing industry are on William Foss ' Road shall be maintained as an industrial reserve area by the establishment of a rural density residential zone. , 35. Neighborhood parks, as well as leisure recreation activities such as golf courses, bowling greens, archery etc., shall be encouraged. -lv4- 11 �l i7 . I ' YoL 32 FACE 838 Other 36. Because of existing and potential problems with water quality all wells shall be lined, appropriately sited and logged, and septic tank and com- rL nity systems shall be properly installed, Strict enforcement of existing state arra County regulations shall be required. 37. Recreational use areas shaald be set-aside near Dorrance Bridge and on the; Little t:Mschutes River -near Burcxess, but recreational facilities should be connected to school facilities to reduce energy and public costs as much as ssible. 38. xohausted open pit mines, where non-polluting, should be considered for industrial and sludge wastes, as well as sanitary landfills in the immediate LaPine area. 39. Transportation facilities are often major problems in rural areas and the County, state and federal agencies shall consider: A. re-evaluating the Core Area speed limit; B. alternative transport facilities such as bike paths along Huntington Road and South Century Drive, and a shuttle bus for recreational and/or commuting purposes; C. widening Highway 97 to three lanes, where feasible, to allow turn lanes at Burgess, Vandevert and Paulina-East Lake Roads; D. moving the intersection of Burgess Road with Highway 97 to a safer location; E. improving access and circulation in and around Day Road, Fall River Road and LaPine State Park areas (this includes considera- tion by Deschutes County of accepting maintenance responsibility for the LaPine State Park Road); F. encouraging road maintenance districts in ap- propriate areas of LaPine; and G. permit the development of a landing field or airport to serve the local needs for air transport. t40. Because the deer migration corridors in LaPine have been so controversial the County shall cooperate with the State Department of Fish and Wildlife to study the corridors and develop a plan for protecting those areas which vol 32 FACE 839 may ,include purchase of private property but that emphasizes using public land as much aspo ssible. t t 1 1 1 1 1 1 1 t x-64.. VOL 02 FA -GE 810 WHISTLE STOP I T. 22 R.10 See, 4 1 COMMERCIAL 1 1 " I 1 i 1 scale: 1" : 1000' 1 ,ou � 3 i . ryI 3i p -� ��OE.hIMY 3 a � I VOL 32 FACE 811 WICKIUP JUNCTION T. 21 R■ 10 Sec. 36 36 ' JYGLF S�i2 � �i�/J]1� ' � l i J osu 9■■■■im■i In Nunn COMMERCIAL Fi■i■■■■p■■ uu� ■■■■■■i■i / I y i 1 i f 1 scale: 1 " - 1000' 1 VOL 32 once 812 � WILD HUNT COMMERCIAL N 1 1 1 ' scale: 1" : 1000' VOL 32 FACE 813 d :1 ; I U-0 10 p scale: I" 1000' I � 11 Giii=3N ■r■, 9■ oa. ■in11■■6 linrcaw■. i0an06r ■■6f1■■� w:i06■ ■■f■■: ■i\■■: ■11:006a6 011:0066 110.0606 111.0■ ............ -........ ........ - i ter ' a ti !J I I i l ;_ T�o� 'von 32 FACE 814 Terrebonne has had a number of incompatible land uses mixed together because of the unrestrictive nature of rural service center zoning. The Terrebonne CAC felt that some growth was to be expected but that the rural character of the community should be protected, and therefore more stringent control would have to be exercised in the area's development. Concern was expressed that high density encroachment could seriously hamper the surrounding agricultural uses. Problems with inadequate septic tank systems on 10,000 square foot lots indicated to the committee that a larger lot size was needed. Phasing of the communities growth and allowing :ane small acreage rural homesites could be accanplished by providing some areas on the edges of the cam. u ni tyr . The combination of school and recreation facilities was felt to be appropriate for the community. POLICIES: 41. To provide more consistency in land uses within the boundaries of Terrebonne and to assure controlled growth the County shall: A. Designate that area outside the Hillman plat, but inside the existing A -S zone, as a five acre minimum because that area and the area to the south presently has no adequate water (if adequate water supplies and sewage ' facilities are obtained further development at a greater density may be allowed as needed); ' B. establish a commercial area Ezree blocks long and two blocks wide with "C" Avenue as the northern boundary, the south boundary being the ' present A -S boundary, the west limit being Highway 97 and bounded on the east by a line one block east of old Highway 97; ' C. Temporary warehousing and per,m,anent loading facilities for mineral and ' —W- VOL 32 FACE 815 aggregate materials and agricultural products should be permitted. D. Inside the rural service residential areas mobile hones and coventional housing shall both be permitted; , E. Preserve the historic sites in the Terrebonne area, such as the Grange Hall and the old military road; and; , F. Protect lands presently being used agriculturally around Terrebonne fo agricultural use.. 42. Because it is a rural area limited amounts of livestock should be permittel 43. Transportation is also a major issue in Terrebonne and the following policies are important to the cozmunity's growth and safety; ' A. Provide greater efficiency and safety where Lower Bridge Road and "B" Avenue intersect Highw y 97 by construction of a turn lane c I B. have the County request the state to re-evaluate the speed limit throul Terrebonne on Hig'way 97; and C. construct, a bike path_bet<aeen Terrebonne and Redmond -lona Northwest, Way, as funds are available. I I I I 71 scale: 1 1000 1 F "I I vot 32 Fw 16 -1 TUMALO ...... i _.............. ,... . _ �. 1. ... •`. .. .. •.... •'. ,v iii......!:s::;:�v.,' h Y 6.3 it•. �.�.�-�,_.. ^..,•. r MEDIUM DENSITY M' RESIDENTIAL RESEARCH AND COMMERCIAL DEVELOPMENT LOW DENSITY RESIDENTIAL -72- SURFACE MINING FLOOD PLAIN Turemo VOL 32 FAGF 817 Tumalo has also experienced land use compatibility problems because of the previous unrestrictive zoning. Because of increasing residential development pressure resulting from the cormnunity's proximity to Bend, and previous problems, the Tumalo CAC recommended policies they believe will preserve the existing character of the area while permitting reasonable growth and changel I Community needs were identified as; additional crcial services, a plan I for utilizing lands presently being mined, improvements in the local transpor- tation system, and protection of the river and public lands for community uses such as domestic water and recreation. General agreement existed that most ity services were available to the community in an adequate supply. The only major utility missing was a sewer system which was felt to be consistent with the goal of keeping the commmity small and rural. `. POLICIES. 44. 45. 46. 16 In order to maintain the existing rural character Tumalo should not incorpI ate, no development which would require a community wide sewer system should be approved and publicly-avned land shall remain as open space. ' The Tumalo commercial zones shall be as proposed on the plan map and provldj-� adequate commercial area for cc�;munit needs while qu y permitting tourist services on Highway 20, however adequate access control will be provided (s� Transportation chapter). The higher density residential area shall be in close proximity to the cam-ercial area, while the laver density (five acre) lots will be on the fringes of the ccmnranity. The higher density area shall remain in the bow formed b the surrounding hills and cliffs. Y g -73- r 1 74- 32 Ff 818 VOL 47. To protect the scenic views from the unity adequate setbacks shall ' be required for homes built along the Tumalo rim. ' 48. Surface mining areas where the material has been extracted shall be re- claimed and used for residential uses, including mobile hones. 49. Temporary storage and permanent loading facilities for surface mining materials and agricultural products shall be so zoned when adequate public need exists. 1 50. The water ditch and its easement in Tm-nalo must be protected for the health and safety of Tumalo's residents. 51. Hazardous areas, such as the 100 year flood plain,shall be protected frau development. Uses such as parks and open space shall be encouraged and if tnecessary it the County may purchase the land to keep open. 52. Public access to the river at such places as where the Tumalo Deschutes Market Road crosses the river, as well as other places, shall be preserved. 53. The state should consider a turning lane on Highway 20 for access to Tumalo, so as to reduce an existing safety hazard. bike 54. Because of the present, and likely increased future need, a path should be constructed from TLmialo State Park to Tumalo School. r 1 74- m DESCHUTES JUNCTION COMMERCIAL LIMITED RURAL INDUSTRIAL 74 a VOL 32 FbcF 819 scale. 1" 1000' vot 32 fAcE 82 UR&MIM IO�1 A major emphasis on Oregon's land use planning is locating the majority of new development in urban areas. The rural areas are primarily to be protected for natural resource utilization. Between the urban areas (incorporated cities) and the rural areas lies what is referred to as the urbanizing area. Usually under the jurisdiction of the County this is the area where the future population will be located and where the city's services must be extended. 1 IIn Deschutes County the three incorporated cities have been given the authority, by the County, to prepare plans for their respective urban areas. These plans are coordinated with the County's planning effort and will eventually be adopted as part of the County's couprehensive plan. In addition to a plan each city also prepares an urban area zoning ordinance and a cooperative agreement for mutually ad - Iministering the urbanizing area. Bend, Redmond and Sisters are all presently growing at a rapid rate. The rates of growth are higher in Redmond and Sisters but Bends's numbers far exceed the other two cities. Presently Bend's urban area contains about 33,000 residents while Redmond has an esti-mated 7,500 and Sisters approximately 900. All of these communities are expected to continue their growth to the year 2000. At that time, Bend,;Redmond and Sisters should have populations of 84,000, 23,093 and 2,135, res- pectively. They will probably be joined by a new city, LaPine, which will probably have. a population of about 3,620. Over 88 percent of the County's population will reside in urban areas, up from 83 percent presently. 1 It is the urban areas which must acc=Liodate 91 percent of the new people that will be living in Deschutes County by the year 2000. These 71,450 people will require 35,643 new housing units and over 29,700 new jobs. In addition, many of the ' 7,050 new rural residents will require jobs in the urban areas, probably adding 75 VOL 32 FACE 821 , a requirement for almost another 3000 jobs. Such growth will undoubtedly create severe problems for the provision of public ' services and adequate amounts of residential, commercial and industrial lands. Other problems are: the protection of important esthetic values; needed improve -I ments in appearance and functionability of existing developments; safety and esthetic problems, as well as energy and service costs, created by strip devel- opment; evel opment; and problems with coordination and cooperation between the various agenciel serving the public in urban areas, a problem which already exists. I I &Me- opportunities also exist. Cities in Deschutes County are located in one of the most beautiful and livable environments in the state., All of the comrnunitit have within their authority the power to guide their conmunity's growth for the ' public's benefit. Cooperation and mutual effort between the cities, special dis- tricts and the County could mean urban environments that not only function efficie t 1 but are attractive and desirable places to live. The purposes of this chapter are to provide the link between the urban and rural ' areas, and to provide same basic parameters within which the urban areas of Deschutes County shall develop, although the specific urban area plan for each ' coumunity shall be the prevailing document for guiding growth in its respective area. These policies will permit the county to review each urban area plan again, common criteria and assure consistency county -wide. I GOALS: I 1. To provide for an orderly and efficient transition from rural to urban lands. 2. To assure that planning and implementation of plans in the urban areas are ' VOL 32 fAur 822 consistent with the best interest of both urban and urbanizing area residents. ' 3. To retain and enhance the character and quality of the urban areas as growth ' occurs. To recognize and respect the unusual natural beauty and character of the area. To provide a sound basis for urbanization by: establishing proper relationships between residential, commercial, industrial and open land uses; fostering intergovernmental cooperation; and providing an efficient transportation system. To retain and enhance desirable existing areas and to revitalize, rehabilitate and redevelop less desirable existing areas. To encourage and promote innova- tions in development techniques in order to obtain maximum livability and excellence in planning and design for development. POLICIES : Urban Boundaries 1. Urbanization policies refer to urban areas and are intended to assist in the decision making about the conversion of rural to urban uses, and to help in the development of consistent urban area plans. More detailed policies for the urban areas of Bend, Redmond and Sisters are specified in the urban area plans and they shall be the primary documents for coordination and land use decisions in their respective areas. 2. Urban growth boundaries identify and separate urbanizable land from rural land. Conversion of urbanizable land to urban uses shall be based on consideration ' of; (1) orderly and economic provision for public facilities and services; (2) availability of sufficient land for the various uses to insure choices ' in the marketplace; and (3) encouragement of development within urban areas before conversion of urbanizable areas. ' 3. Urban growth boundaries shall be established or expanded based upon the -77- 4. 5. To provide a sound basis for urbanization by: establishing proper relationships between residential, commercial, industrial and open land uses; fostering intergovernmental cooperation; and providing an efficient transportation system. To retain and enhance desirable existing areas and to revitalize, rehabilitate and redevelop less desirable existing areas. To encourage and promote innova- tions in development techniques in order to obtain maximum livability and excellence in planning and design for development. POLICIES : Urban Boundaries 1. Urbanization policies refer to urban areas and are intended to assist in the decision making about the conversion of rural to urban uses, and to help in the development of consistent urban area plans. More detailed policies for the urban areas of Bend, Redmond and Sisters are specified in the urban area plans and they shall be the primary documents for coordination and land use decisions in their respective areas. 2. Urban growth boundaries identify and separate urbanizable land from rural land. Conversion of urbanizable land to urban uses shall be based on consideration ' of; (1) orderly and economic provision for public facilities and services; (2) availability of sufficient land for the various uses to insure choices ' in the marketplace; and (3) encouragement of development within urban areas before conversion of urbanizable areas. ' 3. Urban growth boundaries shall be established or expanded based upon the -77- VOL 32 PACE 823 following. A. Demonstrated need to accommodate long-range urban population growth . poP gr requ:ire- nmts consistent with LCDC goals; B. need for housing, employment opportunities, and livability; C. orderly and economic provision for public facilities and services; D. maximum efficiency of land uses within and on the fringe of the existing urban area E. environmental, energy, economic and social consequences; F. retention of agricultural land as defined, with Class I being the highest priority for retention and Class VI the lowest priority; and ' G. ca-,patibility of -Erie proposed urban uses with nearby agricultural activiti Coordination• 4. Within an urban growth boundary city and county land use regulations standard shall be mutually supportive, jointly proposed and adopted, administered and and enforced, and plans to integrate the type, timing and location of , 61 N development of public facilities and services in a manner to accormuodate demand as urbanizable lands become more urbanized, and to guide the c:ommw Y growth , Urban development shall be permitted in areas where services are available or can be provided in a manner which will minimize costs related to necessary ' urban services such as schools, parks highways, police, garbage disposals fir protection, libraries and other facilities and services. Residential Development Residential developments should be located so that they are convenient to places of employment and shopping facilities, and they should be developed in ' ways w'_zich are consistent with the character of the topography and soils on the site. Residential areas should offer a wide variety of housing densities ' g- 1 1 VOL 32 fAcE 824 in locations best suited to each. 7. Residential densities indicated on general plans should be respected and re: in city and county codes, ordinances and development policies. 8. In residential areas, development should be encouraged which have side yards or rear yards along arterial streets as a means of reducing congestion through turning movements in and out of driveways. 9. Higher density residential areas should be concentrated near commercial services and public open space. ' Commercial 10. Commercial facilities should be allocated in a reasonable amount and in a planned relationship to the people they will serve. Any future expansion of commercial uses, should be developed as centers rather than strips and very carefully con- sidered so that they do not cause unnecessary traffic congestion and do not detract from the appearance of the caw=ity. 11. Neighborhood conrnercial shopping areas, parks, schools and public uses may be located within residential districts and should have development standards which recognize the residential area. Development standards should be established for these ci mercial uses which will provide off-street parking, landscaping, access control, sign regulations, and design review. 12. Strip commercial developments along highways should not be extended. Ccrmercial uses along major streets and 'highways shall be subject to special development ' standards relating to landscaping; setbacks, signs and median strips. No furt commercial development outside urban growth boundaries, rural service centers, planned developments, or destination resorts shall be permitted. 13. All coraercial shopping centers shall be subject to special development stand relating to setbacks, landscaping, physical buffers, screening, access, signs, ' building heights and design review. care shall be taken to control the size ,y VOL 32 FACE 825 of any new cam-ercial developments that may be required as growth occurs Sites shall '.not be oversized to a point where additional uses which would generate traffic from outside the intended service area are necessary to mak the development an economic success. Industrial 14. Community efforts should be directed toward preserving prime industrial lands for industrial purposes. Industrial areas shall be protected from incompatible commercial and residential uses. ' 15. Industrial areas of the conanunity shall be located where necessary services can be provided and with good access to transportation facilities. , 16. Counmutity efforts should be directed tow-ard improving the general appearance ' of cw.uercial and industrial areas so that they make a positive contribution to the environment of the community. , 17. Industrial areas shall provide for new industry in a park -like setting. 18. All industrial centers should be subject to special development standards ' relating to setbacks, landscaping physical buffers, screening, access, signs building heights and design review. Community Appearance ' 19. Because of slow natural growth and their effective use as a visual and noise buffer, and their relationship to air quality, trees or stands of trees shall be protected whenever feasible in industrial, cone ercial, residential and of urban developments. 20. Com mity appearance shall continue to be a major concern. Landscaping, ' sign regulations and building design review shall contribute to an improved environment. Major natural features such as rock outcrops, stream banks, canyons , or stands of trees should be preserved as a corrmunity asset as the area develops. 11 VOL 21. Attempts by each community to identify those characteristics which give the community its individual identity and to preserve and expand those characteris- tics as growth occurs shall be encouraged by the County. 22. Sign regulations shall be adopted which limit the size, location and number of signs in commercial and industrial areas and have amortization provisions to remove existing signs within a reasonable period of time which do not conform we with the regulations. ' Urban Transportation 23. Expressways and arterial streets should have landscaped median strips wherever ' possible together with left -turn refuge lanes . Public transportation routes ' should be encouraged throughout the area and, if necessary, special provisions made in street design to accommodate ways.. ' 24. Streets and highways should be located and constructed in a manner which will accommodate both current and future traffic needs. Implementation of arterial and collector road systems should be a joint county and city effort with strict time schedules and priorities. 25. Inter urban transportation facilities should be located in or near the central business district or main highway. Special consideration will be needed to evaluate public transportation needs and possibilities within the urban area. 26. Except for major arterial and collector streets, street patterns in resi- dential areas should be designed to provide convenience access to each living unity but not encourage thru-traffic. Major and collector streets, should be secured and developed under a strict time frame so that a reasonable circulation pattern will result. 27. Provisions should be considered which will permit mass transit vehicles on we VOL 32 FADE 827 arterial and collector streets within residential areas in the future. Facilities and Services 28. Efforts should be made over a sustained period of time to place utility lines underground in existing and new residential areas. 29. Parks should be located within walking distance of every dwelling unit in the community. Parks should be centrally located and easily accessible to the areas they are intended to serve (see Recreation). I I I I 30. Certain private recreational uses such as golf courses or riding stables I can be successfully integrated into residential areas provided the location, design and operation are compatible with surrounding residential develop- 31. Fire protection in the planning area should be considered as a common pro- blem by the city, county, water district and the fire protection district, and equipment should reflect the character of land uses in the community. 32. Efforts should be made to encourage federal and state agencies to locate in urban areas. 33. Efforts should be made to group public offices in a more or less common location as a convenience to the public. Other 34. In many cases, home occupations are a legitimate use within residential areas and should be permitted provided that the use displays no outward manifestations of business other than a small business sign attached to the wall of the house. I I I I I I 35. Recreation vehicle storage should be permitted in planned residential areas and these facilities shall be landscaped and otherwise screened from I adjacent residential uses. ' 36. Consistent with policies'in the Historic and Cultural chapter rehabilitation ' VOL 32 fAtE 828 and/or redevelognent of older residential areas shall be encouraged. $3, DCONOPilY VOL 32 FACE 829 Basic to the preparation of all comprehensive plans is an understanding of the , economy in the study area. Knowing the employment characteristics, the econoni..c trends and the likely new economic opportunities helps a community make useful , decisions about its future. This knowledge can permit a better perception'iof the traits and numbers of the anticipated new population as well as help allocate ' adequate amounts of land for various purposes at the correct locations. Further, an economic analysis can point -out resources (both human and natural) which are ' underutilized, and the analysis can permit the ccmunity to avoid errors that might otherwise occur. Much of the following information is taken from the Deschutes County Overall Economil Development Plan. Deschutes County's econcmy is fairly typical of a rural county experiencing rapid growth as it changes from its former rural economy to one more characteristic of an urban area. Resource activities such as fanning, timber and mining once played , far more dominant roles than is true today. Agricultural employment and income have declined, although recent years have witnessed relatively stable production ' and an increase in gross agricultural income. Timber and wood processing has re- mained an important economic element and although future years should see some ' employment gruAth despite the same or a mall decrease in the allowable cut, it will ' likely decline in relative importance as the character of the economy continues to change. Mining's importance has continued to decline and employment will likely ' remain fairly constant. An industry often found in rural parts of Oregon is tourism. The magnificent scenerl clean environment and numerous, as well as varied, sites for recreation make Deschutes County a popular vacation area. Much of the initial, and a considerable t portion of today's,ccnTrercial investment was related to serving tourists. 4- VOL 32 FACE 830 Tourism and recreation rank second to timber as an income producer for the County. Recently questions about gasoline. availability, loss of scenic attractiveness due ' to development and the desirability of an industry with relatively low wage rates have raised seious doubts about tourism's future locally. The most dramatic changes occurring in Deschutes County's economic picture seem to be related to the growth taking place locally, contract construction plus ' services and miscellaneous have grown dramatically. %bolesale and retail trade, as well as Fire -Insurance -Real Estate, are also growing significantly. The only ' service industry not increasing it's relative importance is government, which is ' declining as a percentage of those employed. ' Manufacturing has been growing in the County but at a slower rate than non -manu- facturing. Part of the problem has been the relative isolation of the area from ' major markets but this may change in the future as Redmond's industrial park is ' completed. If Redmond is successful in attracting significant new industrial employment it is possible that manufacturing could become a much more important part of the local econcudc situation. Usually manufacturing employment does pro- vide significant improvements in local incomes, although the resulting rise in ' the cost of living can adversely effect those on low or fixed incomes. 7 7 In addition to the attraction of non -transportation -dependent industries, there is also interest in attracting more tourism, particularly conventions. Also, the increasing rrimber of new shopping centers is expected to somewhat enlarge Bend's market area and perhaps improve the community's position as a regional trade center. Bend is already the major service center in Central Oregon. VOL 32 FAGS 831 • Ln w Ln w �4 oma' o 0 w tq 1 0 4.3 r-+ 4 0 rd a) , Da n 14 0 4J l 00 Ln Ln fn M M lP M O !a E+ yWJ arD - O M � tt 0 m 4 �' Q � �oa� o M ' 8 0) t1) N l0 ri M r1 �O O ri O 0 U ' Q� 01 O CA (il r-. ro • %-I 04 .rq •r > r4 s. 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N FE+ 4-3 `E J 84 Eo tD w as +� Ef) En 44 N O 11 A rn V7 VOL 32 rw 832 The population is likely to continue growing, although the present 6.3 percent annual growth is expected to slow to an average of 4.5 percent annually, until the year 2000. Interestingly, even though the population growth rate is the highest in the state, the labor force has been growing even faster. Sade people speculate this is due to tine number of seasonal employees attracted, while other believe it demonstrates the inadequacy of present population estimates. Sven with the high unemployment characteristic of rapidly growing areas, it appears Deschutes County ' is increasing its employment at an amazing rate. This probably also implies con- siderable local under -Employment as people take whatever job is available.. People ' apparently are somewhat willing to sacrifice employment for improved livability. L 'J To see the people of Deschutes County to the year 2000 the following goals have been prepared. GOALS: 1. To diversify and improve the economy of the area. 2. To enhance and maintain the existing natural resource, commercial and in- dustrial segments of the local economy. POLICIES: Tourism 1. The importance of tourism to the local economy is well-known, but there also exists considerable potential for strengthening and improving this segment of the economy. The County shall assist in the development of a long-range plan to encourage tourism (including destination resorts) and recreation local- ly (see Recreation Chapter for additional information). This study will include consideration of the impacts likely to be created by increasingly expensive Baso line. 2. Private commercial activities consistent with other county policies which enhance tourism shall be encouraged by the County. -97- VOL 32 FAGS 833 3. The County shall encourage the development of a convention center and multi- purpose civic auditorium in Bend to further encourage additional tourism. The County's support may include providing County -craned land should that be determined to be appropriate and legal. 4. Consistent with policies in the Recreation and Open Space chapters, cooper- ation with federal and state agencies shall be sought by the County in pre- serving, and developing as appropriate, scenic and recreational resources. 5. Improved transportation to winter recreation areas shall be encouraged by ' better snow removal on roads to such areas, as well as by seeking programs providing alternative transportation methods. I Natural Resources I 6. The County shall protect agricultural land to assure continued agricultural ' production and the benefits to tourism (see Agricultural chapter). 7. Where consistent with other County policies on open spaces and tourism Deschutes County shall support Deschutes National Forest land use alterna- tives which stabilize or increase the annual allowable cut. Reforestation of the national forest is of particular importance. The County will , continue to support the concept of multiple use. 8. Deschutes County shall support additional Wilderness Area only if there is no significant reduction to the annual allowable harvest, or when it can be shown that the added Wilderness Area will result in local economic benefits equal or greater than those available from the harvesting of the timber. 9. The County shall encourage the development of alternative additional uses I I for non-metallic minerals (non -aggregate materials only - see Surface I Mining chapter). 1� f _ ►VDD 32 w 834 Land I I 10. Adequate lands for ccnrcercial and industrial requirements shall be set- aside (see Rural Development and Urbanization chapters). 11. In order that local residents have adequate employment the County shall encourage programs that appropriately increase employment opportunities and assist, where feasible, public plans and programs to develop indus- trial land. 12. While medium and heavy industry which meets state and federal pollution standards shall be accommodated the County shall seek and encourage only non-polluting (most likely light industry) manufacturers which are ca-patible with existing air and water quality. 13. Deschutes County and the City of Bend will explore the feasibility of us- ing the B111 land adjacent to the northern boundary of the original Bend Urban Grawth Boundary, and fronting on the east side of Highway 97, as future industrial land. The County shall work with the Mm to protect this land for possible industrial use until a final lard use determination is I made. 14. Publicly owned land is a community resource that should be used as trading stock and otherwise to implement this plan thereby assisting and meeting the community's future needs. 15. Where there is a demonstrated public need for conversion of public land to private use, the County should continue to sell such land at public auction. ' 16. Deschutes County shall cooperate with other local agencies in the pre- paration of a county wide economic development plan and as an interim plan ' shall adopt as part of this plan the Deschutes County Overall Economic Development Plan. gq HOUSING VOL 32 FACE S35 1 There were 19,022 housing units in Deschutes County during 1977, of which about 13 percent (2,547) were considered to substandard. This is an unexpectedly high number of substandard housing units. ' Study by the Central Oregon Intergovernmental Council reveals that ap- proximately 10 percent of the County housing supply is comprised of second hams. These second home owners are usually not Deschutes County residents. ' Given the assumed dominance of recreation locally this 10 percent figure ' seems to be somewhat low. In 1977 the median family income for Deschutes County was $15,779.00. This ' indicates that half of the County's families would be over burdened trying to purchase a $28,000.00 home with 10 percent down, on a 29 year mortgage. ' Few homes in Deschutes County are available at prices anywhere near $28,000.00. Obviously there is a need for more median and low income family housing. ' ' The most recent housing vacancy information from the Oregon State Housing Division indicates the following as of December, 1976: ' Deschutes County Housing Availability ' Single -Family Apartment Mobile Home Vacancy Vacancy Vacancy , Bend 1.0 4.2 6.7 Bend Rural Area 1.4 2.5 6.3 Total 1.1 3.8 6.3 , Redmond 0.7 2.7 5.3 Redmond Rural Area 1.8 4.3 5.6 Total 1.2 3.0 5.6 ' Since a vacancy rate of 5 percent or less is generally considered to indicate ' an inadequate housing supply which does not afford sufficient choice of type or 10- 1 n 11 vot 32 PACE 836 price range, it is apparent that except for mobile homes serious housing shortages exist locally. Given that the population is expected to continue to grow to an estimated 128,200 by the year 2000, and in light of the continuing trend toward smaller households, it appears that an additional 38,682 housing units will be needed in the next 20 years. Given the likelihood of few major shifts in housing preference in caning years this would indicate a need for: 25,492 new single- family ho -i -nes ; 5,682 new multi -family units; and 7,508 new mobile hcmes. It is possible that increasing fuel costs and governmental incentives for higher densities could increase the multi-faruly unit needs while lowering single- family hone requirements. Sufficient flexibility in County plans and zoning to accommodate such a shift may be necessary. 1. To provide adequate n-anbers of housing units at price ranges and rent levels ccmrinsurate with the financial capabilities of local households. 2. To allow flexibility of housing location, type and density in Deschutes County. POLICIES: Because housing is one of the most important issues with which a comprehensive plan deals, many of their other chapters (i.e., rural development, urbaniza- tion, energy, public facilities ) also directly or indirectly affect housing. The preparation of the policies in this chapter were generally accepted throughout the process, and changed little. The only exception Hras mobile hones. MIN VOL 32 PAGE 837 Repeatedly the issue of whether to permit doublewide mobile homes as permitted uses anywhere in the County was debated. Several differing con- clusions were reached by various groups, usually depending on how that group balanced the need for lower-priced housing against esthetic values and neighborhood objections. The Board of County Commissioners was finally able to reach a compromise which is to be found below. ' 1. Doublewide mobile hares (960 sq. feet or larger) with roof pitches, overhangs , and siding comparable to site-bailt hones shall be outright uses outside urban growth boundaries, unless proposed in one of the four areas of the County where mobile hones were prohibited prior to the adoption of this plan or where protective covenents exclude such housing. 2. Singlewide mobile homes shall be permitted in selected residential areas, and as part of mobile hone parks or planned developments; however, single - wide mobile homes should not be permitted on individual lots in urban density residential areas which have already substantially developed with conventional housing, unless singlewide mobile homes were part of the I original development plan. 3. In order to keep housing costs as low as possible the procedural and ap- I plication processes in the County Planning, Sanitation and Building Depart- ments shall be reviewed and streamlined as much as possible. 4. To enable and encourage later in -filling of large lot subdivisions in areas the subdivisions should be pre -planned for later division into smaller lots at the time of the original platting. , - qz- -. .t 838 1 5. In order that the most efficient housing pattern may be obtained the County shall encourage the in -filling of existing subdivisions before ' additional land division occurs. 6. Subdivision approval shall be dependent upon adequate provision of public facilities and services, which may require phased construction of the develoEment; and to further reduce costs and provide amenities such as open space and esthetics the clustering of housing is to be encouraged., 1 . q3- 7. To reduce costs and to encourage variety in design, County standards 1 shall permit a variety of housing styles and setbacks, as well as appropriate reductions in road widths and other requirements. 8. Because clustering development can minimize the cost of land and Iservices, as well as provide more amenities, clustered housing for all incane brackets shall be encouraged. ' 9. In order to reduce costs for initial construction, as well as for mainten- ' ance,new construction of low-inccme housing shall be located in urban areas or rural service centers. 10. To develop adequate amounts of low-income housing the regional housing authority shall be responsible for coordinating and implementing housing assistance programs in Deschutes County. The County shall maintain an ' on-going study of all inane levels of housing in order to provide in- formation on local housing needs. 11. Because of the relatively high need for housing rehabitation locally the County shall study local and state programs to assist housing re- habilitation in and, conjunction with other local governments take appro- priate action to encourage necessary rehabilitation. 1 . q3- TRANSPORTATION VOL 32 FACE S39 The transportation network is the thing which ties a community together. While land uses are a physical reflection of all the people do, it is the transportation network that indicates how those activities interact. ' Adequate transportation planning is an important part of any comprehensive plan which hopes to guide the community's growth in the most efficient and , equitable manner possible. There is presently no long-range transportation network that indicates how I those activities interact. Adequate transportation planning is an important part of any comprehensive plan which hopes to guide the community's growth ' in the most efficient and equitable manner possible. There is presently no long-range transportation plan for Deschutes County, I and the primary transportation mode is the automobile. In fact, without automobiles, most rural communities would be largely isolated. Transportation ' planning is complicated because responsibilities are divided between public, ' semi-public andprivate providers, and most resources are committed to automo- bile transport. The latest statistical study on the transportation -disadvantaged in Oregon (1972) by the Oregon Department of Transportation revealed that in Deschutes County 39 percent of the population was transportation -disadvantaged. Of that ' number, 8,428 were were elderly or handicapped, while the remaining 4,758 were the poor or youths under 18. Given that automobile prices are almost certain to increase as availability declines and demand continues to rise, it is likely other modes of , F �I VOL 32 PAU-r 849 transportation will increase their proportion of the total transportation volume. The effects of funding changes for transportation are difficult to assess presently. Highways and Roads There are three primary roles for a road network: land access (access to property); traffic mobility; and provision for utility service lines (water, sewer, electricity, etc.). ' There are three basic classifications of routes used for County roads, based or. _the type of service they provide: ' A) Arterials - Roads designed for through access between major traffic J generators. Arterials should provide the traffic mobility needs. B) Collectorg - Roads whichg ather the traffic from the local roads between arterials. These roads should provide a balance between the needs of land access and traffic mobility. 1 C) Local - Roads designed for land access. Deschutes County contains 199 miles of primary state highways and 36 miles ' of secondary state highways (1978). Currently none of the local cities have highway bypasses. Since the top funding priority of the Oregon Department ' of Transportation WDOT) is maintenance, rather than new construction, major new state highways locally appear unlikely. L' of the 971 miles of roads in the County road system only 297 miles are eligible for federal funds. The County maintains 543 miles of paved roads, 147 bridges, 169 miles of graded roads, and gives no maintenance to 259 miles of roadway. These 259 miles of unmaintained roads serve few people and no broad q5-_ ! VOL 32 FACE 841 public purpose. Funds to maintain County roads come fron state gasoline tax monies and revenues from federal timber sales (some of which is shared with the cities and school districts). presently, inadequate funds prevent , the County from maintaining all roads at the level they should be,given the amount of traffic they bear. Because road construction is both a result and a cause of new building and new' subdivision, Deschutes County is reappraising its road requirements. New subdivisions must now provide paved access to and through the development, at the developer's expense. The County will share the costs of widening existi.j roads during develoxnent of adjoining major site improvements aryl subdivision It has been found to be especially important to improving safety and laa.ng maintenance costs that roads be paved. Problems with differing standards be- tween the County and cities in urban areas have also caused expensive diffi- culties - iffi-culties. ' In addition to state and County roads there are 1,300 miles of federal forest highways, 41 miles within special road districts and 70 miles of private roads in planned developments such as Sunriver and Black Butte Ranch. There are also many other miles of private roads and an estimated 500 miles of public ways which are unimproved public rights-of-way controlled by DeschuI County. Public ways will be improved and maintained by the County if ad- jacent property -owners form a local improvement district to bring the road , up to County standards, I While sone other problems such as lack of standardization of street and l road names and vehicular noise have created problems the major traffic issue -eiL_ 'VOL 32 PAGE 842 1 after adequate roads is the proliferation of access points along roads and ' highways. The many turning movements create serious safety hazards, remove the ability of the road to function and cause expensive highway improvements. By limiting access it has been found that traffic can be roved faster, safer and more efficiently. Also controlling access fosters the useability of ad- joining land uses. This is particularly true in commercial areas, but is also evident in residential districts as well. As Deschutes County continues to grow so does the number of registered ve- hicles. Interestingly, the number of vehicles seems to be growing even faster than the number of people. Table i Registered Vehicle Growth in Deschutes County Registered People Year County Population Passenger Vehicles per Vehicle 1967 27,630 17,121 1.61 1972 33,800 24,808 1.36 1977 46,800 42,071 1.11 Problems are also created by tourist traffic which increases the traffic load, although the Oregon State Highway Division studies indicate most of the traffic 1 on Bend's Third Street is local. Perhaps even more surprising is that most Highway 97 traffic has Bend as its destination. ' Given the coming increases in population and vehicle registrations, increasing- ly restrictive amounts of money for road improvements, growing concern over the ecological effects of automobiles and a need to provide alternative transportation modes, increased coordinated plannning and encouragement of more efficient development patterns (i.e. cluster development) will become much --17- more important. VOL 32 FACE 843 Railways 1 There are four railroads in Deschutes County; Oregon Trunk Line (Burlington - Northern subsidiary); Burlington -Northern; Union Pacific; and City of Prine- ville Railroad. The track is in generally excellent condition and, except ' for Prineville's railroad, is owned or controlled by Burlington -Northern. Although there is no passenger service, rail transport is a cost-effective and important service for bulk shipping locally. Switching facilities include ' 25 miles in Bend, 15 in Redmond and a mile of spur and passing track in LaPine.' Between 40 and 50 loaded rail cars Leave Bend each week (pumice, wood chips and finished lumber), while on 6 car -loads arrive, creating a serious i.mbalanj for local shippers. Even though large-scale expansion of rail facilities is not anticipated presently, sufficient right-of-way for expansion does exist, which is im- portant in light of the discussion of industrial expansion and economic diversification found in the Econcric, Rural Development and Urbanization chap ters. Particularly as fossil fuels increase in price railroads will becc-;e I increasingly important. Additional facilities such as spurs for industry, crossing guards (presently inadequate) and possibly even passenger cars are features that need to be anticipated and fostered. ' Airports , here are four airports in Deschutes County, although the public also uses the uncontrolled landing fields in Brothers and NLillican; Bend, Redmond, _,8 'vet 32 rotE 844 I ' Sunriver and Sisters. Only Redmond and Sunriver have scheduled comaercial passenger service. There are many other private landing fields in the County, ' as well. Although most goods produced locally do not lend themselves to economical air transport there are some businesses which require a location near an airport, and much of the type of industry the County wishes to attract are of that nature. Currently aircraft operations are increasing at a 20 percent annual rate at the Bend and Redmond airports, with Redmond recording a 75 percent increase in pas- sengers during 1977. Redmond's Roberts Field is expected to remain the major corrercial aviation facility while Be�-xi Municipal Airport will continue and expand its general aviation abilities. Because residential, and most ccm ercial, uses are inccupatible with airport ' use (noise and hazard from aircraft flight paths), planning to prevent con- flicting uses and hazards is important at the two major airports as well as the other airports and landing fields. At Bend and Redmond where master plans have ' been recently prepared this protection will be much easier to providethan the other aircraft facilities. Public Transit ' Present inter -state bus service is inappropriate to serve local transit needs. The local governments have been reluctant to becane involved with public transit because of costs and little public interest. Presently, local public transit is limited to two demand -response systems in vol 32 PACE 845 the Bend and Redmond areas, which respond to calls from the elderly and the ' handicapped. Recently a local bus company has been proposed to provide sane inter --city service, and this company may be eligible for state and federal ' assistance. It is anticipated that the demand for public transit will increase. LaPine ' and Sisters, as well as other rural ocmmunites, are expected to reach popu- lations which will make public transit needed in the near future. ' Non -Motorized I Limited funding has been available for non motorized transportation in previous years. Current paths and trails are usually along motorized roadways, except ' for recreational usage. Deschutes County and the cities of Bend and Redmond , have about 14 miles of bike paths, while Black Butte and Sunriver have a combine total of 40 miles. Almost all new developments need paths and ' walkways to accommodate the growing demand. The biggest a-rount of trails in the County is maintainedby the Deschutes ' National Forest which has approximately 450 miles of horse and hiking trails. In light of the growing needs and greater complexity of transportation plan- ning locally the following goals have been developed to serve as objectives for local growth and change. GOALS: 1. To provide a balanced, safe, efficient and integrated transportation system, which reflects environmental, economic and social considerations. 2. Serve the existing, proposed and future land uses with an efficient, safe, VOL.32 FAcF 846 attractive roadway network. 3. To provide opportunities for rail transportation for people and goods. 4. To provide air transportation opportunities for General Aviation and Air', Carrier Aviation within a balanced transportation network. 5. To provide opportunities for the development of public transit systems. 6. To provide a system of safe and efficient transportation and recreation routes for pedestrians, bicyclists and equestrians. 7. To decrease the adverse effects of the autcrmbile dcmi,nation of existing transportation systems. POLICIES: ' Gene al 1. A county -wide study shall be undertaken to develop an integrated oompre- ' hensive transportation plan which addresses all levels of transportation ' needs and is responsible to the changing character of the ccmmmity. This study shall also consider inter and intra -county movement as well as 1 inter -state relationships. Public hearings and citizen involvement shall be an irportant part of this study (see Citizen Involvement chapter). 2. To facilitate coordination, transportation plans within urban growth ' boundaries shall be coordinated with, and adopted by the County. 3. A permanent County Transportation Advisory Connittee should be formed ' to assist in transportation planning. Highways and.Roads ' 4. To assure the greatest possible efficiency in road improvements, the County shall establish an improvement schedule based on the County Road Departments traffic safety study, and coordinate construction with local, state and federal road programs. 5. Transportation system improvements shall be consistent with other pertinent -102- voL 32 FACE 847 governmental policies and plans, as well as available utilities and ' services. ' 6. Roads utilized primarily for local traffic should be maintained by local agencies while non -local -traffic roads should be maintained by the state (i.e. Cascade Lakes Highway should be state,- while the Old Bend --Redmond Highway, the Tumalo-Deschutes Highway and the Cline Falls Highway should ' 7. be County). In to order more efficiently allocate ever more scarce resources, maintenai and public use of streets or roads which no longer have a demonstrated publ need shall be discontinued. 8. All new transportation facilities construction, arra particularly new road- , ways, shall consider: , A. environmental impact; B. reduction of traffic -generated noise; ' C. minimial disruption of land uses and social patterns; D. retention and recovery of scenic qualities E. reduction of accesses to adjacent property along roadways; , F. increased safety; G. public review; ' H. non -motorized facilities; and I_ cost effectiveness. , 9. Inside urban boundaries road standards shall meet or exceed the city ' standards and uniform county -wide standards shall be encouraged through mutual discussion. 10. The County shall consider financial assistance to construct or improve major streets and roads in urban areas. ' 11. Because local streets are primarily beneficial to adjacent property -102- CI 11 VOL 32 FACE 848 owners the major portion of local street improvements (within the rights- of-way), such as sidewalks and curbs, shall be financed by abutting property owners. 12. Subdivision of properties not on roads constructed to County standards and not accepted for maintenance_ responsibility by a unit of local or state government shall not be permitted. A subdivision road shall be public and maintained by a public agency, unless they are part of a road district;or a destination resort, planned cammnity or planned development wnere nate- owners associations or private corporations shall be acceptable alternatives. 13. Because uncontrolled access can constitute a threat to public health and welfare, as well as create excessive public expense, access onto existing collectors, arterials and highways shall be limited, consolidatedand otherwise controlled as much as is feasible. Restrictions on the number of new driveways from a new subdivision is an example. 14. in order to insure minimal interruption of traffic flow and to promote safety; the clustering of all types of development shall be encouraged, minim= setbacks of 50 feet on arterials shall be required, and along arterials inside urban growth boundaries critical transportation corridors shall be identified. 15. Critical transportation corridors shall have specific criteria for devel- opment established for each corridor. 16. Access control shall hasize coordination of traffic and land use pattern: �p ' to minimize negative effects. Frontage roads and access collection point-,:-.--- (see oint-�(see ODOT, Access Control Guidebook) shall be used wherever feasible. ' Area wide needs must supercede site-specific needs. 17. The County shall seek ways to finance needed transportation capital im- proveme nts and transit system developnent, such as through a county -.vide gas tax. VOL 32 PACES49 18. Acquisition of needed rights -of way for road improvts should be made al early as possible in order to reduce ac qui.rtition costs. 19. Planned developments shall include public streets to a000mmodate present and future through traffic, where needed. 20. Because curb and road width requirements add to housing cost (see Housing I chapter) planned developments (includes clusters, planned comaaxnities and destination resorts) may request reduced widths where it can be demonstrated the road will accommodate anticipated traffic, and alternative parking facilities (such as parking bays) have been provided. Railways 21. Ccrmunication between the railroads, Deschutes County and the municipalitiep shall be encouraged through the planning process to reduce land use conflict and increase safety devices at all at -grade crossings. 22. To acconnodate future industrial access rail spur areas shall be protected ' by the zoning ordinance and in plan reviews. 23. The County shall encourage a state or federal study of passenger rail servil from Chenult to Madras. 24. The land use elements of both the Roberts Field and Bend Airport Master Plans shall become part of this plan and guide land use decision- ' making in the vicinity of these two facilities after public hearing, review' and acceptance by the County governing body. 25. The County shall recognize Roberts Field is the main ccmunercial airport for Central Oregon and envourage airport official's efforts to have ' Roberts Field used as a point -of -departure (rather than Portland or elsewhere) for commercial freight and passenger service, particularly for direct colivercial flights east. - 104- VOL 32 FACE 850 26. Any land use decisions regarding airports in Deschutes County without adopted master plans shall be based on Airport Compatibility Planning, Recorranended for Airport Land Use Planning and Zoning, ODOT Aeronautics 1 Division, 1978. 27. The County shall participate in, and encourage, adopted master plans and appropriate federal, state and local funding for airport improvements at publicly owned airports. 28. Future develoEnent of private landing fields shall be discouraged when they are in close proximity to one -another or public airports, or overall ' density and/or use in a relatively small area would cause hazards. State standards shall be met. 29. Because of potential hazards from, waterfowl land uses beneath designated 32. The County and cities should mutually decide where and how monies for public transit should be spent. Alternatives such as carpooling and a public transit district should be considered. ' 33. Deschutes County, in conjunction with the City of Bend, shall continue -- 145- approach surfaces within one-half mile from the ends of all runways shall not create water impoundments, sanitary landfills or sewer treatment ponds. Screens or nets for water or sewage ponds may be required up to 12,000 feet from the end of the runway. 30. To avoid danger to the public safety by potential aircraft accidents, ' commercial uses resulting in/concentrations of people shall not be permitted within airport approach surfaces and an area within 500 feet parallel from the runway centerline. Public Transit 31. Public transit planning responsibility should be jointly recognized by the County and all incorporated-.mnicipalities, and they should work with ' the central vregon Intergovernmental Council to develop public transit plans. 32. The County and cities should mutually decide where and how monies for public transit should be spent. Alternatives such as carpooling and a public transit district should be considered. ' 33. Deschutes County, in conjunction with the City of Bend, shall continue -- 145- voL 32 PAGE 851 to support existing dial -a -ride services and shall consider supporting ' Redmond's service. Expansion of existing systems to all members of .the public shall be sought. i Non Motorized 34. The County shall develop and adopt a county wide systems plan for bike paths and .trails (see Recreation chapter) which provides access to various destinations in and between urban areas and rural service centers. Inter- action and coordination between pertinent agencies locally shall be sought. This plan shall contain standards for appropriate bicycle and pedestrian ' facilities for various densities and based upon the three different -road t1ts 35. Bike paths on the Old Bend .Redmond Highway and between Bend and.Sunr.iver on N.F. 1808 shall be constructed, if feasible. 36 .The County shall adopt the Bend Bike Path Committees Overall Plan for the Bend Area until completion of the county -wide bike plan. I 37. New developmients in urban areas, rural service centers and planned devel- , op?nents shall have bike paths constructed as a condition of approval. Some exceptions ?nay be appropriate depending on topography or other pertinent I factors. 38. Whenever possible, paths and trails should be developed in conjunction with existing motorized routes. Consideration shall be given to the speci needs of pedestrians, bicyclists and equestrians. 39. The County shall explore federal, state and local avenues for funding to establish bicycle, pedestrian and equestrian trails. 0 1-1 --(ti6- PUBLIC FACILITIES r VOL 32 fAcE 852 In a county growing as fast as Deschutes County the provision of public ' services is a maJ'or issue. Adequate services at the right locations are the , �N ' result of planning, hard work and money. The present growth rate has exceeded the previous plans and hard work by local governments has not always been able ' to keep up with the demand, especially since there is a growing reluctance to pay the higher taxes it takes to obtain the public services. In addition, ' the scattered low density development that has occurred in sane places is so ' inefficient in supplying services that the needed facilities are excessively expensive or completely unprovidable. ' Utilities Utility services are more easily, and less expensively, provided when de- velopment. occurs in and around areas with existing utility lines. Large lots require long lines resulting in higher costs, and often discourage later ' redivision into smaller lots. ' Small com.unity sewage systems often have problems because of isolated peak use resulting in a discontinuity of waste. Often these systems are not properly operated or maintained. Once a breakdown occurs correction of the problem is ' difficult or uncertain. However, places such as Black Butte, Sunriver and Juniper Utilities have worked well because many hcmesites were served and ' the expense was acceptable to the families involved. Because ,rater is crucial to public health and safety it must be protected ' from contamination by waste discharge, poor well construction and high con- centration of septic tank systems. This protection has not always occurred in the past. And small water systems often have difficulty with maintenance ' and operation. VOL 32 FACE 853 One proposal which is continually raised is the metering of water to reduce ' use and costs. of all public facilities (aside from roads) the extension of sewer and water service are the most critical to planning. Decisions as to where and when thesi services will be provided can significantly reduce the costs of these, arra M other, services. Law Enforcement There are frequent complaints about inadequate police protection and a check of national averages indicates that in 1978 the County was eight officers ' short of equalling the national average of 1 officer per 1000 citizens. At the present rate of growth, and especially in the light of construction of such ' facilities as shopping centers,many additional officers and support personnel will be needed. In 1977 alone all types of crimes increased. 12 percent for ' the County Sheriff's Department. Increases in the cities were even higher. ' Yet, recent levies to obtain more Sheriff's officers have been rejected by the voters. Schools one of the basic problems with large amounts of residential developTent is I that it rarely pays in property taxes for the services that must be pro- vided. This is particularly true for the most expensive public facility schools. Increasing permanent residences require more facilities and teachers. ' In the past much of the new develop-ent was expected to be seasonal recrea- tion and therefore not likely to regaire schools. With the realization that ' much of the seasonal development is now becoming full-time residences that require school services the school districts have been forced to seek additional —Vd$- VOL 32 fAcE854 funds for new buildings and more teachers. In addition, since many of the new residences are in rural areas requiring ever -more -expensive busing the ' costs have risen even faster than expected. In School District 1 students ' bused increased from 26.5 percent in 1970 to 41 percent in 1977 and in one year (1977-78) jumped to 46.6 percent. This busing requires approximately ' seven percent of the total District budget. In School District 2J about 60 percent of the students are bused. In both districts the operating cost for ' busing (not including bus purchase) is nearly $1.00 per mile. ' FireSee Natural 1 Hazards Chapter also) ' Perhaps the public service most often forgotten is fire protection. In many areas of the County no fire agency is responsible for fires which occur. To ' solve this problem fire districts are often formed in rural areas or fire pro contracts signed with fire protection agencies. However, even when fire districts exist the annexation of new developments may take over a year and in the past the Bend Fire District has had to put a moratorium on any new annexations because of facilities shortages. ' Many people assume protection is available from federal or state agencies, but these offices have no authority or responsibility on private lands. Usually they are not trained to fight structure fires, and in the winter their fire- fighting equignent is drained and stored away. ' As the County continues to grow many firefighting agencies are becoming in- creasingly concerned about: the lack of proper controls to reduce fires in ' subdivisions; the inadequacy of firefighting equipment and training; and the need for more cooperation and mutual aid agreements between the various agencies. Proper planning and subdivision control is seen as critical in dealing with I the situation. �a4_ 1 - - VOL 32 FACE X55 Health I County health departments have important impacts on development locally. Concern about water quality and available health facilities as well as needs generated by different types of development, often bring the health and plan- ning functions together. 1 As the community continues to grow additional nurses, sanitarians, etc., are required. Mthout the new people necessaryapprovals may take weeks to obtain. Sometimes people can be substituted for facilities as when Home Health nurses provide older people an opportunity to stay at-home rather than requiring the construction of hew hospital or =sing home units. At present sufficient nursing have units exist locally. 1 Each of the County's hospitals is preparing a master plan to guide its growth. The effects of community growth are evident at St. Charles Hospital where growthl such as the new Mountain View High School , has created traffic congestion interfering with emergency hospital operations. 1 Providing public facilities is a complex and difficult task, but one critical to the ccmunity's growth. 1. To plan and develop a timely, orderly and efficient arrangement of public facilities and services to serve as a framework for urban and rural devel- oFment; and thereby a system or plan that coordinates the type, location and delivery of public facilities and services in a manner that best supports the existing and proposed land uses. - IIv- -' VOL 32 Fc 85r6 tPOLICIES: General 1. Public facilities and services shall be provided at levels and in areas appropriate for such uses based upon the carrying capacity of the land, air and water, as well as the important distinction that must be made between ' urban and rural services. In this way public services may guide development while remaining in concert with the public's needs. 2. While clear distinctions are not always possible between urban and rural services those facilities, such as sewage treatment plants, water systems, schools and fire stations, which are necessary to serve concentrations ' of people shall be known as key facilities and shall be located in urban areas or in rural service centers if necessary to meet the needs of existing rural Key facilities residents. shall be built to encourage urban, rather than increased rural, residential development. Rural services such as sheriff's patrol, snowplowing, schools, and school busing shall be kept at levels ' adequate to meet public needs but not in excess to encourage additional develoFment. Rural service centers are a logical location for future rural key facilities that be in so services may used and constructed as efficient a manner as possible (see Rural Development chapter). Key facilities out- side urban areas or rural service centers shall be discouraged unless the ' facility is needed to serve existing development, is at the most efficient and economic location, and is consistent with the capabilities of the land ' the the County. and planned growth of ' 3. Future development shall depend on the availability of adequate 1G:il services in close proximity to the proposed site. Higher densities may permit the ' construction of more adequate services than might otherwise be true. Cluster and planned development shall be encouraged. ' 4. The County shall prepare a Capital Improvements Plan which considers the VOL 32 FADE 85'7 costs and benefits of construction at various sites. Sites which are less expensive in the long -run shall be given priority to less efficient sites. ' 5. Deschutes County shall encourage the formation of special service districts to serve rural needs rather than becoming involved with serving those needs. t The County will foster coordination and mutual planning between the county, special districts, utility companies arra service corporations. This ' shall include commn trenching where appropriate. ' 6. Deschutes County shall coordinate with the cities and other service pro- viders in urban areas to assure that all urban services are provided in ' an equitable manner and construction phased,based upon: the time required to provide the service; the reliability of the service; the financial cost ' and the levels of service needed. All services shall be provided consistent ' with the provision of all other required services. 7. Because of the increasing cost of development which must be borne by local ' residents ,the County shall investigate various iriethods to control or ob- tain funds for providing new public service levels. This investigation ' is to include review of a Systems Development Charge. ' Utilities 8. Utility companies shall be offered an opportunity to comment on their ability to serve proposed developments. 9. New development shall not be located so as to overload existing or planned , facilities, and developers or purchasers should be made aware of potentially inadequate power facilities in rural areas. , 10. 6iere feasible all utility lines and facilities shall be located on or ad- jacent to existing public or private rights--of-way so as to avoid dividing existing farm units, and transmission lines should be located within exist- t ing corridors as much as possible. il. Power generation sites shall be landscaped and the site plan reviewed 1 ,y VOL 32 Pace 858 as part of the conditional use applications. 12. Electrical substations shall be a permitted use in all appropriate zones with final approval based upon County Planning Department acceptance of a detailed site plan. Minimum lot sizes shall not apply to substations, but adequate area for equipment, storage, buffer and potential expansion shall ' be required. ' appropriate locations. 17. The capability for County land to be annexed into a city shall depend upon ' the availability of adequate services, such as water. 18. Metering of existing and future -.rater systems shall be fostered. ' Solid taste ' 19. Existing solid waste sites should be protected and either expansion areas or new sites found.The Solid haste Management Plan shall serve as the major document for site dete=d-nations. .20. In order to discourage open burning and to encourage recycling the - Iia- 13. All new development shall be consistent with adopted sewerage plans, and in new community systems urban areas shall be designed to fit into the mun- icipal system. Also, in urban areas, where connection to a sewer system is not appropriate now but will be required in the future dry sewer lines ' may be required for future use (this does not apply in large lot subdivisions where no future sewers are anticipated). ' 14. Mutual between the Ca.:nty the agreements and cities shall assure sewer ' and water systems are extended in a planned manner. 15. Sewage treatment plants offer both problems and opportunities. To decrease ' the impact of noise and odor a large buffer area shall be required. The treated sewage (both septic tank sludge and municipal waste) should be used ' as a resource and drill hole disposal discouraged. 16. Well -marked recreational vehicle dump stations are needed locally and the County shall encourage such facilities in parks, service stations and other ' appropriate locations. 17. The capability for County land to be annexed into a city shall depend upon ' the availability of adequate services, such as water. 18. Metering of existing and future -.rater systems shall be fostered. ' Solid taste ' 19. Existing solid waste sites should be protected and either expansion areas or new sites found.The Solid haste Management Plan shall serve as the major document for site dete=d-nations. .20. In order to discourage open burning and to encourage recycling the - Iia- VOL 92 FAGF 859 the County shall continue to offer a no cost dump service and to consolidate dumping. I Law Enforcement 21. Because of the difficulty in providing countywide sheriff's patrol all future development shall be reviewed for the adequacy of police protection. 22. The County will seek to improve rural police protection, including the develognent of sheriff's substations, where feasible. ' Schools 23. In light of existing problems with providing school facilities all new devei ognent shall be reviewed for its impact on the schools. Substantial expansion of school bus routes shall be discouraged, and the County ' shall require the dedication of adequate land for new schools required '- to meet the needs generated by major new developments. In addition, the County shall consider designating appropriate County lands for school t sites. 24. Plans for schools shall consider the policies within the Oregon State Standards: Minimum Enrollment Site (acres) Ele-nent._ary Schools 550 10 Intermediate Schools 800 20 Senior High Schools 1300 30 25. School districts shall cooperate with other affected agencies for efficient construction of recreation facilities (i.e. bike paths) and other public , facilities. 26. School district boundaries should be regularly reviewed to best serve County residents. Fire 27. Land for a fire station shall be dedicated in large developments. ' 28. The minimum diameter for water distribution mains on which fire hydrants -1I a- ' into the area of location. Health ' 33. Assured health care for Deschutes County residents is an important public and private service. The County shall encourage and support public ' health programs for low-income=analies and regular school health pro- grams, as well as services like Home Health Care, and services to the elderly, disabled, blind and juveniles such as day care and foster hares. ' County support may be in the forn of allocations from the County budget, political support, appropriate zoning or other useful action. 34. Adequate hospital and medical facilities shall be encouraged and County ' plans will consider the effect of incompatible land uses, noise, pollutants, as well as transportation and other factors, on these services. c �y�+ VOL DACE iJ C7 c) 'inches. are located shall be six 29. Hydrants spacing should not exceed 1000 feet width with mi.ninm fire flow of 500 gallons per minute on subdivisions or developruents with a ' population density of 2 or less single family units per acre.on subdivi- sions or developments where population density exceeds two single family dwellings per acre, hydrant spacing should not exceed 500 feet witha minimum fire flow of 750 gallons per minute. Where structural considerations warrant, additional requirements should be considered. Urbanizing area ' standards shall be those of the incorporated city. In rural fire protection districts final determination of standards will be made after discussion ' 30. with the R.F.P.D. Water source or storage shall have a capacity to support the required fire flow for a period of two hours in addition to maxis mi daily flow ' requirements for other consLL-mer uses. Refer to "Water Supply Systems for Rural Fire Protection, " NFPA Pamphlet #1231, 1975. 31. Fire protection and law enforcement agencies should strictly enforce solid waste disposal ordinances. ' 32. Fire stations should be built in an architectural style that will blend ' into the area of location. Health ' 33. Assured health care for Deschutes County residents is an important public and private service. The County shall encourage and support public ' health programs for low-income=analies and regular school health pro- grams, as well as services like Home Health Care, and services to the elderly, disabled, blind and juveniles such as day care and foster hares. ' County support may be in the forn of allocations from the County budget, political support, appropriate zoning or other useful action. 34. Adequate hospital and medical facilities shall be encouraged and County ' plans will consider the effect of incompatible land uses, noise, pollutants, as well as transportation and other factors, on these services. VOL 32 FACE 861 35. Provision for adequate cemetary sites shall be made, and alternative design, which conserve lands shall be encouraged. Other 36. Adequate access to good public library service is important to many residents of Deschutes County and actions to assure such access shall be fostered. , 37. Any major irrigation waterway within loo feet of a proposed development IshaS be placed in a pipe at the developer's cost, to protect young children from the hazard, subject to engineering feasibility,and approval by the irrl gation district. 11 I I n -116- 11 11 fl 0 C i RECREATION r 'lO1 fl Recreation holds a prominent position in the minds of the people of Deschutes County. Not only because tourist -recreation contributed $68 million to the County's economy in 1977, but also because to so many of the people who were born locally and even more so for those who have moved here, it is the recreational opportunities that make the quality of life in the county so high. As the population continues to grov7 so will the demand for recreational facilities and services. Without proper protection of our recreational resources and planning to acarranodate more people,local citizens could lose not only livibility but tourist dollars as well. Often in the past, duplication or conflicting develop-nents by governmental agencies and private groups have resulted in fragmentation and inefficiency in the recreational system. With ever-growing funding problems, it is be- coming increasingly important that a well-defined and coordinated recreation system be developed. This plan is not meant to be that detailed plan, but it is meant to serve as an analysis of local needs and to set into motion activities aimed at fulfilling those needs and protecting those resources which will be required. Urban and urbanizing areas are particularly in need of parks. Often by planning ahead, better parks may be obtained for considerably less cost than that which would have been required othenaise. Also, it is often possible to combine parks with other public facilities, such as schools and fire stations, which permits even greater savings in land, personnel and maintenance. To provide a common basis of understanding the following park definitions were developed for use by the Recreation CAC: Both state parks (most state parks in the County need some form of re- habilitation) and federal recreation areas are receiving much more use frau both the local population and tourists. Particular concern has been ex- pressed over: 1. wilderness Areas, where popular lakes and trails are be- ginning to show the effects of heavy use; 2. Campgrounds arra Picnic Areas, ' where facilities are inadequate for present demands; 3.Fishing Areas, because access to more remote locations is being requested; 4. Skiing Facilities, I where demand of such uses as restrooms and warming facilities is exceeding present capacities; and 5. Off -Road Vehicle Activity, because desires to expand present roads or play areas conflict with solitude -dependent recrea- tion and. wildlife. Other often identified needs are bicycle/pedestrian/equestrian trails and pl recreation activities (including educational programs). Coordination between public and private facilities would result in more recreational opportunities ' for everyone , and because tourism is so important locally, a better em- ployment and income environment. , Recreational needs in rural areas are often different than urban areas. While the urbanizing areas require more athletic and pool facilities, the rural areas need more Natural Areas and Research Natural Areas (selected by well-defined scientific criteria) to maintain and improve our -1r8- 1.1 VOL 32 PACE 863 Park Passive Areas = 1 - 3 Acres Neighborhood Parks - 1 - 5 Acres Camrunity Parks = 5 - 25 Acres ' Regional Parks _ 25 + Acres Both state parks (most state parks in the County need some form of re- habilitation) and federal recreation areas are receiving much more use frau both the local population and tourists. Particular concern has been ex- pressed over: 1. wilderness Areas, where popular lakes and trails are be- ginning to show the effects of heavy use; 2. Campgrounds arra Picnic Areas, ' where facilities are inadequate for present demands; 3.Fishing Areas, because access to more remote locations is being requested; 4. Skiing Facilities, I where demand of such uses as restrooms and warming facilities is exceeding present capacities; and 5. Off -Road Vehicle Activity, because desires to expand present roads or play areas conflict with solitude -dependent recrea- tion and. wildlife. Other often identified needs are bicycle/pedestrian/equestrian trails and pl recreation activities (including educational programs). Coordination between public and private facilities would result in more recreational opportunities ' for everyone , and because tourism is so important locally, a better em- ployment and income environment. , Recreational needs in rural areas are often different than urban areas. While the urbanizing areas require more athletic and pool facilities, the rural areas need more Natural Areas and Research Natural Areas (selected by well-defined scientific criteria) to maintain and improve our -1r8- 1.1 VOL 3 Fa, knowledge of the environment, one type of recreation which deserves special recognition is the winter sports activities of the area. Known for its good skiing, Deschutes tCounty attracts many thousands of visitors each winter. Facilities for these people are rapidly becoming inadequate and new areas and services can be anticipated in the future. Presently, the County is not involved with providing recreation facilities.. ' No change in that situation is anticipated, however, the County's help in obtaining land dedications for parks, in regulating off-road vehicles ' (such as have caused considerable damage vtihen used inappropriately east of Horse Ridge), and in other ways, could assist existing recreation pro- viders meet the anticipated needs. Because of the preceding, findings the following goals have been established: SIS: 1. To satisfy the recreational needs of the residents of and visitors to ' Deschutes County. 2. To maximize utilization of economic and personnel resources through in- ' creasing inter -governmental and public/pri-ate cooperation in the provi- sion of recreation facilities arir-I services. 3. To provide, concomitant with growth, sur"icient uniformly distributed land and facilities for park purposes t'nraaghout the County. POLICIES: Coordination VOL 32 FADE 865 1. Developmental cooperation and coordination should be raxmized. On significant projects, the. originating agency should ocaumnicate in the spirit of cooperation with other agencies regarding planning, acquisi- tion, development, and operation of programs and facilities. The private sector should be included to the greatest extent possible and should, whenever possible, be responsible for the acquisition, development, operation, and maintenance of recreational facilities. 2. Rehabilitation, facility improvement or expansion and recreational programs for the state and federal agencies shall be encouraged. A County Recreation Ccmnittee with both private and public representa-. tion should be the coordinator of such activities. Input frau groups with special needs should be encouraged so as to develop appropriate programs, with tolerable impact to resources and surrounding residents and wildlife. 3. In order to obtain greater efficiency in providing services, local input to state and federal agencies on land management policies should em- phasize appropriate multi -use utilization. 4. The Oregon State Parks Systems Plan shall serve as the State Parks guide for improvements locally, and act as the basis for coordination and co- operation between State Parks arra local recreation agencies. 5. The County shoul&prepare a detailed analysis of recreational needs and adopt a plan for the County and urban areas. she plan shall include recommendations for trails and facilities for all types of recreational i I N VOL 32 P activities locally, including hiking, biking, off-road vehicles, skiing, dog sleds, camping and picnicing. A special County Committee should be established which includes representatives from public and private 1 agencies as well as local clubs such as the 4 Wheel Drive Club. Costs should be included in the study analysis. 6. The County shall work with private and public agencies to develop a plan to provide needed warming, restroom arra: parking facilities for existing 1 winter sports areas, as well as encouraging the designation of additional area. The plan should seek to combine cross-country skiing and snow play areas, while separating these uses frau snow-mabiling areas. Private and public provision for additional daarnill skiing areas compatible with the enviro-meat shoald be sought and adequate transportation to ski areas, utilizing methods other than automobiles, should be developed. 7. The County shall assist state and federal efforts to protect Oregon Natural Areas and the U.S.F.S. Research and Experimental Areas. 1 Facilities 8. The following guidelines for assessing the adequacy of available parks shall be established: Park Passive Areas and Neighborhood Parks = 2.5 acres per 1000 population ' Cor,munity Parks = 2.5 acres per 1000 population Regional Parks = 5.0 acres per 1000 population 9. The County shall require the dedication of land or fees for park purposes, ' consistent with the preceding standards, as a condition of subdivision — ia,- VOL 32 PAGE 867 approval. Developments with private recreation areas may be credited against any dedication requirements, if public park standards are met (including facilities under control of a legally established homeowners association). 10. The most critical need for new parks occurs in urbanizing areas. Ac- quisition and development of urban recreational areas consistent with ccnnunity growth shall be the responsibility of the local park districts and cities. However, the County shall cooperate with recreation -providers in; establishing zoning to protect existing parks from incompatible ad- , jacent uses; setting aside or acxtuiring suitable public land for park purposes; and encouraging annexation into a park district of lands added to an urban growth boundary. ll.Park districts and the cities, where no park district exists, shall 1 seek to acquire centrally located park areas, especially in high density neighborhoods. Joint use of the land for park use and such facilities as ' schools or fire stations shall be encouraged. , 12. Flexibility in park location shall be encouraged to the extent that lands 1 otherwise unsuitable for intensive use may be utilized for recreation. Lands along canals, streams and rivers are examples of areas where pre- cautions must be taken to protect water quality, riparian habitat and sports fishing isolation, but where such recreation uses as trails may be very 1 beneficial. Close coordination with irrigation districts and other public agencies would certainly be required. 1 ►22- 1 r. J n 1 t VOL 32 €AcF 888 13. While some flexibility is required, once a park plan has been prepared and adopted by local regulatory agencies, it shall remain as the control- ling document for guiding development of that park. 14. Depending on the determination of each community, the County shall sup- port local efforts for a public pool for each County incorporated ccarmnity. 15. Unincorporated communities shall be encouraged to assess their recreational needs and to identify lands required to serve those needs. The County shall encourage civic organizations and public agencies attempting to meet those identified needs. lo. Trails and pathways are expected to become increasingly important as local growth continues and gasoline increases in price. Efforts to incor- porate bike and multi-purpose paths between schools, residential areas, parks and shopping areas, should be encouraged county -wide. Existing trails should be reconstructed as necessary to prevent damage and to facilitate use and maintenance. 17. Because gasoline supply is a graving issue, the use of mass transit, carpooling, trails and other alternative transportation methods shall be encouraged to serve and foster recreation use. 18. The State Parks Department shall be encouraged to include trailer dumps and sanitary facilities in their development of the Juniper Waysides be- tween Bend and Redmond. 19. Public outdoor recreation facilities such as outdoor theaters are needed to accuin-odate gatherings and other uses in each of the County's major VOL 32 PALE 869 population centers. L 20. To facilitate learning about and experiencing outdoor activities an out- door education camp is needed, and a sportsman's park (rifle, archery, off-road vehicles, etc.)., shall be designated near Bend. 21. The proposed Oregon High Desert Museum is an example of the type of outdoor education project that the County shall encourage. 22, other specific needs to be met by public and private recreation providers that have been identified are: A. Additional camping and/or picnic sites at Sparks, Elk, Lava and Cultus lakes, as well as at Crane Prairie and Wickiup Reservoirs; B. A group camping area at LaPine State Park; C. A hiker's camp at Tumalo State Park; D. More water sport opportunities; ' E. Additional wilderness areas (as demand warrants and consistent with the local -Le -y fragile eco. and protection of areas); F. maintenance of existing, and identification of additional, off-road vehicle areas. 23. The County shall enact off-road vehicle standards similar to the Bureau - Land Management. j of s rVOL 32 WE 871 EldFW Deschutes County is presently an importer of energy. After 1983 the Bonne- ville Power Administration will no longer assure 100 percent distribution of electrical power. As with the rest of the nation Deschutes County can anticipate increasingly expensive, and possibly even shortages of, gasoline. Therefore, it is likely that the County will face serious problems in the near future unless precautions are taken in time. Hydropower generation in the County is limited to two sites, which are operating at capacity. There is another potential site at Wickiup Darn. There is a possibility for fossil fiel development in the eastern portion of the County, but it is presently unfeasible. Local natural gas supplies could increase in the mid -1980's with the construction of a second natural gas pipeline through Central Oregon. There also exists a possibility for a third gas line in the future. There is presently some geothermal investigation occurring in the County near Newberry Crater and also near the Three Sisters Mountains. Environ- mental impact statements to permit appropriate exploration in the Cascades have already been prepared. Problems with objectionable smells from released gases.,.. possible groundwater contamination, earth subsidence or quakes are all hazards to be considered in geothermal energy use. Loss of recreational lands and esthetic qualities are also possibilities. It appears Deschutes County would have few, if any, appropriate sites for coal or natural gas thermal generation plants, according to the State-wide Siting Task Force Report. -- 125- ` VOL 32 PAGE 871 The County does have sane possibility for other types of energy production. Win generation may be feasible if it can be tied to the existing power grid. Waste wood burning is popular and feasible and one local manufacturer has constructed a 9000 MI facility,while another will save 6.9 million cubic feet of natural gas each year using waste good. County Pollution Control Eondscan bI used to finance conversion frau fossil fuels to wood waste because it reduces a major solid waste problem, as well as reducing energy costs to local industries and the outflow of local money for imported energy. ' Energy conservation is another important resource that can reduce pollution, free existing energy resources for other uses and reduce the outflow of money for energy. Education is probably the most obvious way to promote conserva- tion. Coordination through the Extension Service and by establishing a paid coordinator could do much to encourage conservation. Another way to obtain conservation is by regulation, such as by establishing higher building and subdivision standards. Sometimes education and regulation can be combined , to require thermal ratings for new buildings so people can determine more ef- ficient lay -outs, or by requiring the heat loss analyses performed by utility companies to be kept on file for public review. Recycling is also an energy saver. For example, aluminum when reclaimed takes only four percent of the energy required to process raw ore, including handling and transportation costs. Recycled. copper requires only 11 percent of the ' energy needed to obtain the metal from raw ores. Some recycling already exists locally but much more is possible. Solar energy is a real possibility for Deschutes County. Proper siting of IxG 1 1 VOL 32 FAGE 872 housing with a solar orientation can permit critical sunlight access. Passive solar methods, such as proper window placement and seasonal shading, can have significant impact. Presently, a property owner with passive or active solar units can be thwarted by construction on adjacent property. Certainly one of the biggest energy issues to face Deschutes County is transportation. State-wide transportation consumes 36 percent of total state-wide energy use, and it constitutes 56 percent of an average household's energy use. As a rural area Deschutes County is heavily dependent on auto- mobiles and thereby consumes considerable gasoline. Efforts to reduce motor- ized vehicles would be difficslt but the effect would be lower energy use, pollution levels and expenses. Just the reduction of road con- struction and maintenance (resealing, snowplowing , etc.) would save considerable energy. In light of local conditions and trends the following _goals were chosen: ' GOALS: 1. To protect local natural energy sources. 2. To managed land uses to maximize the conservation of all forms of energy. s. To assist, as appropriate, in the provision for adequate local energy supplies. POLICIES: General 1. The County shall review and promote the development and use of local alternative. energy sources in order to prepare for future shortages and to reduce the outflow of local dollars to buy energy. VOL 32 FACE 873 2. Coordinated planning between local energy providers, particularly electrical, and the County Planning Department shall be sought. This planning is to be directed at determining energy needs in all t parts of the County and assisting in the provision of adequate supplies and capital facilities. ' 3. Construction of large thermal or nuclear plants locally should be discouraged unless approved by a public vote. Alternative Energy Sources 4. Geothermal uses which comply with state and federal pollution and safety standards, as well as state planning goals, are desirable to reduce the County's net energy importation and shall be encouraged by permitting geothermal wells, resulting structures and transmission facilities as conditional uses in agricultural and forest zones. 5. Because the is wind a non-polluting, renewable energy source, major wind devices and associated facilities shall be conditional uses in ' agricultural, forest and other rural zones. Also, small scale (less than 20 KG7) private use of wind generators or pumps shall be en- ' couraged. 6. Given the availability and usefulness of waste and slash wood the County shall maintain a waste wood dump for processors where the , material shall be made available to the public, and shall encourage U.S. Forest Service projects which make slash wood available. ' 7. Because it is renewable and in plentiful supply locally the County shall encourage the use of solar energy by: ' A. promoting the construction of housing with its -long axis in the East- West direction and having solar access three hours before and after solar noon (variances because of topography, rock outcroppings or 1 F vae 132 Pw 874 alternative solar access means may be permitted); ' B. providing avenues for establishing solar property rights (see ORS 215.110) by such methods as a solar sky space protective covenents in new devel- opments and creating standard methodology for adjacent properties to establish solar sky space easements; and C. allowing for future centralized solar generation of electricity in the ' large vacant areas in the eastern portions of the County (particularly on BIM lands) . ' Recycling 8. Because recycling is an effective .method for energy saving the County shall adopt by January 1, 1981 a recycling program which. A. provides specific recycling goals for 1985 and 1990; B. Identifies projects and methods to ac-deve the specified goals; and ' C. requires an annual review of program status. 9. The County shall consider the designation of a County enployee as Recycling Coordinator who is responsible for: ' A. encouraging recycling throughout the County; B. fostering communications about recycling among local governmental ' agencies, organizations and the public; and C. providing assistance to the County Solid Waste Advisory Canmdttee in considering and implementing ways to increase local recycling activities. ' 10. The County shall also consider recycling when enacting ordinances, issuing contracts and franchises and when purchasing supplies. 11. The County shall study the possibility of initiating pilot projects regarding source separation of recyclables and their collection in existing or new garbage franchises. vol. 32 FACE 875 12. The County shall seek funds to provide staff assistance and resources for ' developing recycling drop-off and storage centers in the Berra, Redmond, Sisters and LaPine areas. t Conservation ' 13. All homes constructed in Deschutes County shall meet state insulation ' standards. The County shall consider more stringent standards (both prescriptive and equivalent performance criteria) and encourage innovative ' building design which meets the intent of the prescriptive standards. 14. To assist the public in understanding energy conservation in their homes the County will rate the "thermal effectiveness" of new or existing dwel- ! lings, if an owner requests, based on such factors as window placement, shading, insulation values and thermal mass, and other factors similar to the City of Davis, California, Community Development Department Standards. 15. Because :-multi-family housing and other types of common-wall construction is more energy efficient the County shall encourage such developrent ! in urban areas. 16. Since "leapfrog" and scattered development is wasteful of energy in ! the provision of services (school buses, fire protection, utilities and transportation) these patterns shall not be permitted (see Rural ' Development and Urbanization chapters), and future development should ! occur in higher densities along existing corridors in urban areas. At the time of subdivision review, the County shall see that: ' 17. Covenants which prevent energy conservation, such as roof line requirements precluding solar panels, bans on clotheslines and prohibitions on ! street motorcycles, shall not be established in proposed developments. 18. The County shall consider setting aside monies which might otherwise be usi for expanding motorized traffic ways and apply them toward a non-motorizel _t3Q_ VOL 32 WE S transportation system which accesses educational, recreational, employment and shopping areas as well as connects to new development. 19. As much as possible non -motorized systems should be favored over motorized transportation systems. 20. New major consumers of energy, such as ccmTerce and industry, shall be located whenever possible near established energy distribution centers. 21. The County should set an example by weatherizing its buildings and con- sidering passive or active solar heat, perhaps with assistance frau retrofit grants. 22. To promote public awareness of the reasons and need for energy con- servation the County shall develop an educational program for use county -wide. NATURAL HAZARDS( 32 Natural hazard areas may be defined as areas subject to natural events , that are known to result in.death or to endanger works of man, such a� stream flooding, wildfire, ground water, erosion and deposition, land- ' slides, earthquakes, weak foundation soils and other hazards unique to local or regional areas. Deschutes County is fortunate to have only a few areas of geologic or topographic hazards. The major fault which runs through the County (Brothers Fault) is believed by state geologists to be stable., Landslides are scarce and seem to be largely located in the national forest, although some potential exists in the Hampton Butte area ' should development occur there. Rockfalls have been noted in rimrock areas but this again is rare. Some potential for flash flooding exist near Millican and Brothers, however, little conflicting development ' is anticipated in those areas. The two most likely hazards in the County are stream flooding and wildfire. Floods have done signifi- cant damage along the Little Deschutes River and Squaw Creek and I the Deschutes and Dry Rivers also have similar potential. Undoubtedly, the most obvious natural hazard is wildfire. Each year, several fires , occur locally. Some are nature -caused (lightning) but many are man - caused. The subdivisions scattered throughout the timbered areas, ' particularly in the Lodgepole Pine area, increase not only the risk of people being hurt or killed but also increase the likelihood of a fire. Inadequate access, inappropriate building materials, insuf- ficient fire -fighting equipment and personnel, a naturally dry cli- mate all point to wildfire being a serious threat to residents of , Deschutes County. Probably, the least understood natural hazard , is drought. Central Oregon is a semi -arid climate subject to many years without adequate precipitation. Planning which does not -1,32- 32 rAcEns VDL ' consider the effects of these dry years could create serious problems. Further discussion of water occurs in the Water Resources Chapter of the Plan. iThe states goal is seen as appropriate for this area: ' GOAL: To protect life and property from natural disasters and hazards. In order to accommodate the new population anticipated for Deschutes County in a safe and beneficial manner, a number of policies have been prepared for implementation. POLICIES Review ' 1. Provision shall be made in County land use regulations to assure proposed developments will receive a review of potential natural ' hazards (stream flooding, flash flooding, landslides, wildfire, etc.), and that sufficient authority exists to modify or deny ' applications where such hazards exist. Flooding 2. Establish flood plain zoning to prohibit construction which: would interfere with the passage of floodwaters or endanger the lives ' or property of individuals or the public generally. The flood ' plain area shall be the 100 year floodplain, as identified in HUD Flood Hazard Area studies or Corps of Engineer flood plain ' studies. 3. Review all proposed subdivision and partitions, as well as other VOL 32 PACE 879 proposed developments, to assure that no construction or other change will occur in existing drainage ways without proper consid- er ation onsid-eration of the probably results to assure public safety. Drought 4. Plans (public and private) shall consider and reflect the effects of drought on the proposed projects. Fire ' 5. Design public use areas, such as parks, recreation sites and pic- nic areas, so that fires starting in them cannot escape to devel- ' opment or to surrounding wildland. 6. In timber, rangeland or other appropriate areas subdivisions and , other types of development should plan for fire truck access to within 16 feet of lakes, ponds, streams or other water sources. , 7. For easy resident evacuation and ready access for fire and emer- I gency equipment all new subdivision or other major land develop- ' ment shall provide at least two different ingress -egress routes. 8. To accommodate heavy firefighting equipment, cul-de-sacs shall be limited .to 600 feet in length and terminated by a paved turnaround ' not less than 33 feet in diameter, unless another equally protective ' alternative is provided which is acceptable to the County and fire -fighting agencies responsible for fire control in that area. -134- VOL M PAGE MU 9. Bridges shall be constructed to meet the requirements of the ap- propriate fire district,,as to width and weight standards, so as ' to assure access for heavy firefighting equipment. 10.All existing-roaas shall be maintained by either the appropriate ' public or private agency or by the development residents unless an adequate alternative route is provided, so as to not deny access ' beyond the subdivision for firefighting equipment. ' 11. To avoid delays in responding to fire calls all roads, streets ' and buildings shall be designated by name or number clearly visible from the main travel roadway, before occupants move in. This will ' include the installation of street and road signs of durable and permanent materials at all intersections in the subdivision. 12. The Uniform Building Code provides adequate fire protection ' for residential construction but the County should adopt the Uni- form Fire Code to assure adequate fire protection for commercial and industrial construction, and support establishment of fire protection facilities in accordance with recommendations of the National Board of the Fire Underwriters in appropriate areas. ' 13. When subdivision or developments are created in the County, a minimum width for a fuel break, as determined by the local fire ' authority, shall be required by the County to be constructed and maintained around all 'buildings or structures, so as to reduce structural exposure to flames and radiant heat. t 3G- VOL 32 FAE 881 14. During preliminary subdivision review, the planning staff in coordination with the fire district and/or other firefighting agen- cies, shall indicate whether or not the development plan has ade= , quately provided for fire protection. Annexation to or contract wit a fire district or creation of a new fire district orP rivate firefighting agency may be required conditions for development approval. Additional standards for firefighting facilities can be found in the ' Public Facilities and Services Chapter. t 3G- VOL 32 FACE 882 RE S OURC E MANAGEMENT Agriculture Forest Lands Open Spaces Surface Mining Fish & Wildlife Historic & Cultural Water AGRICULTURAL LANDS 1 VOL 3210ACE883 Agriculture played an important role in the growth and developnpnt of Deschutes County. While agriculture continues to be important, its early dominance of the economy is gone. Production has remained relatively stable (see Oregon Extension Service crop and livestock reports) but the total in- come from agricultural products has been declining in recent years. The State of Oregon, like many other states, has identified the protection of agricultural land as an important objective. For that reason state Land Use Planning Goal 3 is of major importance. In Deschutes County, where some land has severe limitations for the commercial production of agricultural products, this has resulted in considerable debate and occassional hostility. The County has found itself between angry landowners who do not wish to pro- tect what they see as marginal agricultural land, other County residents who are adamant that agricultural land is a nonrenewable resource that must be preserved and a state law mandating specific actions that must be taken to protect the land defined as agricultural land. The issue is further compli- cated by a lack of detailed soils data for most of the county. 7 I I The proximity to the Cascades, higher altitudes and semi -arid climate have resulted in a short growing season and a need for irrigation water locally. ' Without irrigation, little soil may be classified better than SCS Agricultural Capability Class VI. Conbined with a shallow rooting zone in some areas and a long distance to many of the markets for local produce, the result is an often discouraging and frustrating experience for many farmers; although some farmers do seen to manage to be successful. I Another problem is the growing demand for farmland by many people seeking a rural home, The result has been an increase in land prices which often makes 11 J 7 J LI 32 PAGE 884 it difficult for people to enter into or stay in full-time farming . On the other hand, smaller part-time operations appear to be somewhat successful in maintaining some agricultural production due to a heavy commitment of nonfarm income. Smaller farms have also resulted in smaller losses, in some areas,since a $100/acre loss is more easily born by a 10 acre owner than a 100 acre owner. The possibility of additional farm land in the County appears to be small, except for the development of wells (as in Lower Bridge and Cloverdale) or if the lining of irrigation canals should become more economically feasible,. because no additional adjudicated water may be expected from the Deschutes River. Havever, the grazing of livestock is, and will likely continue to be, an im- portant farm product in all portions of the County. And, much of the crop land production locally is tied to the production of hay for local and Wil- la.—tte valley livestock. Particularly in the area of ad east of Horse Ridge livestock production is a highly viable agricultural endeavor. Much of Deschutes County's future agricultural production may be associated with the great, diversity of livestock presently crown in the County. Certainly agriculture is an important econcrLiic element in the County, directly contributing an estimated $10,316,000.00 in 1978, which resulted in a $25,800,000.00 direct and indirect contribution to the local economy. Also important are such secondary benefits as the open space and scenic appearance agriculture lends to County. Benefits ,-;hich may also pay economic returns in the form of tourist dollars. 139- VOL 32 FACE 885 Because of the controversial nature of agricultural land protection and the , marginal character of same farm land a certain amount of flexibility in.zon- Ing regulations and programs designed to foster local family farms may be required. The use of incentives, rather than negative regulations, may in the long -run be more effective in preserving agricultural lands. ' Since detailed soils mapping exists for only a portion of the County, it was necessary to develop a more elaborate definition than that found in the state goal. The definition finally agreed to by the County uses the available information on agricultural land and lays a foundation for future additions or deletions as better soils information bec roes available. I I Acrricultural Lands Defnintion ' Agricultural lands are those lands which are identified as possessing soil ' Conservation Service Agricultural Capability Class I -VI soils "I or, where detailed soils information is not available, agricultural land shall be identified by , showing that it has been listed as on Farm Tax Deferral within the five years preceding the adoption of this plan (as indicated on the -Existing Land_ Use ' Map compiled from County Assessor's records) and/or by the fact that the land ' is indicated on the County Planning Department's Irrigated Lands Map. Having a definition was only the first step, as then it was necessary to dif- ferentiate between the various types of agriculture to be found locally and to identify the various areas they characterized. The following types of agriculture and their characteristic areas were identified by members of the planning staff, the Agricultural CAC and the Overall CAC. Types of Agricultural Land: *S.C.S. Land Capabilities Classification Map -14a - I I I L r 7 J VOL 32 PACE 886 A. High desert sagebrush and juniper land: This is dry land with generally inferior soils (somewhat alkaline in places) with rather severe climatic conditions. It is suitable only for grazing of livestock and an occasional planting of dryland rye. Predominant farm ownership size, outside rural service centers, is several hundred to several thousand acres. There are few non-agricultural dwellings. Lands in the vicinity of and east of Horse Ridge are characteristic of this agri- cultural type. B. Riparian Meadows: These meadows (mostly natural) border waterways and are sub- surface irrigated. In spite of a rather severe climate they are suited for the grazing of livestock and the harvesting of a limited tonnage of meadow hay. Lot sizes vary. Due to the groundwater and frequent flooding, there are few residences. Typi- cal lands are along the Upper Deschutes River and the Little Deschutes River. C. Irrigated Comercial Crop Land: This land because of more favorable soil characteristics, cli- mate and topography is suitable for raising diversified row crops, grain, etc. , with a yield sufficiently high to make farm operation generally self-sustaining and profitable. ownerships are occasionally large. The pattern is a mixture of larger . and smaller. Few non-farm dwellings exist in this area. Portions of Lower Bridge are characteristic of this description. - 1+1- APP E. F. VOL 32 FAGS 887 Irrigated Marginally Commercial Land: ' This type of land, because of less favorable soil and climatic conditions,is not able' to raise as wide a variety of crops as ' Type C above, nor is the potential yield as high. However, it ' can produce occasional row crops, grain, hay and pasture, as well as livestock, on a generally self-sustaining basis, al- ' though somewhat marginal at times. A mixture of lot sizes can be found throughout these areas and while there are sane large ' farm ownerships the predaninant ownership and tax lot size is 20 to ' 40 acres. Lands around Alfalfa , Cloverdale, Terrebonne and - Tm-alo are characteristic of this agricultural type. ' Dry Rangelands This land has little water and is without irrigation. Suited ' only for livestock production presently, it often lies in areas ' where the introduction of irrigation water would make marginal crop production possible, and therefore is a resource for the , future. Predominant ownership and tax lot size appears to be 20 to 40 acres. Lands characteristic of the type are found near Cline , Falls. ' Marginal farm land -Undeveloped: This land will support agricultural production only if subsidized , to some extent. The lands are suitable for hay and pasture and more particularly, the raising of livestock, particularly if access ' to public grazing land is available.- Ownership sizes cover a broad range but the most frequently occurring tax lot sizes are 20 t�4 acres. These areas are particularly susceptible to increasing I non-farm development. Areas characteristic of this type of f42,- G. 11 r C VOL 32 FACE 888 land are some parts of Arnold, Sisters, Terrebonne and Tumalo. Marginal farm land - Developed: This land is much the same as Type F, but existing residential development and hobby fanning activities have reduced the pre- dominantly ownership and tax lot site to less than 20 acres. The land is suitable for raising and grazing livestock on a small scale. -Because people are able to subsidize the farm operation productivity is believed to be higher than might otherwise be the case. Lands typical of these characteristics generally lie close - in to urban areas, such as Bend, Redmond and to some extent, Tumal.o. Western Arnold, Plainview and Swalley are also typical areas. Recognizing the importance of protecting agricultural land the following was chosen to 1 -meet state requirements and local needs: GOAL: ' To preserve agricultural land in Deschutes County for the production of farm and forestry products, as well as the public need for open space. ' POLICIES: It has been the policies which have generated the greatest debate. Controversial even before the process began the identification of appropriate mechanisms to protect local agricultural lands has been characterized by heated discussion, ' polarization of attitudes and occasionally open hostility. 7 Much of the early debate focused on the Interim Agriculture Ordinance meant to protect agricultural lands until the final plan was prepared. The Agricultural CAC split into twD factions with the predcxminant group (8 of the 15) agreeing - t43- 32 FAcH 889 VOL 1 upon an ordinance calling for 40 acre minimums in Lower Bridge ' and east of Horse Ridge, while the rest of the County was 10 acres. This plan was accepted by the County but rejected by the state Land Conservation and Development Commission. LCDC then Placed an enforcement order on the County mandating all lands with Farm Tax Deferral status should be protected as agricul- ' tural land until.a final plan was prepared. In preparation of this plan the Agricultural CAC again proposed ' a 40 acre minimum for the northern and eastern portions of the County with the rest 10 acres. The Overall CAC, recognizing ICDC's reasoning and the testimony of other farmers and County ' residents, accented rust of the Agricultural CAC's reccanmendations but rejected the proposed agricultural definitions and zoning be- cause of: 1. Conflicts with other committees recommendations for rural areas (particularly energy, transportation and public facilities); ' 2. failure to adequately address rangelands and large farm owner- ships; and ' 3. conflicts between the proposal and the intent of = Goal 3. The Overall CAC, with the assistance of a mer of the Agricultural' CAC then prepared a new set of policies for definitions and zoning. ' These policies are basically those contained in this plan, although they have been modified to bring them even more into line with the ' requirements of the state Land Conservation and Development Com- mission because of revie,a by the County's Planning Commission, , Planning Staff, Board of County Commissioners and a team of con- ' sultants hired to check for such issue. t-44 - VOL 32 ?AGE 899 Zoning 1. All lands meeting the definition of agricultural lands shall be zoned Exclusive Farm Use, unless an exception to state goal 3 is obtained so that the zoning may be Multiple Use Agriculture. 2. _ _ No more than 25 percent of a given agricultural dis- trict shall be ccmposed of lands not of the same agricultural type. Any agricultural lands not zoned. EFU agriculture shall be identified in the County exceptions statement. 3. Zones and lot minl=. s shall be e�-ablished to assure the preservation of the existing agricultural character of the area. 4. In order to provide some flexibility in the zoning and to assist farmers who may need to sell an isolated unproductive piece of land in order to assure continued operation of the farm, individual isolated lots in EFU areas shall be permitted consistent with ORS 215.213. 5. So that a farmer who has lived on his land for 10 years or more may re- tire and sell his. property while retaining the use of his existing hone, a homestead exception may be permitted which allows the homesteader to retain a life -estate lease on the home and some of the surrounding land. --f451- 6. 7. 0 91 10. 1 VOL 32 PA,F 891 The lease will end with the death (s) of the homesteader and spouse. This ' exception shall not permit the creation of another residence on the prop- erty in question. Public lands meeting the criteria for EFU zoning shall be so zoned unless some other resource (i.e. forest) or public use exists on the land. Lands not meeting the agricultural lands definition but having potential fort irrigation according to the Bureau of Reclamation Special Report - Deschutes Project, Central Division, Oregon although presently without water shall recv zoning consistent with agricultural type E. , The Multiple Use Agricultural Zone shall allow planned developments, destination resorts, planned corsrlanities and cluster development as con- ditional uses where it can be sham these uses would be consistent with Except i or beneficial to the maintenance of agricultural uses in that area. Destination Resorts no overall densities in excess of the underlying minimum slat sizes will he permitted. Other Conversion of agricultural land to non-agricultural uses shall be based on the following: , A. acceptable environmental, energy, social and econimic consequences; and B. demonstrated need consistent with Land Conservation and Development Commission goals and ORS 215.213. Parcel size exceptions may be granted because of survey errors when original, section lines were established.,so that standard section divisions may be achieved (i.e. 160, 80, 40, 20, etc. acres). Man-made barriers such as ' roads or canals, /4G- 1 VOL 12 FAq over which the applicant has no control may serve as adequate justifi- cation for granting a parcel (lot) size variance. 11. Normal agricultural practices (i.e. aerial pesticide applications, ma- ' chinery dust and noise, etc.) should not be restricted by non-agricultural interests in agricultural districts. ' 12. Coordination between public and private landowners to encourage farm use shall be encouraged. And projects to increase productivity and to bring new land into agricultural production shall be fostered. 13. Control of noxious weeds through educational programs should be continued. 14. Paan and non-farm uses in rural areas shall be consistent with the conser- vation of soil and water. 15. The County Planning Department shall initiate an on-going study of mar- ' ginal fa_m. lands to develop infor:iaticn on how and when these lands should ' be converted to other uses, and to consider alternative methods for cont . pensating landowners for loss of development potential. ' 16. The County Pla:uzind Department shall seek detailed soils information for all areas of the County through cooperation with the Soil Conservation ' Service, U.S. Forest Service, Bureau of Land Management, and Mid -State ' Soil and Water Conservation District. 17. Because of the possible adverse ef"'fects of EFU zoning to local taxing districts, ' the Board of County Comissioners shall take such action a:c is necessary to mitigate undue impacts after one year of experience with EFU zoning or upon 1 sufficient and specific informat-on on the effects of the zoning. FOREST LANDS VOL 32 PA,- 893 Much of the beauty, and the employment, in Deschutes County is directly F related to its large expanse of forest 'Land. For these reasons, \ this resource is of particular importance to the County's two major industries, timber/wood products and tourism. The great majority of the timber harvested is ' j Y ponderosa and lodgepole pine from the Deschutes National Forest and other nearby public lands. ' It is anticipated that growing demand combined with a. stable or perhaps small decline in available timber supply will. result in ' growing competition for log sales. A trend which is already evi- dent. One positive aspect of such competition is an increasing amount of revenue obtained by the County as its share of the monies , received by the U.S. Forest Service. It is hoped that increasing tourism and recreation revenues will offset possible employment and income losses resulting from de- ' creasing timber production. Tourism is discussed further in the ' chapter on Economy. One growing problem is the increasing threat to local timber sup- plies created by scattered developments occurring in forested areas.' This is particularly true if the residences or activities are out- ' side destination resorts or fire districts where fire protection is available. In order to meet the state Land Conservation and Development Com- mission's om mission's requirement for an adequate inventory of forest site ' capability the County Planning Department worked with the state fog - VOL 32 PAGE 894 Department of Forestry. The resulting capabilities map may be found in the plan's resource element. Except in -the LaPine area, ' where an exceptions statement will benecessary because of the P Y ' existing development, most of the land with high (site class 4) through moderate (site class 6) capabilities lies in the Deschutes National Forest. The U.S. Forest Service has recently approved a Land Management Plan for the Deschutes National Forest and the other major federal land manager, the Bureau of Land Management, is presently eval- uating its land for a variety of public purposes which will ultimate- ly become a management plan. The decisions and actions of these 1 agencies have,and will continue to have, major effects on the eco- nomic, social and natural environment of Deschutes County. ' Because of the importance of local forest lands the following goal 'has been set: ' GOAL: To conserve forest lands for forest uses. Policies: 1. In order that a reasonable forest zoning pattern may be ' established,all forest land shall be assigned to one of three classes: ' F-1. . .Restricted Forest Land - lands needed for watershed protection, wildlife and fisheries habitat and - r4Q - 3. Other Forest Land (F-3) zones shall be established upon uncommitted land with moderate or better forest land capahilI in the LaPine Area, in order to protect and manage forest and wildlife resources. The F-3 zone shall not be used to protect , the larger commercial forest land parcels which shall be zoned F-2, but is to be used to encourage small woodlot management ' and will permit a single residence for the woodlot manager. Minimum existing parcel size for being zoned F-3 shall be 10 acres. Because 20 acres is a more reasonable woodlot size, in ' order to protect the wildlife and timber resources from too much scattered development and so as to make public facilities ' delivery more efficient (in light of existing problems), the ' — /Sd— VOL 32 PAGE 895 unusual or unique recreational opportunities (i.e., wilderness areas). F-2. . .Commercial Forest Land - lands composed of existing ' and potential forest lands which are suitable for commercial forest use. ' F-3. . . Other Forest Land - Lands where extreme conditions of ' climate, soil or topography require the maintenance of vegetative cover, irrespective of use; and forested ' lands in urban, rural and agricultural areas which provid urban buffers, wind breaks, wildlife and fisheries ' habitat, livestock habitat, scenic corridors, recreational ' use, or marqinal corirercial timber uses. 2. Restricted Forest Land (F-1) and Commercial Forest Land (F-2) shall be protected for forest uses. , 3. Other Forest Land (F-3) zones shall be established upon uncommitted land with moderate or better forest land capahilI in the LaPine Area, in order to protect and manage forest and wildlife resources. The F-3 zone shall not be used to protect , the larger commercial forest land parcels which shall be zoned F-2, but is to be used to encourage small woodlot management ' and will permit a single residence for the woodlot manager. Minimum existing parcel size for being zoned F-3 shall be 10 acres. Because 20 acres is a more reasonable woodlot size, in ' order to protect the wildlife and timber resources from too much scattered development and so as to make public facilities ' delivery more efficient (in light of existing problems), the ' — /Sd— VOL 32 PAGE 896 minimum new parcel size for F-3 areas shall be 20 acres. 4. Destination resorts shall be permitted as conditional uses in. F-2 and F-3 areas upon showing that the land where the resort is to be established has no significant commercial timber po- tential and that the resort activities are sufficiently buffereca so that they will not adversely effect timber harvesting on:ad- jacent or nearby lands. 5 Except as identified in this plan non -forest uses shall be discouraged in existing forested areas. u. Forest management in Deschutes County shall be governed by the Oregon State Forest Practices Act, so as to assure continued timber productivity. 7. Better coordination and cooperation between the U.S. Forest Ser- vice and Deschutes County shall be fostered, particularly as it relates to restrictive use of such Forest Service lands as Mt. Bachelor Ski Area and the Bend ti�,atershed. As a basis for mu- tual cooperation and coordination, the Land Management Plan for the Deschutes National Forest shall be used. 8. Deschutes County shall file for an exception to state Land Use Planning Goal 4 on such lands meeting the exceptions cri- teria. All other forest lands shall be protected for forest uses. VOL 32 PAcF897 OPEN SPACES, AREAS OF SPECIAL CONCERN, AND ENVIRONMENTAL QUALITY A major factor in the local economy basic and a reason for much of th] present population growth are the desirable scenic and natural en- vironmental qualities of the County. Seasonal and many permanent residents, as well as the many tourists, repeatedly explain that thei� reasons for coming to Deschutes County are: the natural beauty; the numerous and diverse areas of scenic, geologic, archeological and biological significance; and the high quality of the air and water. Also, many of the resource industries, such as timber and agriculture, are also dependent on, as well as contributors to, that same -environ- ment. Open spaces include not only parks, but also agricultural, forested, natural areas, mining sites and historical areas, as well as scenic waterways ana other locations of unique scenic, environmental, ' social or cultural character. Often the protection of the scenic views from roads, trails and waterways is as important as the travel ways themselves. Segments of Fall, Deschutes, Little Deschutes and Crooked Rivers in ' Deschutes County havebeen identified as potential state Scenic Water- ways. Presently, no major air quality problems exist within the County,' however, surface inversions, topographic conditions, certain act- ivities (i.e., slash and field burning), wind -carried soils and increasing population can create significant potential for air ' quality degradation unless properly managed. VOLPAGE 898 Sonte water pollution problems have been identified. The LaPine core area has been shown to have significant problems and septic Itanks havefailed in the Terrebonne area. The two major urban Iareas are presently developing sanitary sewer systems and treatment facilities. 1 The Oregon Department of Environmental Quality and Environmental Protection Agency have existing standards and programs affecting air ' and water quality as well as noise levels. DEQ presently maintains an air and water quality sampling program in Deschutes County which is important to knowledge about existing and changing conditions. Private lands suitable for open space designation are eligible for special property tax consideration (ORS 308.740-790), because they ' provide public benefits as regards maintainlig scenic environmental N p g 9 quality. ' Because open spaces, areas of special interest and environmental qual- ity are so important to the local economy, environment and social well-being of Deschutes County the following goals have been chosen: ' GOALS: 1. To conserve open spaces and areas of historic, natural or scenic resources. ' 'l. To maintain and improve the quality of the air, water and land re- sources of Desciluces County. 1 However, despite general concensus that the environmental quality and ' amenities are important to this area's people, as well as to people statewide, ts3_ VOL 32 PAI -899 there is also concern that regulations and policies to protect that environment could become too restrictive. The following policies have been developed with the intent of reaching the identified goals but in ways that restrict only as is necessary and with consideration of the individuals who may be affected by the needs of the public. ' POLICIES: 1. Because a major concern is the protection of existing scenic views and environmental quality two related policies are created. ' The first was originally proposed by several citizen committees , and although modified, has been retained. The second policy was recommended by the Planning Commission and Staff as an appropriate ' addition. A. On lands outside urban growth boundaries and rural service centers along Highways 97, 20 and 126, as well as along ' Century Drive, South Century Drive, portions of Three Creeks Lake Road, Fall River Road roads from Highway 97 to Smith Rocks, Pine Mountain Road and along all other streams and road- ways for which landscape management is prescribed on the,1990 Comprehensive Plan, a case-by-case review area shall be estab� lished. This area is not to extend more than 1/4 mile on either side from the centerline of roadways, nor more than ' 200 feet from either side of rivers, measured from the mean hign water level. ' Within the prescribed area, new structures (excluding fences, ' existing structures, or other structures less than $1000.00 in total value), .shall be subject to review by the County at , the time of application for a building or zoning permit. -154- FI 11 C� VOL 32 PACE 9� Acceptance of any such development plan will be dependent on site screening by existing natural cover and/or compatibility with scenic vistas., Outdoor advertising signs should be informational only and oversized displays discouraged. The primary purpose of this review shall be to obtain a struc- ture as compatible with the site and existing scenic vistas as is possible, rather than to establish arbitrary standards for appearance or to otherwise restrict construction of ap- propriate structures. A study will be concluded within one year of this plan's acknowledgement will result in recommendations to the County as regards the permanent size and standards for landscape management areas. This study shall also address the legal issues raised by the Fifth Amendment to the U.S. Constitution, which states, "No person shall be deprived of life, liberty or property, without just compensation". Recommendations for appropriate mechanisms to help compensate landowners severely restricted in the use of their land by the establishment of landscape management rules shall also be included in the report. A citizen's c0rMittee to help review areas and standards shall also be a part of this process. B. A setback along the rimrocks above the Deschutes and Crooked Rivers shall be established to protect scenic views from the rivers. The depth of the setback shall be determined by the area necessary to preclude view of the structure from the river. 1. Consideration should be given 7o designation of appropriate - r 55 - VOL 32 FADE 931 segments of Fall, Deschutes, Little Deschutes, and Crooked Rivers as Scenic Waterways. Reasonable protective and state agency co- , ordinative measures should be instituted. 3. Public ownership of scenic, open space and historic areas should be maintained and increased where feasible. And, a variety of ' open space and recreational sites should be maintained to protect , the existing natural diversity, and to serve the varying needs of both tourists and residents. The natural capabilities of each ' site should determine its level of use. 4. The concepts of developmental rights transfer, tax credits and ' conservation easements as ways to protect open space should be studied and encouraged at both local and state levels. ' 5. As part of subdivision or other development review the County shall consider the impact of the proposal on the air, water, sceni� and natural resources of the County. Specific criteria for such review shall be developed. Compatibility of the development with ' those resources shall be required as deemed appropriate at the time given the importance of those resources to the County while , considering the public need for the proposed development. , 6. Because management of state and federal lands effects areas under the County's jurisdiction and vice versa, better coordination of land use planning between the County, U.S. Forest Service, State ' Land Board, Bureau of Land Management and other agencies shall be ' sought. .M. ��'� C VOL 32 PACE 902 7. Zoning should be established to protect areas of special interest such as eagle nests, endangered species areas or points of geologic interest. A reference book on such areas specifying items to be protected and possible mitigating measures shall be prepared by the Planning Staff. o. Because of their slow growth and usefulness as a visual and noise ' buffer and their relationship to air quality, tree removal for utility lines, sewers, roads and other construction shall be mini- ' mized by planning for the continued maintenance of the trees in the ' in the development. All development proposals will be reviewed for this factor by the County Planning Staff before approval of the ' applicant's development. 9. Loss of riparian areas and other important open spaces because of dam construction for .recreation or other purposes, should be mini- mized. 10. Although DEQ has existing environmental standards with which the County should coordinate, in instances where such standards are inadequate or non -applicable because of local conditions, the County should establish more stringent regulations. Noise regu- lations are an example of such a program. VOL 32 FAcE 903 SURFACE MINING The mining of pumice, cinders, building stone, sand, gravel and crushed rock is an important local industry. Not only does this mining provide employment ' but it also furnishes products important to the growth of the area. While pumice and cinders have remained in good supply it has become increasingly apparent that good quality aggregate is rapidly disappearing. This is a non-renewable resource that must be protected if the cammnity is to be able to take advantage of the lower costs involved with using local materials. At the same time, there also have occurred instances -where the increasing de- mand for certain minerals or aggregate has led to mining operators to bm-e into direct conflict with adjacent property owners. As the area continues to grow, the number of times when residential or other development uses restrict t access to mining resources will undoubtedly grow, unless there is adequate planning. This is particularly true for rural development. Adequate surface mining control and reasonable assurance to mining operators of adequate resources have oftenbeen controversial issues in Deschutes County. Often surface mines have been "poor neighbors" in residential areas because of their environmental impacts and, sanetimes, delayed or incomplete reclamation. Because mining is a transient use which ends with the depletion of the resource, , it is possible to plan for second uses after the mining ends. Since Deschutes County will have a much larger population by the year 2000, it is important that the mineral and aggregate resources necessary to accommodate that growth be protected, while the County residents be protected from the adverse economic effects of too rapid utilization of the resource and the environmental problems associated with the actual mining operations. The t County's goal is: - fS�- i }_ VOL 32 PAcE 994 1 To protect and utilize appropriately the mineral and aggregate resources of IDeschutes County. Although not one of the more controversial segments of the plan,there has *been considerable discussion of surface mining in the County. The Surface Mining CAC was one of the first formed and its most active members were mining operators. They originally identified the status of existing mineral and aggregate resources and prepared a series of policies and ordinances (interim and penvanent) for.use by the County. The interim surface mining ordinance controlled mining until Ifinal adoption of the new County Zoning Ordinance. During discussion of the mining policies by the Overall CAC, Planning Commission and Board of County Com- missioners some modifications were made in order to more adequately protect the interests of adjacent property owners and residents, as well as the public need to preserve the nineral and aggregate resources. Yet, these groups also recog- nized that the miring operators needed to have assurance that the resource sites 1 would be available for mining when needed, for both the operator and public's benefit,and that the reduction of incompatible uses was to everyone's advantage. POLICIES: 1. In order that there is up-to-date information upon which to make informed de- cisions about local mineral and aggregate resources, an on-going study of the quality, location, quantity and type of mineral and aggregate resources in the County should be a responsibility of the County Planning Department. 2. Surface mining sites actively being utilized at the time of plan adoption should be zoned SM, so as to permit continued operation.*However , inactive 7 VOL 32 Fa,UF9u'5 and undeveloped sites should be designated SMR (Surface Minim Reserve), so ' that these sites will be protected for future use when the resource materials are needed. This protection must include review of developments on ad- joining land to assure compatibility. *Operating sites are those which ' extract 50 or more cubic yards of material within twelve consecutive months. 3. Changes from a Surface Mining Reserve (SMR) Zone to a Surface Mining (SM) zone shall occur upon findings by the County that: A. The site is needed for the three to five year resource requirements of the County. B. This site is in the closest proximity to the utilization area, or is otherwise the most economical available, at the time. Some withholding ' of materials by resource owners could require additional area be desig- nated. Also, more than one resource site of a kind should be avail- ' able in order that a monopoly not occur. C. The public interest is furthered by the change in the place proposed, ' at the time it is proposed. ' The operator -applicant must also obtain approval of a site and reclamation plan, including a phased use and rehabilitation schedule, for the area to be mined. The site and rehabilitation plan shall return the site to a use- ful condition and decrease visual and environmental impact of the operation to the extent reasonably possible. This plan must be approved, in writing, by the County Planning Director, after a public hearing on the proposal. In cases where the applicant is applying for both a zone change and approval of a site and reclamation plan, the hearings may be held concurrently. Un- less utilization of the site begins within two years , the approval of the von��� 9 ' site and reclamation plan shall expire. 4. In'the approval of mining operations the -site shall be first utilized for ' archeological excavation, timber harvesting or other first -use activities and other nonrenewable resource conflicts resolved (i.e., historic sites), before mining begins. 5. Once mining and/or associated activities (i.e. rock crushing), have begun ' they shall be in accordance with state standards and any more stringent stan- dards that the County may enact. Further, in areas such as F-1 Forestry, ' residential, agricultural, wildlife sensitive areas (i.e. nest sites), in- tensive recreational or other particularly sensitive areas, the mining and ' associated operations shall be subject to more restrictive standards to keep noise, dust, erosion and other hazards to a level compatible with the ad- jacent uses. Such standards may include requirements for barrier isolation, setbacks, operating times, concomitant reclamation, limits to active mining area, mining lifetime, water quality and restrictions on on-site processing. ' 6. Although mining should be considered a temporary land use (interim and second uses such as recreation should be designated in the SM zone), it is important ' that the resource sites be protected from incompatible development. To re- duce this problem timely utilization of the product shall be encouraged. ' 7. Extraction of mineral and aggregate resources by private landowners for non-commercial use shall conform to the same environmental considerations Ias carenercial operations. The intent of the regulations is to protect the surrounding area not to preclude such operations. Such use shall be a VOL 32 mup_997 a conditional use unless the deposit possesses SM zoning. 8. Mining within Wilderness and Roadless areas, watersheds, fish and wild- life habitats and recreation areas should be prohibited unless an over- whelming public need can be demonstrated and all other alternatives have been exhausted. VOL FISH AND WILDLIFE The protection of fish and wildlife resources has been an on-going controversy in Deschutes County. Both those committed to the protection of the resources and those who wish to subdivide or otherwise develop in sensitive wildlife areas have often pressed their positions,sccnetimes resulting in court action to resolve ' the conflict. It is generally recognized that failure to protect fish and wildlife resources ' will result in: loss of habitat and declining species populations due to de- velopment pressures, increased numbers of endangered species, declining tourist expenditures, loss of recreational opportunities and loss of quality of life. Already, Deschutes County has witnessed the serious degrading of the cold water ' fishery by irrigation withdrawals, loss of sensitive deer winter range lards ' to development and the disturbance of deer migration corridors due to residen- tial and recreational construction. Testimony by representatives of the Oregon Department of Fish and Wildlife in ' dicated that their studies have shown that there is significant deer migration ' from the Deschutes National Forest west of the Deschutes River to wintering ranges east of the river identified as the North Pau 1 ina Devil's Garden ' and Hole -In -the -G=round Ranges. They further expressed a belief, based on their training and experience, that rural housing at a density of more than one residence per 40 acres can seriously threaten deer winter survival. And, that ' rural residents often owned dogs which, especially in packs, were a threat to all wildlife. One type of area of particular concern is the riparian area or wetlands along ' streams and lakes. 'These areas not on!.,, ser.re as essential habitat for many species VOL 32 PAGE 909 1 and as migration corridors for big game, but are particularly in need of protection because of their limited nature. Not only the wetter more forested areas of the County provide wildlife habitat I but the dry high plains in the eastern portion of the County have large popu- lations of sage grouse and antelope. These wildlife species are highly de- ' pendent on the open unrestricted character of this area for their survival. Throughout committee discussions and public testimony concern that local fish ' and wildlife resources be protected was expressed. To set reasonable objectives the following goals were deter -,tined: , GOALS: 1. To conserve and protect existing fish and wildlife areas. , 2. To maintain all species at optimum levels to prevent serious depletion of ' of indigenous species. 3. To develop and manage the lands and waters of this county in a manner that , will enhance, where possible , the production and public enjoyment of wild- life. ' 4. To develop amd maintain public access to lands and waters and the wildlife ' resources thereon. POLICIES: 1. Certainly one of the more controversial issues in the County has been the , deer winter ranges. In light of the need to protect these sensitive areas ' and to be consistent with plan policies restricting rural sprawl, the Metolius, North Paulina and Tumalo Deer Winter Ranges shall be protected ' by special zones. The winter ranges shall be as designated on the Fish /Cg - VOL 32 rac€ 910 ' and Wildlife Resource Maps contained in this plan's resource element. Within the winter ranges the minimum lot size shall be 40 acres. Planned developments ' (including cluster developments) may be permitted on parcels 160 acres or lar- ger in size. However, man's activities must be limited to 20 percent of the ' development's lands with 80 percent left as open space. in the case of Alarmed ' developments the density shall be determined by the underlying zone. ' 2. In the three deer ranges and along deer migratory routes all dogs shall be leashed or kenneled, and a County leash law shall be established which ' provides for effective enforcement by requiring fines sufficient to sup- port administration. ' 3. While the new 10 acre rural minimuun lot size will do much to protect the deer migration corridors, in instances where identified deer migration Cor- ridors are found to be largely unimpeded by development the minimum lot size ' shall be 20 acres. ' 4. Because public access to fish and wildlife areas is so important to the economic and livability aspects of Deschutes County,walking easements and periodic boat access points shall be provided in areas where public river ac- cess. is limited, as determined appropriate by the County and State Department ' of Fish and Wildlife. 5. Consistent with Policy #k4 and in order to protect the sensitive riparian ' areas, as well as to protect people and property from flood damage, the zoning ordinance shall prohibit development (except floating docks) within ' 100 feet of the mean high water Park of a perennial or intermittent stream M WL 32 FACE 91 or lake. Pre-existing lots unduly restricted by this.requirement shall be eligible to apply for a variance with the usual filing fee. Variances shall ' also be possible where it is shown tnat the structure is removed from the ripal ian area because of a high bluff or steep slope. 6. In addition to state and federal laws, County ordinances shall require all identified nesting sites for eagles, ospreys, prairie falcons or other list be ' species listed on the official endangered species shall protected. An acceptable protection program for the nests or sites shall be created ' f construction of the development. and used during and after L�►� 7. Because the antelope and sage grouse populations require large amounts of of the , open space, the ,=, nnyn parcel size east of Horse Ridge (exclusive Brother, Hampton and Mi.11ican townsites) shall be 320 acres. This policy s effectiveness every two shall be reviewed for it ery Years. Additional policies effecting fish and wildlife may be found in the Rural Devel- ' o-�rent chapter. M VOL 32 q6E 912 HISTORIC AND CULTURAL Historic and cultural areas are lands with sites, structures or objects that have local, regional, statewide or national historical signifi- cance or refers to an area characterized by evidence of an ethnic, ' religious or social group with distinctive traits, beliefs or social forms. Rapid growth and the subsequent loss of such sites and areas have made the protection of this County's important historic and cul- tural resources of significance locally. The program and policies ' recommended by the Historic and Cultural Citizen's Advisory Commit- tee received support and approval throughout the committee reviews ' andP ublic hearing and changed little during the planning process. Based upon the following findings: ' 1. Public awareness of our history and cultural background has been and will continue to be an important source of knowledge, pride, education and enjoyment for this and future generations; ' 2. Rapid growth and development make it imperative that the county's historic and cultural resources be identified and protected; i3. Lack of private owner incentive for preservation has led to historic site deterioration or loss; ' 4. Inventorying, assessment and recording of historic and cultural r I resources is an ongoing process which Must be kept current, par- ticularly in the face of rapid growth and development; 5. Properly preserved and utilized historical or cultural resources enhance the economy of the area; 6. There exist state and federal laws which protect cultural resources from disturbance or distraction and in light of the chosen alterna- tive which seeks to enhance cultural amenities as well as housing 1. VOL 32 PAPUE 913 I policies encouraging housing rehabilitation, the citizens com- mittee accepted the recommended goal. GOAL: To preserve and protect historic and cultural resources of Deschutes County. I To achieve the identified goal a number of policies were developed.I These policies reflect concerns that there be a specific agency responsible for protecting historic and cultural resources and that the agency's specific authority and duties needed to be iden- tified. Also, that appropriate means by which the new agency, the cities and the County could protect the resources had to be found. POLICIES: I 1. A joint Cities/County Historical Landmarks Commission shall be created by the incorporated cities and Deschutes County. The joini commission is meant to assure greater coordination in regards to I identifying historical and cultural resources, protecting those re- sources,. being fully representative of the various communities,serNir: in an advisory capacity to all local governing bodies and their agent. as well as promoting greater efficiency and better information in tecting the resources. The duties of the commission would be to: 1 A. Create a local register and priority value for historic and cultural resources of the County. B. Review applications for designation of historical sites. I C. Advise governing bodies on ordinances and permits for demo- ' lition or alteration of historic or archeological sites. 1 rbg_ VOL 32 PAGE 914 D. Advise and help resolve land use conflicts affecting such resources. E. Devise standards for historical markers. 2. Preservation of historical resources o= high priority rating should take precedence over most other developmental usages. ' 3. Emphasis shall be on preservation of the exterior appearance of historic buildings. Interior modifications and exterior changes ' compatible with the.continued maintenance of the historic appear- ance of the structure shall be approved upon such finding of com- patibility by the Historic Landmarks Commission. 4. Plans for the protection of an identified historic or cultural site or cultural resource such as petroglyphs shall be submitted to the Historic Landmarks Committee for approval with any appli- cation ppli-cation for subdivision or development of such site or area. 5. Archeological sites shall be appropriately examined prior to designation for other uses. Zoning should protect the sites from other uses until the explorations are completed. 6. Incentives should be developed to encourage private preserva- tion and utilization of historical resources. r 7. Redevelopment, Neighborhood Improvement Projects and other similar mechanisms shall be encouraged for areas of significant historical ' or architectural interest. IGQ- Vg1TEi2 RESOURCES ' VOL 32 FAcE 915 Water in adequate quality and quantity is important to all communities, but in a semi -arid region such as where Deschutes County is located it is of particular importance. Drought is a re -occurring natural phenomenon which has done much to ' direct the County's growth and to determine its' economic base. Unfortunately, inadequate information exists on water supplies and on water quality. The County Health Department, Oregon Health Division, Oregon Department of Envir- onmental Quality, and U.S. Geological Survey are all presently involved with studies ' or on-going programs to provide a greater understanding of the area's water resources. Given the expected continued growth of the area and the existence of water quality' and quantity problems already, the results of these studies will prove useful. in ' updating this plan and safely accomodating the new growth while protecting existing industries arra residents. ' It does appear that little additional water for agricultural expansion ma be expected locally, except for some new wells in such areas as Lower Brie and Cloverdale. The use _of_irrigation water for domestic purposes has A only reduced available water supplies for agriculture but also raised questions about possible health hazards resulting from people drinking from irrigation ditches. ' Some water quality problems have been identified as resulting from domestic effluent and agricultural operations. At present the domestic effluent is clearly a more , pressing concern than agricultural activities (because of local soils, climate, ' topography and farm operations). The continued use of drill-holes for sewage disposal has been noted as a subject of particular concern. To indicate the County's concern and to serve as important long-range objectives the following goals have been identified: 1. To maintain existing water supplies at present quality and quantity. 2. To improve the efficiency with which water is supplied to meet the growing needs of Deschutes County residents. ' f 70� i F VOL 32 FAGS 916 ' POLICIES: In order to achieve the desired results three general policy directions have been ' determined; each general topic composed of several specific policies. Resource Study To obtain better information than that presently available so as to assure the safe use of the area's water resuources the following plicies shall be adopted: 1. Obtain funding to conduct a complete county wide hydrology study. Particular emphasis shall be placed on study of urban areas, irrigation water seepage into local water tables, stream flow and limits to water availability. ' 2. The County, in conjunction with appropriate state and federal agencies, shall conduct a study on the location, and characteristics of local aquifiers and streams emphasizing the LaPine Area first. ' 3. The County shall conduct a study of the legal, economic and environmental ' consequences of the use of irrigation water for non-agricultural uses. Water Supply The second general topic is the protection, and improvement in efficiency, of ' local water supplies. 4. The County shall work with local irrigation districts, private and municipal ' water suppliers as well as adjacent counties and the state to assist water management planning. 5. Consistent with acceptable environmental, social and economic impacts, the County ' shall cooperate with state and federal agencies in irrigation canal lining, reservoir construction and watershed management. ' 6. The County shall cin'-inue to serve as a sponsor for federal and state grants ' for water system improvements.. Water Quality The final general policy direction is the protection and improvement of the area's water quality so that the County's new population can be safely accomodated without serious public safety, environmental and economic costs. ' 7. The County shall work with state and federal agencies in planning for water quality ' (i.e. Section 208 and 303e) and in the enforcement —(71— VOL 32 FACE 917 of anti-pollution regulations. Also,if found necessary, create and enforce local anti-pollution ordinances. 8. The County, through educational programs and other similar activities, should encourage the use of non-toxic,•rapidly bio-degradable chemcials. 9. Plans, ordinances, cooperative agreements and other legal and educational tools shall be fostered by the County to protect watersheds, reduce erosion and inappropriate run-off, and otherwise preserve local water (Tiality from undesirable building, agriculture or other practices. 10. Any project which would endanger the purity of local ground water shall be vigorously discouraged. 11. To protect the public's health and safety irrigation ditch water shall not be an approved domestic water source for subdivisions, partitions or other develog.-ents after adoption of this plan. This will not effect existing legal subdivisions, partitions or other developments. Vot 32 FAcf 91-8 CITIZEN INVOLVEMENT — 173 — CITIZEN INVOLVFi`% r VIOL 32 �AuF 919 The preparation of a comprehensive plan requires great amounts of time 1 and involvement by the pablic if the plan is to be truly reflective of the desires. people's needs and Deschutes County was fortunate to have had such an extensive citizen involvement in the preparation of this plan, How- ever, what is often forgotten is t1riat equally important is continued public involvement in the updating and implenenting of the comprehensive plan and its attendent ordinances. 1 Now that Deschutes County has prepared its new comprehensive plan it must Took to involving people in a productive iranner with the on-going planning process, therefore the following goals have been prepared by the Board of County Camiissioners acting as the County Citizen Involvement Committee. r GOALS: r 1. To pro;rote and maintain better conmurication between the community's various segments (i.e. governmental agencies, business groups, special districts and the general public). 2. To the opportunity for the to identify issues , provide public of concern and encourage their involvement in planning which addresses those issues. 3. To serve as a liason between planning bodies and citizens of the County. 4. To provide educational opportunities for the people to learn about planning and how it may be used to assist their ccranunity and themselves. POLICIES: 1. To assure that County officials are aware of citizen needs and attitudes aml _ /7-¢_ 75 - VOL 32 PAGE 920 to permit effective two-way coirmunication the County shall: ' A. Conduct regular surveys regarding citizen needs, attitudes and characteristices; B. sponsor workshops and presentations by known specialists and experts; C. prepare pamphlets explaining routine planning procedures; D. write and distribute informative newsletters; 1 E. prepare and present slide shows and/or films on such topics as growth vs. conservation, the subdivision process and the usefulness of plan- P ping, and ning; F. make presentations to special groups and school children. The Board of County Carr4nissioners will remain as the Citizen Involvement Committee to review, and change as necessary, the County's Citizen In- volvement program so as to ensure its continued efficiency and usefulness. 3. Between updates special ccnvdttees representative of geographic areas, or ' possessing special knowledge of certain issues,- shall be formed to assist with planning studies. 4. The County Planning Commission shall be kept aware of the activities and results of the study committees and will be informed of studies and act- ivities of the County Planning Department which will assist them in the role ' as advisors to the Board of County Commissioners. ' 5. Primary responsibility for coordination between the County and the public, and other agencies, shall be the County Local Coordinator. It shall also be the Local Coordinators responsibility to assure that planning department studies are provided to members of the County Planning Ccnmission. ' 6. At the time of an update an Update Committee broadly representative of the ' County's areas and interests shall be formed. The actual make-up of the 75 - 0 VOL 32 PAGE 921 cam-Littee will be determined by the Board of County Camiissioners based upon a report by the County Planning Director regarding the issues and concerns needing addressing during the update process. If during the update process additional issues are raised the Board of County Comiissio may change the po Update ccm sition of the U to Committee to assure those new con : are adequately addressed. 7. The update process shall occur at least every two years and be open to public; view and involvement, and- public hearings to ascertain citizen views shall held at the beginning and end of the process. 8. The County may, as required, change its Citizen Involvement Program to assi� public involvement anti access to information at all stages of the planning. process and provide for an efficient and effective planning program. 9. To assure an on-going update process, the Board of County Cam issioners shi appoint a Plan Update Committee, to revioa the plan and suggest improvements., shortly after plan acknowledgement by the Land Conservation and Development Commission. VOL 32 rAcE 9..,2 PLAN FLEXIBILITY AND UPDATING There are two questions always asked when a new plan is prepared. First, how flexible will the plan be after it is adopted? Second, how will changing conditions be incorporated into the plan? The answer to the first question is that all land use plans reduce the flexibility with which land may be used. That is, after all, one of the purposes.of preparing a plan. However, considerable study is conducted during the preparation of the plan in order to assure that the needs and desires of the public are accommodated,. consistent with the long-term safeguarding of our human and natural resources and the requirements of individual property -owners. In ' addition, the application of the plan is intended to achieve certain desired results. To accomplish these goals it will be the job of the County's elected and appointed officials, as well as professional staff to make interpretations of the plan with the primary emphasis on the achievement of the goals rather than technicalities. However, that does not mean policies or criteria may be ignored. They are established in order to reach the identified aims and therefore are to be followed unless'it can be shown they are inconsistent in. this particular instance due to the unique character of the question at issue. Given this unique situation then new regulations may be ' adopted or exceptions not otherwise granted may be given. If all this sounds like it is rather complex and difficult that is because it is! While the plan will answer many of the questions about development in the County there are bound to arise situations where the answer is not so clear-cut and the appropriate officials will have to use their best judgement based upon the goals of the people, as reflected in the plan, in making a final determination. An example would be where a commercial area is designated on the plan_. As with all plans this area is shown as an area of color. No attempt is made on the map to specifically identify the exact ' limits of that commercial area. Guidelines are written into the plan and they must be interpreted at the time a development is proposed. The result may be that the final commercial area could be a little larger or a little smaller than originally shown, depending on interpretations made as the plan is used. In summary, while the plan will undoubtedly reduce flexibility it will still retain the opportunity for unique situations to be interpreted in a manner most conducive to the public's general welfare, as well as allow for interpretation to occur in places where the exact boundaries for a particular use may require a final evaluation at the time of a specific development proposal. Perhaps most importantly all of this evalution and review will occur in public view and subject to written guidelines so that the process is open ' and understandable to all interested persons. As regards the second question, state regualtions specifically require that at least every two years the County review and update its plan in order to assure that the changing character of the people and the land be reflected in appropriate goals and policies. Usually these changes are adjustments to boundaries on the plan map or establishment of new policies. The final goals to be attained rarely change. l77— VOL 32 FAGLF 923 In order to know what changes may be necessary at the time of r an update it is necessary to establish a process for the regular collection of data so that the reasons for changes may be seen. The required program would collect information on demographic changes, such as are reflected in population growth and building construction. Also monitoring of capital improvements, like streets and sewers, would indicate trends and compliance with the plan. And, review of applications made for subdivisions, zone changes, site reviews, or other administrative permits would allow another perspective to be gained on development. The final program should seek to determine for all interested parties: 1. Progress in implementing the plan; 2. Adequacy of the plan to guide land use actions; 3. Whether the plan continues to reflect community desires; 4. If a major action or trend in small actions and/or annexations is consistent with the comprehensive plan; and 5. Whether the overall effect of changes and/or actions has reduced the pertinence of the plan. Along with the gathering of data about specific events there must also be an on-going process of attitude surveying, citizen involve- ment programs, and other methods of community inter -action so that County officials have an up-to-date knowledge of the public's interests and positions on topics of interest. This type of on-going process will go far in assurring public support and plan effectivenesl Updating a comprehensive plan is a complicated and delicate task, but one that must be done if the plan is to remain an effective and equitable tool for guiding community development. The resources committed to this process will be well -spent if the process is , made to work correctly. Flexibility in administration and updating are both ways communities seek to assure their plans accurately reflect local conditions and allow for the best possible final result. officials must be allowed some discretion in the making of decisions. Therefore parameters are established within which they are to work and by which their work may be appraised. Keeping these guidelines current, useful, and reflective of the people's interests is the purpose of the updating process. THINGS YET TO BE DONE vOL 32 PAoF W4 The completion of a comprehensive plan is never the end of the planning process. There always exist things yet to be done. Not only are there the issues where insufficient time existed for them to be adequately considered during the planning, but also entirely new questions can be raised because of the improved level of understanding about the community which point to issues previously generally unrecognized. All of this results in additional studies that must be performed so that a more accurate reflection of conditions can be obtained and the necessary changes made to better the plan. In Deschutes County a number of additional studies and reports should be performed. The following lists and gives a short description of each of these suggested reports; 1 Groundwater - Additional information on the quantity and quality of local groundwater supplies, as well as developing an understanding of the capacity of the resource to accommodate utilization by a variety of uses. Forest Lands -More indepth data on the species, potential and ' volumes available, the effects of different uses at increasingly intensive levels, and the alternatives that may exist for local utilizatior and benefit. Agricultural Lands - Further study into marginal agricultural lands and when conversion to developed uses is appropriate. Surface Mining - More precise information about available resources, the impacts of development and the rate of utilization. Vdind Power Study the feasibility of wind powered generation sites in the County. ' Recycling - Create a recycling plan for Deschutes County by January 1, 1981. ' Geothermal - Study of the feasibility )f exploring local geotnermal sites. ' Solar - In depth review of the practicality of using solar power locally, with an orientation towards methods presently feasible. Soils - A detailed identification of local soils to enable better planning and development decisions, utilizing a coordinated study between appropriate governmental agencies. Historical and Archeologic Sites - An on-going program to continue ' the identification of significant historical and archeological sites and the preparation of a more detailed protection plan. i voL 92 FAGS 925 Air Quality - Greater review of existing air quality conditions, and development of an understanding of the carrying capacity of the area's airsheds under a variety of potential situations. ' Areas of Special Interest - Detailed studies of sites, views and areas that have unusual or unique qualitites and greater specificity about protection and compatible uses. This should include a text on these areas for planning staff use. Population - Better information about demographic trends and characteristics to ensure plans accurately reflect the needs of the public. Attitude Analysis - To better understand the desires and interests of area residents specific surveys and other methods , need to be utilized, particularly as regards attitudes towards development and economic diversification. Economy - Significant gaps presently exist in available data on how the local economy functions and what may be anticipated in the future, as well as how possible changes may affect local economic and social conditions; as well as land use patterns. An indepth study is required. , and shall be completed by November 1,--1980. ^_ransportation - Fume' in-depth analysis of traffic circulation needs and potentials, plans for critical transportation corridors, as well as determination of the feasibility of various non -automobile transportation systems. Also necessary is a better understanding of how transportation and the local economy inter -relate. Public Facilities and Services - Further study into appropriate levels and locations of public facilities and creation of a sophisticated analysis mechanism for determining acceptable phasing and sizes of facilities. Housing - An improved analysis of area needs; study of how the local housing market functions; and identification of suitable programs for encouraging the types of housing necessary locally. Urban _Coordination - Several studies designed to identify how each , urban area in the county is developing and hoer the County may most efficiently and equitably represent the public's interests and coordinate with other local and special district governments. Rural Development - More detailed analysis of recreational and rural development and the impacts (social, economic and environmental) resulting therefrom, as well as development of a methodology for how best to guide appropriate development. , Hazards - A more detailed study of the probabilities and locations of natural hazards. 1 �� VOL 32 PAGE 9?6 Implementation - Study and review of various alternative methods for the implementation of the comprehensive 1 plan by such means as environmental criteria and performance zoning. ' Landscape Management - Specific studies and plans for all areas identified in the comprehensive plan as landscape management areas. 1 County Lands - Study of the capabilities and opportunities pro- vided on county -owned land. 1 Compensatory Actions - A study of various methods by which private property owners may be compensated for the effects of planning and zoning ' shall; be undertaken. Many of these subjects have been addressed in this plan, but ' from a more general county -wide perspective. These studies, when combined with specific, more detailed studies of smaller portions (sub -areas) of the county, would enable a "fine tuning" of the. plan so that it even more accurately reflects the needs of the county's people and identifies appropriate means for achieving the necessary results. In addition, the information from these studies would assist in the updating process, thereby assuring 1 a plan ._cflective of current conditions. Less controversial, but normally a more important development ordinance, is the subdivision ordinance. In Oregon the process of , dividing land into smaller parcels is done within three categories. Minor partitions are the creation of tiao or three lots, where formally only one existed, without the establishment of a street , or way. Major partitions create two or three lots with a street or way. And, subdivisions create four or more lots with or without a street or way. Predictably the requirements become increasingly stringent as one progresses from minor partition to subdivision. Because subdivision regulations establish requirements for facilities to be provided, allow review of the design to assure the safety and general welfare of the future residents, as well as permit ' requirement of deed restrictions (protective covenents) to enable neighborhoods once established to retain their character, the subdivision ordinance very often will do more to determine the long -.term character of an area than will the zoning ordinance. 1 IMPLEMENTATION VOL 32 FACE 927 A comprehensive plan is only pieces of paper and colorful maps ' until it is implemented. Zoning and subdivision ordinances are the most widely recognized tools used in applying the ideas of a plan to the realities of the land. ' Zoning ordinances contain a series of categories (land use zones). which specify what uses are allowed within those categories. The uses listed are those felt to be compatible with each other. In addition, a number of conditional uses are usually also included. These activities are allowed only by special permit after conditions have been attached which mitigate the probable negative impacts anticipated to be created by the proposed use' -The zoning categories are determined by the policies established in the comprehensive plan. .Once the appropriate zoning categories have been created then using additional policies and criteria set in the plan these zones , are applied to the land. Comprehensive plan maps show generally how various uses will be r allocated throughout the jurisdiction, but the zoning map takes this general prescription and specifically identifies how each individual piece of property is to be zoned. However, zoning attempts only to provide sufficient zoned ?and for development as will be required for three to five years. While the remainder is placed in holding or protective zones allowing only limited change. For example, a commercial area may be designated on a plan map and appear to be approximately 200 acres in size. The actual zoning initially may provide only 50.acres of commercial zoning, with the remainder held in a commercial buffer zone or ' a residential zone. As time passes additional land for businesses in that location will be required and will be so zoned, either by the property -owner requesting a zone change or by the county , initiating the action and legislatively changing the zone. The final result is that by the end of the plan's useful life approximately 200 acres of that area have been zoned commercially and used as such for everyones collective benefit. In this way zoning serves as an implementing tool bringing into reality, through phased development, the goals and policies first identified in the comprehensive plan. ' Less controversial, but normally a more important development ordinance, is the subdivision ordinance. In Oregon the process of , dividing land into smaller parcels is done within three categories. Minor partitions are the creation of tiao or three lots, where formally only one existed, without the establishment of a street , or way. Major partitions create two or three lots with a street or way. And, subdivisions create four or more lots with or without a street or way. Predictably the requirements become increasingly stringent as one progresses from minor partition to subdivision. Because subdivision regulations establish requirements for facilities to be provided, allow review of the design to assure the safety and general welfare of the future residents, as well as permit ' requirement of deed restrictions (protective covenents) to enable neighborhoods once established to retain their character, the subdivision ordinance very often will do more to determine the long -.term character of an area than will the zoning ordinance. VOL 99'6 Therefore,it is of critical importance that subdivision and parti- tioning ordinances be properly formulated, complimentary to the 1 zoning ordinance and strictly adhered to if the community is to benefit from their administration. ' In addition many jurisdictions offer an opportunity for planned developments (PD) which permit a less than strict adherence to both zoning and subdivison regulations in order that developments ' may create a better overall design which still meets the policies established for that particular area. These planned developments most often occur in places where unusual conditions exist such that a conventional development would not be able to most efficiently ' utilize the site. This may be true because of characteristics such as rock -outcrops or because the area contains deer range, agricultural land, unique historical remains, or the other resources that must be protected from development. In some areas local governments do not establish all their land use restrictions within the zoning ordinance. Floodplain, mobile home, ' design review and airport ordinances are often created seperately and administered in addition to the requirements of the zoning ordinances. In Deschutes County these regulations will all be ' joined into the zoning ordinance to provide ease of access and understanding for the public. ' Zoning and subdivision ordinances are the most common types of regulation but there are r.any other means used in implementing a comprehensive plan. Capital Improvement Plans are commonly used. These plans lay -out for a five to six year period how and ' where streets, sewers, and other public facilities will be con- struct -ed. The provision of these services often determines the feasibility of numerous types of community changes and are a ' powerful tool in controlling community growth patterns. Conservation easements, or other types of less -than -fee acquisition, 1 are becoming increasingly popular. An easement, lease, or purchase of a certain right can often be obtained from a property -owner and thereby a specific use may be prohibited or some special resource protected. The purchase of this easement is less 1 expensive than the purchase of the property, and for certain uses may even be granted without cost to the public. These arrangements thereby seek to eliminate the charge that the local government ' has "taken" the property through its zoning ordinance. A "taking" occurs when zoning is so restrictive all or substantially all the value of the land has been removed by the restrictions of the zone established on the property. Zoning has usually been held as a. reasonable exercise of the state's police powers unless a "taking" does occur. ' Coordination agreements are another common tool for implementing a plan. Often local governments (cities and counties) have over- lapping interests within certain areas, such as urban growth areas, as well as overlaps with other public bodies, such as special districts (i.e. school and irrigation districts) and federal agencies. Establishment of cooperative arrangements reduce the probability of conflicts arising and assure that all these public ' agencies are working towards common goals, thereby increasing efficiency and the likelihood of achieving these goals. Whatever method, or more likely methods, used it is important that their intent be to implement the policies established in.the comprehensive plan. However, of greatest consequence is that these methods actually achieve the goals set by the people in their plan. It is not enough that there be good intentions, there must also be good results. Both means and ends must be brought together in an appropriate way. Good results need to be obtained in the right way. Every community must decide what is the proper manner for their plan to be implemented, and therefore no two implementation programs are the same. 32 PACE 929 VOL incentives , Use of tax to promote appropriate use of land is also receiving increased attention. Exclusive Farm Use zoning is an example of this. Land set aside and used for farm use may only be taxed for that farm value, rather than any potential development ' value. This then enables the.farmer to better afford remaining on the farm. Another implementation tool is the trading of land. Deschutes County is lucky to have available county lands which can be traded with private individuals and public agencies to better achieve , the goals of the plan. In addition, innovative methods are being created and tried which permit greater flexibility while assuring appropriate standards are met. Performance,zoning is an example of this type of regulation. With this type of ordinance a zone is established on property but instead of stating the type of uses that will be permitted it t sets a number of standards that must be satisfied. These criteria set limits on pollution, traffic generated, noise, population density, height, etc. The developer is then free to construct any use they desire, as long as the performance standards are met. Should the use not comply it will have to be modified so that it does or be shut -down. Unfortunately, performance zoning requires a relatively large staff using sophisticated equipment if it is to be successful, and it is therefore used mostly in larger jurisdictions where sufficient budgets exist. Not only are there ordinances and plans adopted by official action of the governing body but administrative decision -makers, like the planning staff, hearings officer, or planning commission, often establish criteria for use in reviewing applications brought to them. Naturally these criteria are consistent with existing regula- tions, plans, and policies. They simply serve as a way for assuring equitable treatment for all applicants and that all pertinent issues are addressed. An example of such a mechanism is Table 1, taken from, the American Society of Planning Officials publication (by M.3. _Meshenverg), Environmental Planning: 1 Environmental Information ' for Policy Formation. This table lists the various categories of environmental features (i.e. land, water, air, cultural, etc.) which may be encountered, then lists probable development problems that , may be encountered. Restrictions on use are suggested, as are methods for implementing the policies on restrictions. The list of restrictions also usually suggests some mitigating measures that may be used to ameliorate the potential hazards. I Whatever method, or more likely methods, used it is important that their intent be to implement the policies established in.the comprehensive plan. However, of greatest consequence is that these methods actually achieve the goals set by the people in their plan. It is not enough that there be good intentions, there must also be good results. Both means and ends must be brought together in an appropriate way. Good results need to be obtained in the right way. Every community must decide what is the proper manner for their plan to be implemented, and therefore no two implementation programs are the same. LCO f 1, .3ow 930 —/957— 7 T u M Y m n a Vw O W •-� D 7 U u A m 9 C C Y B Y O C r Y W •O PH 7H C uw O> u •.Ei C u� G 'pO C e d O C O q a .+ N u O 4 YN •.� q m y V F.G. m u Y Y 'p c .. C O g y 0 u C •.G. 9 •Cq. u E G 6 u 0 9 O .• Y G C E m G C W Y O C W C m u N u N V- 4 � W Y C O 0.O W C r 4 u m tD C u g d e w 9 .Yi C CNN i M m m � •p .-. 4 0 N � 6 9 Y •a 9 M •.00 Oa m' 4 H Y .e N� Y E A u 6 7 w 7N 9 C 7 Y- O CW q 4 N 6 b E d m -+ 0.Y ••� C C C P u 4 t0! M m O 4 W 0C O m •-• w o E G •-• V u u > e v •-Y C u .. w H n m m 9 � - G d .y S u Y pppp�'•� '•m� !. 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G c 4 ^ -• U w C o t 6 c q u u a.e 3 •+ b U O u v G E �• 3 y G C u u .G-� o u. w q N -• M w W .. '." G C a w H o M O Y '— •-� E E p EE 4 O G O 3 c -. •- p v u r p. u .Y. Y d d G y u C 3 4 O w.09 C O :..9. q j dw j b 9 0 •- U E U y w d C •p C H u> 9 V 4 E Y � x •-. > m U r 3 C •+ V p 9 N .: 9 H C Y W ✓ u H q q • r % r w b C •O o c y y p `� O H A Y N U •+ V� C C L U 4 p q G G Y W W e" u� `✓ d m _ V u r. Y Y 4 a� ✓ � Y m u o w :' w .y+ L •pU O u m EE + yy U.G. t~ E w v w 9 q i L ..pi • a w q w q] E E E 'c ao+� H✓ .r u 7 H -O u C q C 9 Gm w C G t •-• � 4 .-w oC O U N H w q w Y C C� q] a w a 0. u 1 < +� q •a w i ^+ O -- G L u q F d u u L O O V J N L` � °m acv gwne ue+=. Lm"c0 aowgc O G •'O y •� Y y a 9 V C Y • O Y U~ u 4 4 C Cq ••� O Ow -• C u 0 eo M O a a c L H .r a CUY] mLT P. •uq y � C u r M U LTL L ]40 V •O V u r q w c4 _ '`J••034d Aw NC mgr> CN�Y '�M 40 m~ q 0- •-• y u i, OT vui V W C L 9 d vyi W >. •-• E O •+ W O EE• OC C 9 a b E 6 3 w � ] . T� •� •-T� T m u u U O u up a •+ dw u U PGO-+ O U v d C q U u L N Y u Y> > •O r. 2 c� a u y b 4 0 0 e d 6 q G v 4 av 3 3 ¢ ¢ < d ti C 4I m rl -1 r ,� I I VOL 32 PAGE 9: 4 O q y qY Y T. L G 6 N y e0 u m u N O l e Y V u 4 Y •+ +� _ .OI Z h N O N O E .� p 0 p g n K d t0 C d 0 C U O w w •• L s U N cc '•.°.v u.",� ..cam u°•:. a w � �- w� n ••E. m oo d rG- n y m- � t f O O 9 w 9 9 > > q C aG�-+T CL d u >.yu YYW dtiG � W EE :• W w d O d L O C G O M 6 Z9 u Z•+ R d u Lot - E d > > u> u I H q L S T O V O C u U S •.� d 70 d L - V O O U G > � O� Y O > - �- C J T C O T p u J GT O .•� r O_ i T A ti W C q C S H u C M 1 O N 6 0 O O G O C :Ra O c o ou.. ec eo�c'i s�.�01 x 0 -ymmam — ' A> lo IE 0 w we0� G O SG h - m G � •O+ O O y d d R 0 C � p u CIS C ^ m G ' 32 FAGE 93 5 � VOL Deschutes County's implementation program as specified in this plan, will be a combination of zoning, subdivision, and other necessary ordinances. There will also be provided tax incentives and the possibility for land swaps. Investigation into the feasibility of conservation easements and performance zoning may yield new and better tools for implementation. And certainly staff will be seeking administrative criteria to use in their evaluation. Yet, despite all of this complexity built into the system efforts will be made to keep these processes as simple as possible and provide for the expeditions handling of all applications. The resulting process will seek to achieve the desired "good results in the right ' way", however, for this to happen it will require not only the efforts of the elected and appointed officials as well as the professional staff but also the people of Deschutes County. This area is ours to live in and to pass on to our posterity. If we work together we will be successful in passing on the environment we all enjoy so much. ' t7 9 v -- r CONCLUDING R&MARKS VOL 32 Fes" ' The plan seeks to protect the important resources in Deschutes County, yet it is not a no -growth plan. Growth is being anticipated and accommodated in urban areas. Rural Service Centers, like Tumalo and Terrebonne, are being adjusted to serve the growing needs of the rural areas. Plans to assist LaPine in becoming a full-service oanununity and eventually leading to in corporation and the ability to serve a better organized rural area are being laid down. And even though rural development is restricted, provision for small farms and rural homes is being included in areas and at densities ap- propriate for such activity. Also, important areas and sites with unusual characteristics are being identified for protection. .And adequate provision is being made to allow, in an appropriate manner, the couTnercial and industrial areas we will be needing. Perhaps most importantly this is the beginning of a process that will con- tinue to obtain better, mire useful information so that the changing character ' of the County can be acconnodated and regulations sufficiently flexible, but accurately reflecting local conditions and needs, may be promulgated. 1 I