HomeMy WebLinkAbout2023-7-27 Deschutes 2040 - Review of Comprehensive Plan Document
COMMUNITY DEVELOPMENT
MEMORANDUM
TO: Deschutes County Planning Commission
FROM: Nicole Mardell, AICP, Senior Planner – Long Range
Will Groves, Planning Manager
DATE: July 27, 2023
SUBJECT: Deschutes 2040 Meeting #11– Review of Comprehensive Plan Document
I. BACKGROUND
The Comprehensive Plan is Deschutes County’s policy document for guiding growth and
development within the county over a 20-year planning period. The plan’s purpose is to provide a
policy framework for zoning and land use regulations, demonstrate consistency with statewide goals,
rules, and laws, and serve as a cohesive vision for future planning activities.
The project has progressed to phase four, focusing on compilation of the full draft Comprehensive
Plan document. Staff is requesting the Planning Commission conduct their final review of the entire
draft Deschutes County 2040 document, including goals, policies, and chapter content.
II. PRIOR PLANNING COMMISSION REVIEW
The Planning Commission provided initial comments and suggested edits to policies at the meetings
listed below. Staff has utilized the information collected at these meetings , in combination with
community and technical advisor input, to produce the final draft of the entire document.
• November 11, 2022: Review of Batch 1 Policies – Community Engagement, Land Use,
Agricultural Lands
• December 8, 2022: Review of Batch 2 Policies – Forest Lands, Natural Resources, Natural
Hazards
• March 9, 2023: Review of Revised Batch 1 Policies
• March 23, 2023: Review of Batch 3 Policies – Housing, Economy, Public Facilities and Services,
Recreation and Tourism, Destination Resorts, Area Specific Policies
• March 30, 2023: Additional Review of Batch 3 Policies
• June 22, 2023: Secondary Review of All Goals and Policies
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III. NEXT STEPS
Following Planning Commission review of the final draft document, staff will continue to work on the
layout and design of the document including incorporation of graphic design elements, photos, and
tables and release the full draft for public review. At least 35 days in advance of the initial public
hearing, staff will initiate a Post Acknowledgement Plan Amendment, creating the formal hearing
record.
Table 1 – Tentative Dates for Comprehensive Plan Update Meetings
Activity Description Start Date
2023
PC Meeting #12 – Preparation for Public Hearing October 12
PC Meeting #13 – Initial Public Hearing October 26
Attachment
Draft Deschutes County 2040 Comprehensive Plan
Layout Example
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Deschutes County Comprehensive Plan
This version of the Deschutes County Comprehensive Plan (7.20.2023) contains draft narrative,
goals, and policies. Updated layout and additional graphics including photographs, maps,
charts, and tables will be included in subsequent versions.
Cover Page
Acknowledgements
Revisions
Comprehensive Plan Chapters
• Chapter 1: Community Involvement
• Chapter 2: Land Use and Regional Coordination
• Chapter 3: Farm and Forest Resources
• Chapter 4: Mineral and Aggregate Resources
• Chapter 5: Natural Resources
• Chapter 6: Historic Resources
• Chapter 7: Natural Hazards
• Chapter 8: Recreation
• Chapter 9: Economic Development
• Chapter 10: Housing
• Chapter 11: Unincorporated Communities and Destination Resorts
• Chapter 12: Public Facilities
• Chapter 13: Transportation
• Chapter 14: Energy
Appendices
• Appendix A: Goal 5 Inventories
• Appendix B: Transportation System Plan
• Appendix C: Tumalo Community Plan
• Appendix D: Terrebonne Community Plan
• Appendix E: Newberry Country Plan
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Chapter 1: Community Engagement Page 1
Deschutes County Comprehensive Plan
Draft Comprehensive Plan Chapters
Chapter 1: Community Engagement
Opportunities, Challenges, and Considerations
Community engagement is the
touchstone of planning in Oregon.
As Deschutes County grows and its
population changes over the course
of the next 20 years, the County
must be prepared to find
innovative ways to keep community
members involved in the planning
process and provide ample and
accessible ways to find and digest
information. Challenges including
funding, resources, and ongoing
state appeals might pose
challenges to this work. The County
has an opportunity to plan for
adequate resources and staffing to
support a robust public
engagement program.
Statewide Planning Goal 1 calls for "the opportunity for citizens to be involved in all phases
of the planning process." It requires each city and county to have a citizen involvement
program that addresses:
• Opportunities for widespread public involvement
• Effective two-way communication with the public
• The ability for the public to be involved in all phases of the planning process
• Making technical information easy to understand
• Feedback mechanisms for policy-makers to respond to public input, and
• Adequate financial support for public involvement efforts
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Chapter 1: Community Engagement Page 2
Context
A far-reaching community conversation was a vital part of updating the Deschutes County
Comprehensive Plan. This effort included:
• Two phases of engagement – one focusing on long-range vision, opportunities, and
challenges; and another phase focusing on important and controversial topics.
• Outreach events in all parts of the County.
• A deliberate audit of engagement activities to learn and build on successes.
• Engagement infographic
Involving the public in planning is a critical part of Oregon’s land use system. Statewide
Planning Goal 1, Citizen Involvement, is intended to ensure that the public has the
opportunity to be meaningfully involved in all phases of the land use planning process.
Creating these opportunities requires time and energy on the part of County staff, as well
as systems to incorporate that input in a meaningful way.
Whether it be focus groups for a larger planning project, email notification lists for
department activities, or mailed notices of public hearings, local governments need to be
aware of changing technologies and best practices to involve the community. To participate
in planning actions, the public needs to be notified of the proposal or project, understand
the legal framework for the decision and understand the implications of the decision.
Regulatory Framework
Statewide Planning Goal 1 – Citizen Involvement lays the groundwork for the County’s
public involvement program. Jurisdictions are required to establish a Citizen Involvement
Program that provides widespread community involvement, ensures two-way
communication with appropriate feedback mechanisms, provides opportunities for
engagement in all phases of the planning process, makes technical information available in
an intelligible form, and is adequately funded.
Deschutes County’s Community Involvement Program
Statewide Planning Goal 1 is implemented by Deschutes County’s Community Involvement
Program, as described below.
[Graphic/flowchart of public engagement opportunities.]
Deschutes County Planning Commission
The Deschutes County Planning Commission serves as the County’s Committee for
Community Involvement (CCI). The Planning Commission is composed of seven volunteer
members appointed to four-year terms by the Board of County Commissioners (Board).
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Membership of the commission is representative of the various geographic areas of the
County. Members are selected through an open process that aims to balance the diverse
views of Deschutes County residents.
The purpose of the CCI is to create a direct and transparent connection between County
decision-making and the public by providing regular updates, speakers, panel discussions,
and handouts on land use law and policy. The CCI aims to make materials intelligible and
convenient for the public and to provide a venue for civil discourse on important issues for
the County.
Historic Landmarks Commission
The Historic Landmarks Commission serves as a hearings body for matters concerning
historical districts, structures and sites within unincorporated Deschutes County as well as
the city of Sisters. The Landmarks Commission is composed of nine voting and several non-
voting ex-officio members who have demonstrated expertise in historic preservation
related disciplines. Commissioners serve four-year terms.
Other Land Use Related Advisory Groups
Project Wildfire is a committee formed to coordinate, develop and implement strategies to
mitigate the effects of losses due to natural disasters that strike Deschutes County. Project
Wildfire is composed of 15 to 27 members who reside or represent agencies within
Deschutes County. All members are appointed by the Board and serve four years (see also
Chapter 7 Natural Hazards).
The Deschutes River Mitigation and Enhancement Program helps achieve Oregon
Department of Fish and Wildlife (ODFW) habitat and management goals and objectives
within the Upper Deschutes River sub-basin, consistent with an agreement between the
Central Oregon Irrigation District (COID) and ODFW. As part of that agreement COID
provides ODFW with funds to develop and implement a fish and wildlife habitat mitigation
and enhancement program for the Upper Deschutes River Basin. The Deschutes River
Mitigation and Enhancement Committee has seven voting members appointed to three-
year terms by the Board (see also Section 2.5).
In addition to convening these groups, Deschutes County engages with the public through
numerous methods, including:
• Conducting regular work sessions and hearings
• Providing timely public notice of important items
• Maintaining the County Website at www.deschutes.org, including the planning
departments “Community Engagement Center” page.
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• Advertising events and engaging with constituents through social media channels
• Coordinating with media organizations, such as local newspapers.
• Meeting with individuals and small groups to get feedback on important issues.
These activities were part of the most recent update of this Comprehensive Plan.
Key Community Issues
Deschutes County is changing and community members are seeking new ways to engage
in key issues. To provide ample opportunities to engage, new tools and technologies will be
needed to engage new groups. Issues that the policies in this section address include:
• Continuing to simplify materials to use plain language and be accessible to a variety
of audiences
• Continuing to maintain a presence throughout the County, including holding
meetings and events throughout the County
• Supporting engagement activities that allow community members to participate
virtually and at the time of their choosing.
With these issues in mind, Deschutes County has adopted the following goals and policies:
Goals and Policies
Goal 1.1: Provide for a robust community involvement program that includes all
members of the community, including those who are commonly under-represented,
by ensuring access to information, encouraging community collaboration, identifying
and addressing barriers to involvement, and promoting efficient and transparent
planning processes.
• Policy 1.1.1. Convene the Deschutes County Planning Commission as the County’s
Committee for Community Involvement in order to provide a direct and transparent
connection between County decision-making and the public.
• Policy 1.1.2. Write all County planning documents to be understandable, intuitive,
and easily available to the general public, using simplified language where possible,
with acronyms spelled out and technical language explained.
• Policy 1.1.3. Hold area-specific comprehensive plan and zoning text amendment
public hearings in locations and at times convenient and accessible to area
residents, as appropriate.
• Policy 1.1.4. Provide property information to the public in an intuitive and easy-to-
use manner.
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• Policy 1.1.5. Coordinate with developers before submitting applications as required
or recommended by the County Development Code to identify and discuss project
requirements and impacts.
• Policy 1.1.6. Invest in and support land use educational resources for community
members including information related to rural living, agricultural practices, natural
resources, and natural hazards.
• Policy 1.1.7. Promote opportunities for community members to have civil dialogue
around key community issues.
• Policy 1.1.8. Explore new and innovative ways to reach community members and
promote participation in the planning process.
Goal 1.2: Support the activities of the Committee for Community Involvement
• Policy 1.2.1. Maintain adequate funding and staffing support for the Committee.
• Policy 1.2.2. Provide regular updates, speakers, panel discussions, and handouts on
land use law and policy.
• Policy 1.2.3. Appoint members through an open and public process to reflect the
diverse geographic regions, demographics, and values of Deschutes County
residents.
• Policy 1.2.4. Meet with the Board of County Commissioners at least once a year to
coordinate planning policies and activities.
• Policy 1.2.5. Complete periodic reports on community involvement implementation
for the State Citizen Involvement Advisory Committee, the Board of County
Commissioners, and the public.
• Policy 1.2.6. Maintain open and civil discourse among Committee members and
with the public.
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Chapter 2: Land Use and Regional Coordination Page 1
Deschutes County Comprehensive Plan
Draft Chapters
Chapter 2: Land Use Planning and Regional Coordination
Opportunities, Challenges, and Considerations.
Deschutes County has been one of the most rapidly growing parts of Oregon for many
years. This growth can cause tension and highlight trade-offs between community
priorities, such as the need for housing, preservation of natural resources, adequate
infrastructure, and intergovernmental collaboration. To manage this growth, the County
partners with its cities, special districts, and state and federal agencies to ensure a
collaborative approach to development activities. As the County continues to navigate
emerging issues, intergovernmental agreements and new partnerships will be key.
One purpose of the Deschutes County Comprehensive Plan is to provide a blueprint for
land use throughout the County. This is accomplished through goals and policies that tell a
cohesive story of where and how development should occur and what places are expected
to remain undeveloped. The Plan provides a legal framework for establishing more specific
land use actions and regulations.
Deschutes County regulates and manages the use of land in the unincorporated parts of
the County. This is accomplished by:
• Implementing state policy and laws and furthers local planning goals by
maintaining, updating and applying County land use policies, standards
and regulations in its zoning codes and this Comprehensive Plan.
• Reviewing development and land use proposals and help applicants to
navigate the application process.
• Coordinating with other local jurisdictions on issues of regional growth
management, infrastructure, and public services.
• Coordinating land use and transportation planning efforts in rural areas including
planning for farm and forest lands and natural resource management and
protection.
• Administering land use regulations for unincorporated communities in the County.
The policies contained in this chapter, as well as all chapters in this Plan, establish the
legislative policy basis for the County’s land use planning program. The program is
implemented primarily through application of the County’s Zoning Code, regulatory maps,
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and development permitting application and approval procedures. In addition, these
policies establish important criteria to be used when initiating regulatory changes or
reviewing and developing code, map, and policy amendments.
Context
Comprehensive Plan Designations
Comprehensive Plan designations provide a high-level policy basis for more detailed zoning
regulations – each Comprehensive Plan designation may be implemented by one or more specific
zones.
Comprehensive plan designations in Deschutes County are shown in the figure below and described
in the following table. Comprehensive Plan designations within the Bend, Redmond, Sisters, and La
Pine Urban Growth Boundaries are excluded – local jurisdictions have responsibility for
comprehensive planning within Urban Growth Boundaries.
[Map of comprehensive plan designations]
Comprehensive Plan
Designation
Purpose Statement
County-wide Designations
Agriculture To preserve and maintain agricultural lands for farm use.
Airport Development To allow development compatible with airport use while mitigating
impacts on surrounding lands.
Forest To conserve forest lands for multiple forest uses.
Open Space &
Conservation
To protect natural and scenic open spaces, including areas with fragile,
unusual or unique qualities.
Rural Residential
Exception Area
To provide opportunities for rural residential living outside urban
growth boundaries and unincorporated communities, consistent with
efficient planning of public services.
Surface Mining To protect surface mining resources from development impacts while
protecting development from mining impacts.
Resort Community To define rural areas with existing resort development that are not
classified as a destination resort.
Rural Community
Rural Service Center
Urban Unincorporated
Community
To define rural areas with limited existing urban-style development.
Urban Designations
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Deschutes County coordinates with cities to adopt comprehensive plan designations for areas
within Urban Growth Boundaries or as part of Rural Reserves. These designations are reflected in
the Deschutes County GIS database.
Area Specific Designations
Parts of Deschutes County (Sunriver for example) have area-specific Comprehensive Plan
designations. These are detailed in Chapter 11, Unincorporated Communities of this
Comprehensive Plan.
Zoning Designations
Zoning designations in Deschutes County are shown in the figure below and described in
the following table. Zones within the Bend, Redmond, Sisters, and La Pine Urban Growth
Boundaries are excluded - local jurisdictions have responsibility for zoning within Urban
Growth Boundaries.
[Table and map of zoning designations]
Overlay Zones
Deschutes County has the following overlay zones, which apply in addition to the base zone
of a given property.
• Airport Safety: The purpose of the AS Zone is to restrict incompatible land uses and
airspace obstructions around airports in an effort to maintain an airport’s maximum
benefit.
• Destination Resort: The purpose of the Destination Resort Combining Zone is to
identify lands eligible for siting a Destination Resort and establish procedures and
standards for establishing this type of development.
• Landscape Management: The purposes of the Landscape Management Combining
Zone are to maintain scenic and natural resources of the designated areas and to
maintain and enhance scenic vistas and natural landscapes as seen from designated
roads, rivers, or streams.
• Greater Sage-Grouse Combining Zone. The purpose of the Greater Sage-Grouse
Combining Zone is to fulfill obligations of OAR 660-23-0115. This state rule requires
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seven Oregon counties to mitigate impacts of large-scale development on sage-
grouse habitat.
• Sensitive Bird and Mammal Habitat: The purpose of the Sensitive Bird and
Mammal Combining Zone is to insure that sensitive habitat areas identified in the
County's Goal 5 sensitive bird and mammal inventory as critical for the survival of
the northern bald eagle, great blue heron, golden eagle, prairie falcon, osprey, great
grey owl, and the Townsend's big-eared bat are protected from the effects of
conflicting uses or activities which are not subject to the Forest Practices Act.
• Surface Mining Impact Area: The purpose of the SMIA zone is to protect the
surface mining resources of Deschutes County from new development which
conflicts with the removal and processing of a mineral and aggregate resource while
allowing owners of property near a surface mining site reasonable use of their
property.
• Wildlife Area: The purpose of the Wildlife Area Combining Zone is to conserve
important wildlife areas in Deschutes County; to protect an important
environmental, social and economic element of the area; and to permit
development compatible with the protection of the wildlife resource.
Sidebar: Land Use Planning in Oregon
The foundation of statewide program for land use planning in Oregon is a set of 19
Statewide Land Use Planning Goals. The goals express the state's policies on land use and
related topics, like citizen involvement, housing, and natural resources.
Oregon's statewide goals are achieved through local comprehensive planning. State law
requires each city and county to adopt a comprehensive plan and the zoning and land-
division ordinances needed to put the plan into effect.
Local comprehensive plans must be consistent with the Statewide Planning Goals. Plans
are reviewed for such consistency by the state's Land Conservation and Development
Commission (LCDC). When LCDC officially approves a local government's plan, the plan is
said to be acknowledged. It then becomes the controlling document for land use in the
area covered by that plan.
The goals relevant to Deschutes County are:
• Goal 1 Citizen Involvement
• Goal 2 Land Use Planning
• Goal 3 Agricultural Lands
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• Goal 4 Forest Lands
• Goal 5 Natural Resources, Scenic and Historic Areas, and Open Spaces
• Goal 6 Air, Water and Land Resources Quality
• Goal 7 Areas Subject to Natural Hazards
• Goal 8 Recreational Needs
• Goal 9 Economic Development
• Goal 10 Housing
• Goal 11 Public Facilities and Services
• Goal 12 Transportation
• Goal 13 Energy Conservation
• Goal 14 Urbanization
City Coordination
Deschutes County includes the following jurisdictions, each with their own authority and
needs. The role of the County is largely one of coordination across these multiple
communities.
Deschutes County contains four incorporated cities. The County, per statute, is responsible
for coordinating with cities on growth related issues including urban growth boundary and
urban reserve planning. The County maintains intergovernmental agreements with each
city to define land use authority for lands outside of city limits and within urban growth
boundaries.
City of Bend - Bend is the largest incorporated area in Deschutes County. It is centrally
located in the county, with Highways 20 and 97 crossing paths through the center of the
city. Bend has experienced rapid growth in the last few years, accelerated by the COVID-19
pandemic and “Zoom Town” remote working trends. The 2022 estimated population of the
Bend UGB is 103,976. The Bend UGB accounts for most of the population share among all
UGBs in Deschutes County with a population of 225,619 (57.4% of the population) by 2072.
City of La Pine - The City of La Pine is located close to the southern edge of the county
along Hwy. 97. The current (2022) estimated population of the La Pine UGB is 2,736. The
population of the La Pine UGB is projected to increase by 87% to 5,129 in 2047. By 2072,
the population is projected to be 8,336.
City of Redmond - Redmond is located northeast of Bend with Hwy. 97 running through
the center of town. The current (2022) estimated population of the Redmond UGB is
37,342. The population of the Redmond UGB is projected to increase by 121% to 82,601 in
the next 50 years. By 2047 it is estimated that the population of the Redmond UGB will
increase to 60,060.
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City of Sisters - Sisters is located on the eastern edge of the Willamette National Forest
and Cascade Mountains. The current (2022) estimated population of the Sisters UGB is
3,437. The Sisters UGB is projected to increase by 130%, to 7,911 in 2047, and to 14,881 by
2072.
Tribal Coordination
In the Treaty of 1855, the Confederated Tribes of Warm Springs ceded approximately 10.2
million acres to the United States Government in exchange for creation of the Warm
Springs Reservation. As part of this agreement, the Tribes maintained rights to hunt, fish,
gather, and graze on these ceded lands. The map below identifies the location of these
ceded areas in Deschutes County, which primarily intersect with publicly owned lands.
Coordination with the Confederated Tribes of Warm Springs on growth and development
related issues is important to ensure consistency with these treaty rights.
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Key Community Considerations
The rapid pace of growth in Deschutes County and its impacts on urban, rural, natural, and
recreational areas has been one of the most significant – and at times the most
controversial – topics of discussion among the community. Some topics and comments
include:
• Strong desire by some for greater densities in urban areas, in order to accommodate
growth while preserving open space and resource land in rural areas.
• A similarly strong feeling by some that the cities in Deschutes County are becoming too
urban already.
• Concern about the amount and distribution of benefits and burdens created by
destination resorts and tourism-related activities in rural areas.
• Strong desire for interagency collaboration to manage growth in a coordinated manner.
With these ongoing conversations in mind, Deschutes County drafted and refined the
following goals and policies to guide the growth of our community for the next 20 years.
Goals and Policies
Goal 2.1: Maintain an open and public land use process in which decisions are based
on substantial evidence and a balancing of community needs.
• Policy 2.1.1. Balance the consideration of private property rights and the economic
impacts of land use decisions on property owners with other community goals
identified in the Comprehensive Plan.
• Policy 2.1.2. Review the Comprehensive Plan periodically in order to address
current conditions, issues, and opportunities.
• Policy 2.1.3. The Deschutes County Comprehensive Plan Map will be retained in
official replica form as an electronic map layer within the County Geographic
Information System and is adopted as part of this Plan.
• Policy 2.1.4. Implement Comprehensive Plan policies through the Community
Development Department's annual work plan and other actions by the Department
and the Board of County Commissioners.
• Policy 2.1.5. Explore methods to integrate carrying capacity into County land use
decision making.
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Goal 2.2: Coordinate and support regional planning efforts relating to growth,
natural resources, recreation, and major infrastructure investments.
• Policy 2.2.1. Periodically review and update intergovernmental and urban
management agreements to coordinate land use review on land inside urban
growth boundaries and outside city limits.
• Policy 2.2.2. Help coordinate regional planning efforts with other agencies on land
use policies and actions that impact their jurisdictions.
• Policy 2.2.3. Support the use of high value natural resource and recreational lands
for public purposes, whether through acquisition, easements, or other means.
• Policy 2.2.4. Support the implementation of long-range plans of Deschutes County
jurisdictions, incorporating elements of those plans into the County's
Comprehensive Plan as appropriate.
• Policy 2.2.5. Encourage cities to conduct, in collaboration with Deschutes County,
urban reserve planning to facilitate orderly and thoughtful management of growth
and infrastructure needs.
• Policy 2.2.6. Collaborate with federal agencies on land management issues
including homelessness, sustainable recreation expansion, and energy projects.
• Policy 2.2.7. Collaborate with tribal governments on regional issues, particularly
those that impact ceded lands or shared natural resources.
• Policy 2.2.8. Support efforts to reduce barriers to regional infrastructure projects
with community benefit while mitigating negative impacts.
• Policy 2.2.9. Support updates to unincorporated community area plans.
• Policy 2.2.10. In accordance with OAR 660-024-004 and 0045, Deschutes County,
fulfilling coordination duties specified in ORS 195.025, shall approve and update its
comprehensive plan when participating cities within their jurisdiction legislatively or
through a quasi-judicial process designate regionally significant sites.
• Policy 2.2.11: The County and City shall periodically review the agreement
associated with the Redmond Urban Reserve Area (RURA). The following land use
policies guide zoning in the RURA.
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a. Plan and zone RURA lands for rural uses, in a manner that ensures the
orderly, economic and efficient provision of urban services as these lands are
brought into the urban growth boundary.
b. Parcels shall be a minimum of ten acres.
c. Until lands in the RURA are brought into the urban growth boundary, zone
changes or plan amendments shall not allow more intensive uses or uses
that generate more traffic, than were allowed prior to the establishment of
the RURA.
d. For Exclusive Farm Use zones, partitions shall be allowed based on state law
and the County Zoning Ordinance.
e. New arterial and collector rights-of-way in the RURA shall meet the right-of-
way standards of Deschutes County or the City of Redmond, whichever is
greater, but be physically constructed to Deschutes County standards.
f. Existing and future arterial and collector rights-of-way, as designated on the
County’s Transportation System Plan, shall be protected from development.
g. A single-family dwelling on a legal parcel is permitted if that use was
permitted before the RURA designation.
Additionally, the County will coordinate planning efforts and development goals
with the City of Redmond prior to bringing County-owned property into Redmond’s
urban growth boundary.
Goal 2.3: Manage county-owned lands to balance the needs of the community as
articulated in the goals and policies of this Plan and other supporting planning
documents.
• Policy 2.3.1. Manage lands with a park designation consistent with the goals and
policies in Chapter 5 Natural Resources.
• Policy 2.3.2. Support the efforts of park districts, state and/or federal agencies to
identify additional properties along rivers, streams, or creeks, or containing
significant wildlife, scenic resources, or open space resources to designate as park
land.
Goal 2.4: Minimize onerous barriers to land use application and development review
processes.
• Policy 2.4.1. Explore opportunities to build or obtain specialty planning knowledge
and experience among staff within CDD in related fields such as wildlife, natural
resources, and/or agricultural practices.
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• Policy 2.4.2. Explore measures to reduce development costs for projects related to
agriculture and addressing houselessness, including fee reductions and expedited
land use applications.
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Chapter 3: Farm and Forest Resources Page 1
Deschutes County Comprehensive Plan
Chapter 3: Farm and Forest Resources
Opportunities, Challenges, and Considerations.
Farm and forestry resources and operations continue to play an important role in the
character and economy of Deschutes County. However, a variety of ongoing and forecasted
trends will impact the viability and vitality of these industries and the people who
contribute to them. A number of these trends and challenges are described below and
more information about some issues is found in the Water Resources section of this Plan
(see Chapter 5: Natural Resources).
Prevalence of small farming operations and hobby farms. The 2017 Census of
Agriculture profiles Deschutes County as primarily consisting of small acreage, hobby farms
and other relatively small agricultural operations. As of 2017, there were approximately
1,484 farms, an increase of 16% from 2012. Although the average size of a farm in
Deschutes County is 91 acres, the majority of acreage (about 85%) is in farms of 10 acres or
less in size.
Marginal or low productivity soils. While a large proportion of the County is zoned for
exclusive farm use, much of the land in these areas has marginal soils which provide
limited productivity, particularly for higher value crops. Limited access to water rights and
irrigation can further hamper productivity in some areas. Deschutes County attempted to
reclassify certain agricultural lands through a nonresource lands program. This approach
was rejected at the state level. Since that time, some landowners have successfully
redesignated property, primarily to residential zones, through an applicant-initiated
process.
Financial challenges. According to the 2017 Agricultural Census, agricultural producers in
Deschutes County are often operating in the red. The per-farm average of market value of
products sold was $19,386, a 21% increase from 2012, and average production expenses of
$34,748. This results in a deficit of approximately $12,866 per farm per year. Government
payments help cover a portion of this deficit, with the average farm receiving $7,477 in
assistance. The costs of operating continue to be a major challenge from small family
operations, resulting in approximately 46% of farms in Deschutes County reporting under
$2,500 in sales.
Declining forest products industry. Approximately 1,032,436 acres of Deschutes County
area zoned for Forest Use. Historically, forestry on public and private land was a primary
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industry in Central Oregon with key mill sites along the Deschutes River in Bend. Over time,
species protections, international competition, and new technologies have reduced the
overall footprint of the timber industry in Central Oregon. Recently, land uses are shifting
toward recreation and residential development in these natural resource areas.
Water supply and irrigation. Much of Deschutes County is served by six irrigation districts
– these are special entities created for the purpose of delivering water to their patrons.
These districts are effectively non-profit water user associations. In addition to irrigation,
these districts also supply other services including municipal, industrial, and pond
maintenance. The total water available for irrigation and other human uses in Deschutes
County is fixed under the current water regime. No additional water rights can be issued
without the decommissioning of a previous claim. Therefore, there is little opportunity to
expand irrigated farming in the County. Existing farms with senior water rights in general
have relatively generous irrigation rights, which have rarely been fully utilized, and are
expected to have sufficient water to cope with increasing temperatures and drought
conditions in the future. Junior water right holders, associated with Arnold Irrigation District
and North Unit Irrigation District, have recently seen challenges with water delivery due to
limited availability and drought.
[Map of districts]
Conflicts with other uses. Agricultural uses continue to be affected by conflicts with
adjacent or surrounding non-farm uses (primarily new rural homes). In some cases, new
residents object to impacts of common farming practices, such as noise, dust, and odors
related to farm activity.
Changes in climate conditions. A number of forecasted trends may impact agriculture
and forestry resources and production either positively or negatively by the middle of this
century, including the following:
• Drought conditions. Increasing temperatures will lead to an increase in the length of
the growing season and a slight change in the cold hardiness zones throughout the
County. The ongoing patterns of drought and lack of sufficient water for irrigation in
some districts is likely to be exacerbated by increasing temperatures.
• Growing season. Projected increases in average temperature will have the effect of
drastically increasing the length of the growing season. For example, currently the
region around Bend has a growing season of just under 100 days a year, but that
will increase by more than a month to between 133 to 143 days a year. The eastern
part of the county will likely see an even more marked increase from a brief 35 days
to between 85 and 100 days. This may increase potential agricultural productivity in
parts of the County.
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• Water demand and availability. Water demand is likely to increase due to increased
temperatures. Warmer days and warmer nights will increase evaporation and
transpiration, requiring an increase in irrigation and recreational consumption.
Because the total volume of water available for agricultural and human use is fixed,
strategies to decrease water usage (capping irrigation channels, irrigation timing
strategies, water conservation) will become more crucial.
Context
Agriculture and ranching operations in Deschutes County vary widely based on water
availability, soil, and microclimate. The following subzones were created through a
commercial farm study conducted in 1992. This study concluded that irrigation is a key
factor to viability of operations, and opted for smaller acreages than allowed by state law to
provide additional flexibility.
Subzone Name Minimum Parcel Size (for
farm divisions and farm-
related dwellings)
Profile
Lower Bridge 130 Irrigated field crops, hay
pastures
Sisters/Cloverdale 63 Irrigated alfalfa, hay and
pastures, wooded grazing
and some field crops
Terrebonne 35 Irrigated hay and pasture
Tumalo/Redmond/Bend 23 Irrigated pasture and some
hay
Alfalfa 36 Irrigated hay and pasture
La Pine 37 Riparian meadows, grazing
and meadow hay
Horse Ridge East 320 Rangeland grazing
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Additional information about farm and forest resources is provided in the tables and charts
below.
Figure 1. Land in Farms by Use
Figure 2. Farms by Value of Sales
23%
57%
10%
10%
LAND IN FARMS BY USE
Cropland Pastureland Woodland Other
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Figure 3. Farms by Size
Forest Lands
46%
16%
15%
12%
5%
3%3%
FARMS BY VALUE OF SALES
Less than $2,500 $2,500 to $4,999 $5,000 to $9,999 $10,000 to $24,999
$25,000 to $49,999 $50,000 to $99,999 $100,000 or more
597 farms
671 farms
151 farms
40 farms
13 farms
12 farms
1 to 9
10 to 49
50 to 179
180 to 499
500 to 999
1,000+
0 5 10 15 20 25 30 35 40 45 50
AC
R
E
A
G
E
PERCENTAGE OVERALL
Farms by Size (acres)
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Chapter 3: Farm and Forest Resources Page 6
Deschutes County classifies Forest land in one of two zones. Forest 1 zoning is intended for
land that is primarily used for forest management or commercial forestry, with a lot size
over 160 acres, and not developed with residential or non-forest uses. Forest 2 zoning is
intended for land that does have residential or non-forest uses, is less than 160 acres, and
may contain roads or other public facilities that serve the property.
State regulations limit residential and non-forestry related development on forest lands
and the County sees only a few applications for development in these areas each year.
Even with this limitation on development, forest managers and service providers continue
to express concern with wildfire risk associated with residential development in heavily
wooded areas.
Most lands in either of these classifications within Deschutes County are federally owned
and managed by the US Forest Service. Historically, forest lands were used for timber
production. As timber harvesting decreases, other uses for forest lands are emerging. State
regulations permit five general types of uses, including forest operations; environmental,
agricultural or recreational uses; two types of dwellings and locally dependent uses.
Permitted uses are defined and clarified in OAR 660-006. The following uses have
continued to be
Secondary forest products (forest operations): There is an increasing use of secondary
forest products, such as hog fuel (chipped wood) or wood slash. This type of product is
generally seen as providing dual benefit, by providing economic opportunity while also
reducing wildfire risk through thinning projects.
Alternative Energy: Biomass is an emerging technology for renewable energy and can also
be integrated with these products. The first biomass facility in the County is currently under
development through a partnership with Mt. Bachelor Ski Resort and the US Forest Service.
Recreation (environmental, agricultural and recreation uses): The proximity of federal
forests for hiking, mountain biking, skiing, hunting, fishing, wildlife viewing and other
outdoor recreation draws tourists and residents alike. Skyline Forest, a 33,000-acre
privately owned property in the Forest 1 zone has been identified as a potential community
asset, with several groups and nonprofits seeking to acquire and utilize the property as a
community forest. In 2022, Deschutes Land Trust facilitated a community visioning process
to identify preferred community uses if land were to be purchased as a privately held
recreational asset.
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Key Community Considerations.
Given the range of issues and conditions discussed above and, this plan includes a variety
of policies to support farm and forest operations in Deschutes County. Additional related
policies also are found in Chapter 2: Land Use and Regional Coordination, Chapter 5:
Natural Resources, and Chapter 9: Economic Development. These strategies are
underpinned by the following results of Comprehensive Plan outreach efforts.
• Community members opposed rezoning low productivity farmland with poor soil to
allow greater opportunities for housing, while supporting rezoning of this land to
preserve open space.
• There is strong support for conduct educational outreach to encourage water
conservation and on-farm efficiency measures.
• Community members also strongly support allowing greater flexibility for income-
producing supplemental activities on farms such as farm-to-table dinner, farm
stands, weddings, or similar events.
• Outreach participants expressed support for investment in the agricultural economy
through grants or exploring a farmland conservation program.
Farm and Forest Resources Goals and Policies
Farm Resources Goals and Policies
Goal 3.1: Preserve and maintain agricultural lands, operations, and uses to support
Deschutes County’s agricultural economy
• Policy 3.1.1. Retain agricultural lands through Exclusive Farm Use zoning.
• Policy 3.1.2. Continue to apply Exclusive Farm Use sub- consistent with the County's
most up-to-date adopted studies of agricultural land and as implemented through
the County Development Code.
• Policy 3.1.3. Develop comprehensive plan policy criteria and code to provide clarity
on when and how EFU parcels can be converted to other designations.
• Policy 3.1.4. Regularly review farm regulations to ensure compliance with changes
to State Statute, Oregon Administrative Rules and case law.
Goal 3.2: Promote a diverse, sustainable, and thriving agricultural sector.
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• Policy 3.2.1. Encourage farming by promoting the raising and selling of crops,
livestock and/or poultry.
• Policy 3.2.2. Support agriculture through the use of grant funds, research, and
other resources dedicated to agricultural community members and stakeholders,
including but not limited to farmers, agricultural researchers, farm bureaus, and
other organizations in studying and promoting economically viable agricultural
opportunities and practices.
• Policy 3.2.3. Support and encourage small farming enterprises through a variety of
related strategies and programs, including, but not limited to, niche markets,
organic farming, food council, buy local, farmers markets, farm-to-table activities,
farm stands or value-added products, or other programs or strategies.
• Policy 3.2.4. Work cooperatively with irrigation districts, public agencies and
representatives, and landowners to promote and support agricultural uses and
operations, including through use of rural reserves, conservation easements,
transfer of development rights programs, land acquisition, and other preservation
strategies.
• Policy 3.2.5. Support efforts to control noxious weeds and invasive species.
• Policy 3.2.6. Continue to review and revise County Code as needed and consistent
with state rules and regulations to permit alternative and supplemental farm
activities that are compatible with farming, such as agri- tourism or commercial
renewable energy projects.
• Policy 3.2.7. Work with the State to review and revise their regulations when a
desired alternative or supplemental use identified by the County is not permitted by
State regulations.
• Policy 3.2.8. Use land use policy and development code requirements, including
right-to-farm provisions, as well as coordination with other jurisdictions to minimize
conflicts between residential uses and agricultural uses and continue to promote
the viable operation of agricultural uses.
• Policy 3.2.9. Provide resources such as technical assistance and access to grants to
support on-site efficiency upgrades relating to agriculture.
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Goal 3.3: Ensure Exclusive Farm Use policies, classifications, and codes are consistent
with local and emerging agricultural conditions and markets.
• Policy 3.3.1. Identify and retain accurately designated agricultural lands.
• Policy 3.3.2. Continue to explore new methods of identifying and classifying
agricultural lands.
o a. Apply for grants to review and, if needed, update farmland designations.
o b. Study County agricultural designations considering elements such as water
availability, farm viability and economics, climatic conditions, land use
patterns, accepted farm practices, and impacts on public services.
o c. Lobby for changes to State Statute regarding agricultural definitions
specific to Deschutes County that would allow some reclassification of
agricultural lands.
• Policy 3.3.3. Address land use challenges in the Horse Ridge subzone, specifically:
o a. The large number of platted lots not meeting the minimum acreage;
o b. The need for non-farm dwellings and location requirements for farm
dwellings;
o c. Concerns over the impact on private property from off-road vehicles,
facilities, and trails located on adjacent public lands.
• Policy 3.3.4. Continue to work with the State to review and revise accessory farm
dwelling requirements to address the needs of local farmers.
• Policy 3.3.5. Encourage coordination between agricultural interests and fish and
wildlife management organizations, including public agencies, non-governmental
organizations and others.
• Policy 3.3.6. Explore the evaluation and potential redesignation of lands with a farm
designation and poor soils and low productivity for protected open space,
development of needed housing, or other uses that support community goals as
follows.
o A. Allow comprehensive plan and zoning map amendments, including for
those that qualify as non-resource land, for individual EFU parcels as allowed
by State Statute, Oregon Administrative Rules and this Comprehensive Plan.
o B. Explore creation of a new zoning classification intended to balance value
of high desert environment while allowing for limited housing opportunities
and applying this designation through coordination with interested and
willing property owners.
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Forest Resources Goals and Policies
Goal 4: Protect and maintain forest lands for multiple uses and objectives, including
forest products, watershed protection, conservation, recreation, wildlife habitat
protection, carbon sequestration, forest health, and wildfire resilience.
• Policy 4.1. Retain forest lands through Forest 1 and Forest 2 zoning.
• Policy 4.2. To conserve and maintain unimpacted forest lands, retain Forest 1
zoning for those lands with the following characteristics:
a. Consist predominantly of ownerships not developed by residences or non-
forest uses;
b. Consist predominantly of contiguous ownerships of 160 acres or larger;
c. Consist predominantly of ownerships contiguous to other lands utilized for
commercial forest or commercial farm uses;
d. Are accessed by roads intended primarily for forest management; and
e. Are primarily under forest management.
• Policy 4.3. To conserve and maintain impacted forest lands, retain Forest 2 zoning
for those lands with the following characteristics:
a. Consist predominantly of ownerships developed for residential or non-forest
uses;
b. Consist predominantly of ownerships less than 160 acres;
c. Consist of ownerships generally contiguous to tracts containing less than 160
acres and residences, or adjacent to acknowledged exception areas; and
d. Provide a level of public facilities and services, including roads, intended
primarily for direct services to rural residences.”
• Policy 4.4. Notwithstanding any other quasi-judicial plan or zone change criteria,
lands designated as Forest under this Plan and zoned Forest 2 may upon application
be redesignated and rezoned from Forest 2 to Exclusive Farm Use if such lands:
a. Do not qualify under State Statute for forestland tax deferral,
b. Are not necessary to permit forest operations or practices on adjoining lands
and do not constitute forested lands that maintain soil, air, water and fish
and wildlife resources,
c. Have soils on the property that fall within the definition of agricultural lands
as set forth in Goal 3,
d. Are a tract of land 40 acres or less in size,
e. Do not qualify under State Statute and the terms of the Forest 2 zone for a
dwelling, and;
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f. Were purchased by the property owner after January 1, 1985 but before
November 4, 1993.
Such changes may be made regardless of the size of the resulting EFU zoning
district. Such changes shall be processed in the same manner as other quasi-
judicial plan or zoning map changes.
• Policy 4.5. Ensure that criteria for and designation of Forest Lands are consistent
with state administrative rules and statutes.
• Policy 4.6. Coordinate and cooperate with the U.S. Forest Service, the Bureau of
Land Management and other public agencies to promote sustainable forest uses,
including recreation and biomass facilities, on public forest land, including currently
adopted Forest and Land Management Plans prepared by the US Forest Service
(USFS) and US Bureau of Land Management (BLM).
a. Using the Deschutes National Forest Land and Resource Management Plan,
or its successor, as the basis for mutual coordination and cooperation with
the U.S. Forest Service;
b. Using the Prineville Bureau of Land Management Upper Deschutes Resource
Management Plan, or its successor, as the basis for mutual coordination and
cooperation with the Bureau of Land Management.
• Policy 4.7. Notify affected agencies and tribal governments when reviewing land
use applications and proposals for development that could impact Federal or State
forest lands.
• Policy 4.8. Support economic development opportunities that promote forest
health, create opportunities for local production of related forest products, and
reduce the prevalence of invasive plant species that adversely affect forest health
and soil quality.
• Policy 4.9. Provide input on public forest plans that impact Deschutes County.
• Policy 4.10. Coordinate with community stakeholders to support forest
management plans and projects that are consistent with the policies of this chapter
and with local community forest management and wildfire protection plans.
a. Promote forest health and resilience to wildfire.
b. Contribute to public safety by treating wildland hazardous fuels particularly
in the designated Wildland Urban Interface as identified in the Community
Wildfire Protection Plans described in Chapter 13, Natural Hazards, of this
Plan.
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c. Retain fish and wildlife habitat.
• Policy 4.11. Continue to review and revise the County Code as needed to ensure
development in forest zones minimizes and/or mitigates impacts on fish and wildlife
habitat, forest health, and wildfire resiliency
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Chapter 4: Aggregate and Mineral Resources Page 1
Deschutes County Comprehensive Plan
Draft Comprehensive Plan Chapters
Chapter 4: Aggregate and Mineral Resources
Opportunities, Challenges, and Considerations.
Surface mining provides non-renewable resources, such as pumice, cinders, building stone,
sand, gravel and crushed rock. The extraction of these materials provides employment as
well as products important to local economic development. However, mining of mineral
and aggregate resources creates noise, dust and traffic and potential pollution that can
conflict with neighboring land uses, particularly residential uses.
Oregon Department of Geology and Mineral Industries (DOGAMI) regulates surface mining
sites in Deschutes County. The last available published analysis of mineral resources in
Deschutes County was completed by DOGAMI in 1976. No updates have been completed
during that time due to limited staff. A continued challenge is monitoring the availability of
this resources.
When a mineral resource is exhausted, the site is required to submit a reclamation plan to
Deschutes County and DOGAMI. This plan identifies how the site will be closed for mineral
operations, environmental impacts will be mitigated, and steps to be taking to return the
site to a new use. As mineral and aggregate resources are exhausted, property owners
often rezone the site from the “Surface Mine” designation to a new zone (often a residential
zone), to allow for new development to occur. Coordination with DOGAMI and property
owners is imperative to ensure this reclamation process occurs in an efficient and
environmentally focused manner.
Context
Surface mining is protected through Statewide Planning Goal 5, Natural Resources, Scenic
and Historic Areas and Open Spaces and the associated Oregon Administrative Rule (OAR)
660-023 (this rule replaced 660-016 in 1996). Mineral and aggregate resources are included
on the list of Statewide Goal 5 resources that the County must inventory and protect.
The County maintains an inventory of surface mining sites as part of its Goal 5 program.
There are currently 59 mining sites identified in the Deschutes County GIS data, and 8 sites
that have been reclaimed.
Mining sites are subject to a Surface Mining Impact Area Combining Zone that applies
within ½ mile of the mining site boundary. This combining zone limits new uses and
expansion of existing uses that may be impacted by mining activities and are not in
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compliance with the site-specific Economic, Social, Environmental, and Energy (ESEE)
analysis for nearby mining sites.
[Map of aggregate sites, buffer zones]
Surface Mining in 2023
• Number of Active Mining Sites: 59
• Number of Reclaimed Sites: 8
• Acres in Surface Mining Zone (including Black Butte Ranch Surface Mine/Limited Use
Zone): 9235.25
• Acres in the Surface Mining Impact Area Combining Zone (SMIA): 58,881
Source: Deschutes County GIS information
Key Community Considerations.
Transportation agencies expressed concern regarding the impact of depleting mineral
resources on road operations, including the use of cinder for winter maintenance and
other resources for use in new road projects. The topic of mineral and aggregate resources
was not a focus of community discussion as part of this Comprehensive Plan update,
though the priorities of a diverse economy and protected natural areas for habitat and
open space are interrelated with this subject. The following goals and policies represent a
balance of these community interests.
Goals and Policies
Goal 4.1: Protect and utilize mineral and aggregate resources while minimizing
adverse impacts of extraction, processing and transporting the resource.
• Policy 4.1.1: Implement adopted Goal 5 Surface Mining inventories.
• Policy 4.1.2: Coordinate with the Oregon Department of Geology and Mineral
Industries (DOGAMI) on mining regulations and studies.
• Policy 4.1.3: Balance protection of mineral and aggregate resources with conflicting
resources and uses.
• Policy 4.1.4: Support the required reclamation of mining sites following mineral
extraction.
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Chapter 5: Natural Resources Page 1
Deschutes County Comprehensive Plan
Draft Comprehensive Plan Chapters
Chapter 5: Natural Resources
Opportunities, Challenges, and Considerations
Natural resources in Deschutes County are abundant. Wildlife, scenic views of forests and
peaks, and open spaces to preserve habitat and native vegetation are among the County’s
top assets.
Oregon Statewide Planning Goal 5 governs Natural Resources, Scenic and Historic Areas,
and Open Spaces. Through this goal, the County maintains inventories and regulatory
protections to preserve these many resources. These regulations are created by weighing
Economic, Social, Environmental, and Energy (ESEE) consequences associated with
protection of a resources.
Topics covered in this chapter include:
• Protected Wildlife Resources
• Open Space and Scenic Views
• Water Resources
Protected Wildlife Resources
Deschutes County has some of the broadest and most robust wildlife protections in the
state, covering a variety of species. The County has development protections within and
surrounding numerous wildlife habitats. Some of these habitats have mapped geographic
boundaries such as Deer Winter Range, Deer Migration Range, Antelope Habitat, Golden
Eagle – Sensitive Bird Habitat, and Elk Habitat.
Other species are commonly found in protected riparian areas, such as wetlands and
floodplains. Deschutes County contains unmapped habitats for fish, fur-bearing animals,
waterfowl, and upland game birds.
A continued challenge to wildlife resources is rural development and impacts on habitat.
Mule deer are seeing steady declines, approximately 10% each year per Oregon
Department of Fish and Wildlife biologists. These declines in population are due to a variety
of factors, including but not limited to loss of habitat, predation, and disease.
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Chapter 5: Natural Resources Page 2
Scenic Views and Open Space
The 2010 Greenprint for Deschutes County listed protection of scenic viewsheds as one of
the top five community priorities for conservation in the rural County, and the protection of
open space has been one of the key topics of discussion during the most recent update of
this Comprehensive Plan. The County has several designated scenic corridors, including
several scenic bikeways, highways, and wild and scenic river sections.
[Images of protected scenic corridors]
With close to 80% of the County under public ownership, many community members enjoy
access to natural resources on public lands. A perennial issue among community members
is preserving scenic views and open spaces closer to home on undeveloped private
properties.
Water Resources
The high desert climate of Central Oregon poses many challenges with water supply and
allocation. Water laws are seen as antiquated by many and issues related water levels in
private residential wells, irrigation allocation
to farmers, and protection of habitat areas
for dependent species arise frequently.
A 2021 report by the Oregon Department of
Water Resources found that groundwater
levels through Deschutes County are
declining, by as much as 50 feet of total
decline in the central part of the Basin. This
decline is considered “excessively declined”
per state statute and is attributed toward a
shift in overall drier conditions since the late
1990s, a warming trend in the basin, and
decreased snowpack. Ongoing development
and piping of canals (which limits
groundwater recharge while conserving
canal water) also exacerbate the issue.
Deschutes County has limited jurisdiction of
water use, instead playing a coordination
role with irrigation districts, water users,
and owners of private wells.
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Context
Protected Wildlife Resources
Wildlife diversity is a major attraction of Deschutes County. The key to protecting wildlife is
protecting the habitats each species needs for food, water, shelter, and reproduction. Also
important is retaining or enhancing connectivity between habitats to protect migration
routes and avoid isolated populations.
In considering wildlife habitat, counties rely on the expertise of the Oregon Department of
Fish and Wildlife (ODFW) and U.S. Fish and Wildlife Service (USFWS). Those agencies provide
information for the required wildlife inventory and recommendations on how to protect
wildlife habitat on private lands.
Statewide Planning Goal 5
Oregon land use planning protects wildlife with Statewide Planning Goal 5 and the
associated Oregon Administrative Rule (OAR) 660-023. Goal 5 includes a list of resources
which each local government must inventory, including wildlife habitat.
The Goal 5 process requires local governments to inventory wildlife habitat and determine
which items on the inventory are significant. For sites identified as significant, an Economic,
Social, Environmental and Energy (ESEE) analysis is required. The analysis leads to one of
three choices: preserve the resource, allow proposed uses that conflict with the resource or
strike a balance between the resource and the conflicting uses. A program must be
provided to protect the resources as determined by the ESEE analysis.
Appendix A of the Comprehensive Plan contains the full ESEE ordinances for the County’s
protected Goal 5 resources.
A summary of Deschutes County’s wildlife protection programs follows:
Mule Deer: Migration corridors and winter range are essential habitats needed to support
mule deer in Deschutes County. The Bend/La Pine migration corridor is approximately 56
miles long and 3 to 4 miles wide and parallels the Deschutes and Little Deschutes Rivers.
The corridor is used by deer migrating from summer range in the forest along the east
slope of the Cascades to the North Paulina deer winter range. Deschutes County adopted a
“Deer Migration Priority Area” based on a 1999 ODFW map submitted to the South County
Regional Problem Solving Group. This specific sub-area is precluded from destination
resorts.
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The ODFW identified the Metolius, Tumalo and North Paulina deer winter ranges during
Deschutes County’s initial comprehensive plan creation. The boundaries of these winter
ranges are shown on the Big Game Sensitive Area map in the 1978 Comprehensive Plan
and have been zoned with the Wildlife Combining Zone since 1979. The winter ranges
support a population of approximately 15,000 deer. In 1992, ODFW recommended deer
winter range in the northeast corner of the county, in the Smith Rock State Park area, be
included in the Deschutes County inventory and protected with the same measures applied
to other deer winter range. This area was officially included and mapped on the Wildlife
Combining Map when Ordinance 92-040 was adopted by the Board of County
Commissioners.
Sensitive Birds: Nest sites for the northern bald eagle, osprey, golden eagle, prairie falcon,
great grey owl, and great blue heron rookeries are inventoried by the County. The area
required for each nest site varies between species. The minimum area required for
protection of nest sites has been identified by the ODFW in their management guidelines
for protecting colony nesting birds, osprey, eagles, and raptor nests.
Elk: The Land and Resource Management Plan for the Deschutes National Forest identifies
6 key elk habitat areas in Deschutes County. The ODFW also recognizes these areas as
critical elk habitat for calving, winter or summer range. The following areas are mapped on
the Big Game Habitat Area map and in the Deschutes National Forest Land and Resource
Management Plan:
• Tumalo Mountain
• Kiwa
• Ryan
• Crane Prairie
• Fall River
• Clover Meadow
Antelope: The Bend and Ochoco District offices of the ODFW provided maps of the
antelope range and winter range. The available information is adequate to indicate that the
resource is significant. The antelope habitat is mapped on Deschutes County’s Big Game
Habitat-Wildlife Area Combining Zone Map.
[Map – wildlife zones]
Scenic Views and Open Space
Deschutes County has a rich abundance of open space. Open spaces are generally
undeveloped areas that are being maintained for some other purpose, such as farms,
parks, forests, or wildlife habitat. Besides the value that stems from the primary use of the
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land, open spaces provide aesthetically pleasing undeveloped landscapes. Because these
areas are undeveloped, they also provide additional benefits such as water recharge,
buffers from habitat, and safety zones from natural hazards such as flooding.
Open spaces and scenic views are an important draw for visitors and are often mentioned
as important to the area’s quality of life. The backdrop of the Cascade Mountains, with its
vast forest and sagebrush landscapes and riparian and wetland habitats, all provide an
inspirational setting for visitors and residents alike. Statewide Planning Goal 5
recommends, but does not require, creating an inventory and protections for open spaces,
scenic views and sites. Oregon Administrative Rule (OAR) 660-023 defines open space
designations as parks, forests, wildlife preserves, nature sanctuaries, and golf courses.
Open spaces are protected through an Open Space and Conservation map designation and
zoning district. Scenic view protection is implemented through the Landscape Management
Combining Zone regulations.
[Map: Landscape Management Roads and Rivers, Open Space and Conservation
districts]
Water Resources
Deschutes County’s Role in Water Management is described below.
Regulatory Agencies. The primary state regulator of water availability is the Oregon Water
Resources Department (OWRD). The Oregon Department of Environmental Quality (DEQ)
leads the monitoring and enforcement of water quality standards. The Oregon DEQ is
required to comply with the Federal Environmental Protection Agency.
Statewide Planning Goals. There are two Statewide Planning Goals relating to the
protection of water resources. Goal 5 (Natural Resources, Scenic and Historic Areas, and Open
Spaces) requires an inventory and protection of the following water resources. In Deschutes
County, these inventories have been completed and acknowledged by the Land
Conservation and Development Commission (See Appendix A for Goal 5 Inventories). Goal
6 (Air, Land, and Water Resources Quality) requires comprehensive plans to be consistent
with state and federal pollution regulations.
The policies in this section relating to water provide the framework for evaluating land use
actions and define the responsibility of the County to work in partnership with cities,
agencies, non-profits and others to achieve efficient use of water resources and effective
management of water quality in the Upper Deschutes Basin.
It is important to underscore that the primary water resource management process occurs
outside of the state land use planning system. Oregon land use and water management
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are not integrated; there are no overarching administrative rules that consider statewide
water management in conjunction with land use planning.
Deschutes Basin Hydrogeology
The Deschutes River Basin, from its headwaters to the Columbia River, encompasses
10,400 square miles of the north central part of the State. Nearly 91% of Deschutes County
lies within the Deschutes Basin. The upper Deschutes River Basin is characterized by recent
volcanic activity and strong and rapid groundwater flows. The geologic conditions lead to a
strong connection between surface and ground water (see also Section 3.10).
Groundwater flows eastward from the Cascade Range through permeable volcanic rocks
out into the basin and then generally northward. Groundwater recharge comes from
precipitation in the Cascade Range, inter-basin flow and leaking irrigation canals. No long-
term water-level declines attributable to groundwater pumping were found in the upper
Deschutes Basin. Approximately one-half of the ground water flowing from the Cascade
Range discharges to spring-fed streams along the margins of the range. The remaining
groundwater flows through the subsurface, and eventually discharges to streams near the
confluence of the Deschutes, Crooked, and Metolius Rivers.
The large amount of groundwater discharge in the confluence area is primarily caused by
geologic factors. The Deschutes River flows north through permeable rock until it hits a
region of low-permeable rock near the confluence area. There the permeable rock strata
terminates, forcing water to the surface. Virtually all of the regional groundwater in the
upper Deschutes Basin discharges to streams south of the area where the Deschutes River
enters this low- permeability terrain, at roughly the location of Pelton Dam.
Water Use
The Deschutes aquifer has a recharge rate of roughly 3 million acre feet per year. The
current water usage comes to roughly 720 thousand acre feet per year. Roughly 40 to 50
thousand acre feet of that water goes toward municipal and non-agricultural use, while the
remaining goes toward crop and pasture irrigation. The majority of that municipal water
use goes towards outdoor watering (gardens, sports fields, etc.). As an example: the City of
Bend uses 5 times as much water in the summer as in the winter.
Snowpack
Although there is expected to be a slight increase in winter precipitation by the middle of
the century, snowpack is expected to decline throughout the Cascades. The decline in
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snowpack (which has already been observed, see figure below)1 is due largely to increasing
temperatures causing some precipitation to fall as rain rather than snow. This has the
double effect of decreasing snowfall and melting the previously fallen snow. At the Mt
Bachelor Ski Resort, April snowpack is expected to decline between 11% and 18% by the
middle of the century and between 18% and 43% by the end of the century.
Snowpack Change 1955-2016
Gain | Loss
Lava Sponge
Deschutes county is fortunate to be underlain on the Western side by relatively young
volcanic lava sponge. This sponge is highly porous and is able to absorb large quantities of
water during the wet season and gradually release it via abundant springs along the
eastern slope. The great advantage this provides is that the resulting summer flows into
the Deschutes basin are not as dependent on overground flow of snowmelt, and therefore
are expected to maintain a relatively stable water supply even as snowpack decreases into
the next century.
Groundwater
The groundwater aquifer is roughly 1000 feet thick and is replenished yearly by the
Cascades’ precipitation. Recent years of “exceptional drought” have lowered the aquifer
level by roughly 30 feet, resulting in a small percentage of wells running dry, and raising
concerns about available groundwater for new developments. Although it is likely that
some wells will need to be deepened to cope with increasing temperatures and drought
frequency, there is likely to remain ample sustainable groundwater supply.
Because the groundwater in the Deschutes Basin is directly connected to the flow of the
Deschutes River, all additional groundwater use must be mitigated by decreased use of
11 Adapted from Mote, P.W., Li, S., Lettenmaier, D.P. et al. Dramatic declines in snowpack in the
western US. npj Clim Atmos Sci 1, 2 (2018). https://doi.org/10.1038/s41612-018-0012-1
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groundwater elsewhere through the Oregon Water Resources Department’s Deschutes
Groundwater Mitigation
program. This can include
retiring of other water rights,
or the release of water into
the waterway. A mitigation
permit must be obtained
before a new groundwater
right can be accessed. 2
Reservoirs
The majority of the irrigation in Deschutes County comes from reservoirs which are mostly
spring fed from the Cascades. Reservoirs serve the dual purpose of supplying water for
irrigation and ensuring sufficient streamflow in the lower Deschutes River. The water levels
in these lakes have been low in recent years due to drought in the region. When water is
limited, the supply rate is determined by the age of water rights, with the more senior
water permits having priority over the youngest. The Swalley and Central Irrigations are the
most senior in the county, while the North Union Irrigation District is the most junior.
Algal Blooms
Algal blooms have been a problem for recreational lakes in the cascade mountains in recent
years. Since 2007, the Wickiup Reservoir, Crane Prairie Reservoir, and Paulina Lake have
experienced algal or bacteria blooms that required a health advisory.3
Although not all algal blooms are toxic, they interfere with recreation and aesthetic
enjoyment. In general, algal blooms are caused by elevated nutrients, elevated
temperature, and still water. Algal blooms in other parts of the state have led to drinking
water concerns, but Deschutes County cities are supplied by groundwater and so the risk in
algal blooms is mainly to recreation.
Key Community Considerations.
Natural resources for recreation, passive enjoyment, habitat protection, and economic
production are a fundamental part of life in Deschutes County, and as such were a key part
of the community conversation in this Comprehensive Plan update. Highlights of this
conversation include:
2 Information from the Oregon Water Resources Board Mitigation Program.
3
https://www.oregon.gov/oha/PH/HEALTHYENVIRONMENTS/RECREATION/HARMFULALGAEBLOOMS/
Pages/archive.aspx
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• Concern about the ability of the County’s water supply to accommodate more
residents, visitors, and water-intensive jobs in the future
• Interest in a re-evaluation of water rights for urban, agricultural, and “hobby farm”
uses.
• A robust discussion around wildlife inventories, habitat conservation, open space
regulations, and impacts on private property owners. The topic of habitat
conservation came up frequently, with most respondents saying that further
protections are needed. However, there was some push back related to the burden
these protections may put on property owners.
Goals and Policies
Water Policies
Goal 5.1: Develop regional, comprehensive water management policies that balance
the diverse needs of water users and recognize Oregon water law.
• Policy 5.1.1. Participate in Statewide and regional water planning including, but not
limited to:
o a. Work cooperatively with stakeholders, such as the tribal governments, the
US Fish and Wildlife District, irrigation districts, Oregon Water Resources
Department (OWRD), the Deschutes Basin Water Collaborative, the County
Soil and Water Conservation District, and other non-profit water
organizations and stakeholders;
o b. Support the development and implementation of Upper Deschutes Basin
Study, Habitat Conservation Plan, and Biological Opinion from National
Marine Fisheries Service for the middle and lower Deschutes Rivers.
• Policy 5.1.2. Support grants for water system infrastructure improvements,
upgrades, or expansions.
• Policy 5.1.3. Consider potential impacts on water quality and availability in
surrounding areas as part of the siting, planning, and approval processes for
Destination Resorts and other large-scale developments.
Goal 5.2: Increase water conservation efforts.
• Policy 5.2.1. Support efficient water use through targeted conservation, educational
and, as needed, regulatory or incentive programs.
o a. Encourage new development incorporates efficient water use practices for
all water uses.
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o b. Encourage the reuse of grey water for landscaping.
o c. Encourage and educate the community about the relative impacts of
thinning or reduction of plant species that adversely impact forest health,
water availability, and soil quality.
o d. Encourage and educate the community about on-farm efficiency
measures, including upgrades to equipment.
o e. Encourage and educate the community about use of voluntary metering of
water use to monitor seasonal impacts on water use.
o f. Provide access to educational materials and tools related to water
conservation including publications, information about grant opportunities,
and/or partner with organizations on educational events.
o g. Encourage and educate community members on stewardship of wetlands
and waterways.
• Policy 5.2.2. Promote coordinated regional water conservation efforts and
implementation by regional and local organizations and agencies, including
increasing public awareness of and implementing water conservation tools,
incentives, and best practices.
• Policy 5.2.3. Support conservation efforts by irrigation districts and property
owners, including programs to provide incentives for water conservation, such as
piping of canals and laterals, water banking, exchanges of water rights, voluntary
transfers of in-stream flows, onsite efficiency measures, and other means.
Goal 5.3: Maintain and enhance a healthy ecosystem in the Deschutes River Basin.
• Policy 5.3.1. Notify the Oregon Department of State Lands and other state and
federal agencies as appropriate of any development applications for land within a
wetland identified on the statewide wetland inventory maps.
• Policy 5.3.2. Work with stakeholders to restore, maintain and/or enhance healthy
river and riparian ecosystems and wetlands, including the following:
o a. Encourage efforts to address fluctuating water levels in the Deschutes
River system;
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o b. Cooperate to improve surface waters, especially those designated water
quality impaired under the federal Clean Water Act;
o c. Support research on methods to restore, maintain and enhance river and
riparian ecosystems and wetlands;
o d. Support restoration efforts for river and riparian ecosystems and
wetlands;
o e. Inventory and consider protections for cold water springs;
o f. Evaluate waterways in coordination with OPRD for possible designation
under the Scenic Waterways program;
o g. In collaboration with stakeholders, map channel migration zones and
identify effective protections;
o h. Develop comprehensive riparian management or mitigation practices that
enhance ecosystems, such as criteria for removal of vegetation that
adversely impacts water availability and soil health.
• Policy 5.3.3. Support studies of the Deschutes River ecosystem and incorporate
strategies from current watershed studies that provide new scientific information
about the Deschutes River ecosystem.
• Policy 5.3.4. Support educational efforts and identify areas where the County could
provide information on the Deschutes River ecosystem, including rivers, riparian
areas, floodplains and wetlands.
o a. Support efforts to educate property owners to understand regulations
pertaining to rivers, riparian areas, floodplains and wetlands.
Goal 5.4: Maintain and enhance fish and riparian-dependent wildlife habitat.
• Policy 5.4.1. Coordinate with stakeholders to protect and enhance fish and wildlife
habitat in river and riparian habitats and wetlands.
• Policy 5.4.2. Promote healthy fish populations through incentives and education.
• Policy 5.4.3. Support healthy native fish populations through coordination with
stakeholders who provide fish habitat management and restoration.
o a. Review, and apply where appropriate, strategies for protecting fish and
fish habitat.
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o b. Promote salmon recovery through voluntary incentives and encouraging
appropriate species management and habitat restoration.
• Policy 5.4.4. Review Habitat Conservation Plans for species listed under the
Endangered Species Act, to identify appropriate new policies or codes.
o a. Spawning areas for salmonids should be considered significant habitat and
should be protected in rivers and streams.
o b. Cooperate with irrigation districts in preserving spawning areas for trout,
where feasible.
• Policy 5.4.5. Use a combination of incentives and/or regulations to mitigate
development impacts on river and riparian ecosystems and wetlands.
• Policy 5.4.6. Support plans, cooperative agreements, education, water quality
monitoring and other tools that protect watersheds, reduce erosion and runoff,
enhance riparian vegetation, and protect other natural water systems/processes
that filter and/or clean water and preserve water quality.
• Policy 5.4.7. Coordinate with the Oregon Department of Environmental Quality and
other stakeholders on regional water quality maintenance and improvement efforts
such as identifying and abating point (single-source) and non-point (unidentified or
multiple-source) pollution or developing and implementing Total Maximum Daily
Load and Water Quality Management Plans.
• Policy 5.4.8. Coordinate with stakeholders to address water-related public health
issues.
o a. Support amendments to State regulations to permit centralized sewer
systems in areas with high levels of existing or potential development or
identified water quality concerns.
o b. If a public health hazard is declared in rural Deschutes County, expedite
actions such as legislative amendments allowing sewers or similar
infrastructure.
• Policy 5.4.9. Continue to evaluate and/or implement regulations, such as a wellhead
protection ordinance for public water systems, in accordance with applicable
Federal and/or State requirements.
• Policy 5.4.10. Coordinate and work with the Oregon Department of Agriculture and
agricultural uses to support and implement proven new technologies and best
practices to maintain and enhance water quality, such as minimizing nitrate
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contamination, maintaining streamside vegetation, reducing streambank soil
erosion and runoff, limiting livestock access to riparian areas, and minimizing weeds
and bare patches in grazing areas.
• Policy 5.4.11. Support regulations, education programs, and cleaning procedures at
public and private boat landings.
Goal 5.5: Coordinate land use and water policies to address management and
allocation of water in Deschutes County.
• Policy 5.5.1. Coordinate with other affected agencies when a land use or
development application may impact rivers or riparian ecosystems or wetlands.
• Policy 5.5.2. Regulate land use patterns and promote best practices to preserve the
integrity of the natural hydrologic system, recognize the relationship between
ground and surface water, and address water impacts of new land uses and
developments, including water-intensive uses.
• Policy 5.5.3. Support OWRD’s efforts to update and modernize Oregon’s
groundwater allocation rules and policies to protect existing surface water and
groundwater users and to maintain sustainable groundwater resources.
• Policy 5.5.4. Support efforts by the OWRD in collaboration with Central Oregon
Cities Organization and non-governmental organizations to revisit the Deschutes
Basin Groundwater Mitigation Program.
• Policy 5.5.5. Coordinate with the irrigation districts to ensure irrigated land
partitions and lot line adjustments are not approved without notice to the affected
district.
• Policy 5.5.6. Utilize Central Oregon Stormwater Manual to apply appropriate
stormwater management practices land use. decisions.
• Policy 5.5.7. Allow for development of wastewater facilities and improvements
where needed or required to address water quality issues and maintain water
quality, consistent with state and local wastewater system requirements.
Open Space and Scenic Views Goals & Policies
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Goal 5.6: Coordinate with property owners to protect open spaces, scenic views, and
scenic areas and corridors through a combination of incentives and/or educational
programs.
• Policy 5.6.1. Work with stakeholders to create and maintain a system of connected
open spaces while balancing private property rights with community benefits.
• Policy 5.6.2. Work to maintain the visual character and rural appearance of open
spaces such as the area along Highway 97 that separates the communities of Bend
and Redmond or lands that are visually prominent.
• Policy 5.6.3. Work to maintain and protect the visual character and rural
appearance of visually prominent open spaces within the County, particularly those
that are identified in the Goal 5 inventory.
• Policy 5.6.4. Seek to protect the cultural identity of rural communities, such as the
Highway 97 area/corridor between Bend and Redmond, and others.
• Policy 5.6.5. Protect significant open spaces, scenic views, and scenic sites by
encouraging new development to be sensitive to these resources.
• Policy 5.6.6. Incentivize the placement of structures in a way that is sensitive of view
corridors to maintain the visual character of the area.
Wildlife Goals & Policies
Goal 5.7: Maintain and enhance a diversity of wildlife and habitats.
• Policy 5.7.1. Promote stewardship of wildlife habitats through incentives, public
education, and development regulations.
• Policy 5.7.2. Ensure Goal 5 wildlife inventories and habitat protection programs are
up-to-date through public processes, expert sources, and current or recently
adopted plans and studies.
• Policy 5.7.3. Provide incentives for new development to be compatible with and to
enhance wildlife habitat.
• Policy 5.7.4. Require, incentivize, or encourage clustering of development in
inventoried wildlife areas to reduce impacts to wildlife populations.
Goal 5.8: Balance protection of wildlife and habitat with the economic and
recreational benefits of wildlife and habitat.
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• Policy 5.8.1. Encourage responsible and sustainable wildlife related tourism and
recreation.
• Policy 5.8.2. Coordinate with stakeholders to ensure access to appropriate
recreational opportunities within significant wildlife and riparian habitat through
public or non-profit ownership.
Goal 5.9: Comply with federal and state regulations related to sensitive, threatened,
and endangered species, including the Endangered Species Act, the Bald and Golden
Eagle Protection Act, the Migratory Bird Treaty Act, and others as applicable.
• Policy 5.9.1. Coordinate with Federal and State agencies to develop strategies to
protect Federal or State Threatened or Endangered Species, or Species of Concern.
• Policy 5.9.2. Mitigate conflicts between large-scale development and sage grouse
habitat.
• Policy 5.9.3. Consider adopting recommendations from Oregon Department of Fish
and Wildlife and the Deschutes River Mitigation and Enhancement Program in dock
construction.
Environmental Quality Goals & Policies
Goal 5.10: Maintain and improve upon the quality of air and land in Deschutes
County.
• Policy 5.10.1. Use building techniques, materials, and technologies in existing and
future County operations and capital facilities that help maintain and improve
environmental quality.
• Policy 5.10.2. Implement a dark skies educational and or incentive program and
periodically update the Dark Skies ordinance to reduce the impacts of light pollution
and reduce lighting impacts on adjacent properties.
• Policy 5.10.3. Coordinate with agency partners to educate residents about
controlled burning projects and air quality concerns.
• Policy 5.10.4. Use public education, education for County departments, and
regulations to control noxious weeds and invasive species.
Goal 5.11: Promote sustainable building practices that minimize the impacts of
development on the natural environment.
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• Policy 5.11.1. Use the County Code and educational materials to promote the use of
resource-efficient building and landscaping techniques, materials, and technologies
that minimize impacts to environmental quality.
• Policy 5.11.2. Encourage and support reuse and recycling of consumer goods, green
waste, construction waste, hazardous waste, and e-waste through education and
enhanced recycling opportunities through the Recycling Program.
• Policy 5.11.3. Support the process for siting new County solid waste management
facilities in rural Deschutes County, consistent with facility needs and County
standards for the location and approval of such facilities.
• Policy 5.11.4. Implement best practices in solid waste management throughout the
County.
• Policy 5.11.5. Develop and implement a Climate Action Plan to address the potential
future impacts of climate change on Deschutes County.
• Policy 5.11.6. Promote and incentivize green infrastructure in new development to
improve stormwater management.
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Deschutes County Comprehensive Plan
Draft Comprehensive Plan Chapters
Chapter 6: Historic and Cultural Resources
Opportunities, Challenges, and Considerations.
Deschutes County is a certified local government (CLG), as designated by the State of
Oregon Historic Preservation Office. This certification recognizes the County’s commitment
to implementing and maintaining a formal historic resources program. Deschutes County
has 13 nationally registered historic and cultural sites and 35 locally significant historic
sites. The County currently administers grant programs and zoning requirements to
preserve and restore these sites.
Historic resources are recognized by Statewide Planning Goal 5, Natural Resources, Scenic
Views and Historic Areas and Open Spaces, and Oregon Administrative Rule (OAR) 660‐
023. The Statewide Goal and OAR recommend cities and counties inventory and protect his
toric and cultural sites. Recognizing the value and importance of having a connection to our
past, Deschutes County chose to implement and maintain a historic preservation program
and Historic Preservation Strategic Plan (Adopted 2022).
The 2022 Historic Preservation Strategic Plan identified three overarching goals to guide
historic and cultural resource preservation in Deschutes County: collaborate, coordinate,
and educate. The plan identifies opportunities to strengthen relationships between historic
preservation and community partners, and to involve community members in historical
and cultural preservation efforts. Improving access to historic resource information and
providing content in an easily accessible format will be paramount to preservation efforts
and increase community appreciation for resources. Along with improved educational
resources, more outreach and education opportunities could be explored.
[Other Captioned photos of historic resources]
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Context
Deschutes County has several notable historical and cultural sites. These sites receive
special protections to avoid land use or development activity that may disturb the historical
or educational resources existing on site.
Locally Significant Historic Sites
Deschutes County has 35 locally significant sites including cemeteries, ranches, dams,
bridges, schools, and granges among numerous historic homesteads and homesites.
Nationally Registered Sites
Deschutes County has 13 sites that have completed the national register process, including
highways, bridges, lodges, and rock gardens.
[Map of historic and cultural sites]
One of the primary sites of historic and cultural learning in the county is the nationally
acclaimed High Desert Museum. The museum is dedicated to broadening the
understanding of the High Desert's wildlife, culture, art, and natural resources. In doing so,
it strives to promote thoughtful decision making to sustain the region's natural and cultural
heritage.
Key Community Considerations
As part of the 2023 Comprehensive Plan update, community members shared their vision
for the protection of historic and cultural resources. Comments included:
• The importance of county-wide coordination on cultural and historic, as well as
increased representation of the indigenous history of Central Oregon.
• Acknowledging previous landowners and preserving the County’s historical and
cultural resources are both important.
• A county-wide historic and cultural resource signage program was also suggested.
• The community shared an interest in capitalizing on the High Desert Museum to
continue to support indigenous culture and Central Oregon’s history.
Historic and Cultural Resources Goals and Policies
Goal 6.1: Promote the preservation of designated historic and cultural resources
through education, incentives, and voluntary programs.
• Policy 6.1.1. The Historic Landmarks Commission shall take the lead in promoting
historic and cultural resource preservation as defined in DCC 2.28.
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o a. Support incentives from the State Historic Preservation Office (SHPO) or
other agencies for private landowners to protect and restore historic
resources.
o b. Support the Historic Landmarks Commission to promote educational
programs to inform the public of the values of historic preservation.
o c. Support improved training for the Historic Landmarks Commission.
o d. Support the goals, objectives, and actions of the Historic Preservation
Strategic Plan.
• Policy 6.1.2. Coordinate cultural and historic preservation with the Oregon State
Historic Preservation Office.
o a. Maintain Deschutes County as a Certified Local Government, which
includes the City of Sisters.
o b. Encourage private property owners to coordinate with the State Historic
Preservation Office.
• Policy 6.1.3. Coordinate with Native American tribes and SHPO to adopt a program
to identify and protect archaeological and cultural resources, as appropriate, and
prevent conflicting uses from disrupting the scientific value of known sites.
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Deschutes County Comprehensive Plan
Draft Comprehensive Plan Chapters
Chapter 7: Natural Hazards
Opportunities, Challenges, and Considerations
Central Oregon is a dynamic region formed and shaped by the powerful forces of nature.
Deschutes County residents and visitors rely on the County and its partners to plan for
hazardous events and limit harm to people and property.
Continued rapid population growth, development in wildfire-prone areas, and an increased
frequency of natural hazard events make planning for and mitigating risks ever more
important. As temperatures rise globally, Central Oregon will face challenges due to
drought, wildfire, heat events, and storms. The impacts a major Cascadia Subduction Zone
earthquake would have on Deschutes County would be substantial as well.
In order to plan for and address natural hazards, Deschutes County has partnered with
local jurisdictions to create its Natural Hazards Mitigation Plan (NHMP). Additional
opportunities exist to create greater defensible spaces, encourage fire hardening, utilize
grant programs, and pursue education measures to reduce these impacts over time.
Statewide Planning Goal 7 requires local comprehensive plans to address Oregon’s natural
hazards. Protecting people and property from natural hazards requires knowledge,
planning, coordination, and education. Good planning does not put buildings or people in
harm's way. Planning, especially for the location of essential services like schools, hospitals,
fire and police stations, is done with sensitivity to the potential impact of nearby hazards.
According to the NHMP, the hazards with greatest risk in Deschutes County are:
• Winter Storm. Destructive storms producing heavy snow, ice and cold
temperatures occurred throughout the County’s history. Increases in population
and tourism make potential impacts to shelter, access to medical services,
transportation, utilities, fuel sources, and telecommunication systems more acute.
The relative frequency of these events combined with their widespread impacts
make winter storms the highest-ranked hazard in the NHMP.
• Wildfire. Historically, wildland fires have shaped the forests and wildlands valued by
residents and visitors. These landscapes, however, are now significantly altered due
to increased rural development and a general lack of large-scale treatments,
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resulting in overgrown forests with dense fuels that burn more intensely than in the
past.
• Windstorm. A windstorm is generally a short duration event involving straight-line
winds and/or gusts in excess of 50 mph. Although windstorms can affect the
entirety of Deschutes County, they are especially dangerous in developed areas with
significant tree stands and major infrastructure, especially above ground utility lines.
• Drought. Periods of drought can have significant impacts on public health,
agriculture, and industry. Many counties in eastern Oregon are experiencing more
frequent and severe droughts than is historically the norm, and many climate
predictions see this trend continuing into the future.
• Earthquake. The Pacific Northwest is located at a convergent plate boundary, called
the Cascadia Subduction Zone, where the Juan de Fuca and North American tectonic
plates meet. This fault line is subject to rare but potentially very large earthquakes.
Such an event would impact Deschutes County communities both directly through
damage to infrastructure and property, as well as economically and socially as the
broader region recovers from the disaster.
Context
Informed by an understanding of natural hazards, Deschutes County can reduce the risks
to property, environmental quality, and human safety through land use planning and
review of specific development proposals. The County’s policies provide the framework for
the County’s natural hazards review program. This includes: identification of areas subject
to natural hazards, regulations for evaluating land use actions for how they may result in
exposure to potential harm from natural hazards, and programmatic elements including
partnerships and funding opportunities to support natural hazard risk reduction.
Deschutes County has taken on a number of proactive projects, including:
• 2021 Natural Hazards Mitigation Plan (NHMP)
• 2019 Wildfire Mitigation Advisory Committee
• Project Wildfire, a County-led wildfire education and mitigation program has been in
operation since 2012 and has been very successful in changing attitudes towards
wildfire and prevention.
• Community Wildfire Protection Plans (CWPP) for many communities, including:
• Greater Bend CWPP (2016, expected revision 2021)
• Greater La Pine CWPP (2020, expected revision 2025)
• Greater Redmond CWPP (2018, expected revision 2023)
• Greater Sisters Country CWPP (2019, expected revision 2024)
• Sunriver CWPP (2020, expected revision 2025)
• East and West Deschutes County CWPP (2018, expected revision 2023)
• Upper Deschutes River Coalition CWPP (2018, expected revision 2023)
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In addition, dozens of neighborhoods are pursuing or have received FireWise certification
through the National Fire Protection Association. The County also supports the Heart of
Oregon and Youth Conservation Corps crews in fuels reduction work and other mitigation
efforts, with financial assistance from other entities.
Wildfire
According to the Natural Hazards Mitigation Plan, wildfire is the second most significant
hazard to the county (after winter storms) and was the most discussed natural hazard
discussed during outreach events. Throughout the 20th century, the years with warm and
dry conditions corresponded with larger fires that have burned greater areas. Figure 1
shows the devastation of the 2020 fire season compared to all other years earlier in the
century.1 Overall increases in heat will also lengthen growing seasons - building greater fuel
loads and decreasing soil and fuel moisture, thereby increasing the likelihood of larger
fires. By mid-century, the annual potential for very
large fires is projected to increase by at least 350%
over the 20th century average.2
The annual frequency of very high and extreme fire
danger days is expected to increase by 10-15
additional days per year by mid-century4 (up from 36
currently). These trends are due to exacerbated
conditions with a combination of high air
temperatures and very low fuel moisture, which
increases the likelihood of fire starts that can spread.
As Deschutes County communities have experienced,
increased fire activity - even at quite a distance - will
impact air quality, increasing public health risks and
impacting aspects of everyday life.
1 From the New York Times, “Record Wildfires on the West Coast Are Capping a Disastrous Decade”
By Blacki Migliozzi, Scott Reinhard, Nadja Popovich, Tim Wallace and Allison McCann Sept. 24, 2020
2 Halofsky, J. Peterson, D, Harvey, B. “Changing Wildfire, changing forests: the effects of climate change on fire regimes and
vegetation in the Pacific Northwest, USA. Fire Ecology. 2020.
Figure 1. 2020's Record Fire Year in the
Western US, New York Times
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Research indicates that in regions where fire has moved through the landscape with
increased severity, regrowth is changing the species composition of the forests, which are
likely to be more resilient to future fires. 3 Other compounding factors, like drought and
pest outbreaks, will continue to build fuel loads in the forests and change the forest’s
composition. Post-fire landscapes in Deschutes County will likely see increases in the
prevalence of invasive and pioneer tree species, and a reduction in fire-susceptible species
such as western hemlock, subalpine fir, and
some spruce. Fire resistant species like
mature Douglas fir and western larch will
have greater survival capacity to fire,4 but
perhaps not to other stressors. Larger fires
that occur over shorter intervals will
negatively impact seed dispersion capacity,
and reduced moisture available in
ponderosa forest regions will be vulnerable
to reforestation failures, leading to
conversion to other ecosystem types. In the
mountain forests, the average yearly area
burned is expected to nearly double by mid-
century, while the area burned in the
grass/shrub plateau areas is likely to
decrease slightly by mid-century. This is
partly due to extended drought decreasing
plant growth and therefore available fuel.
The risk of unusually severe fires is expected
to increase across large swaths of Oregon,
including Deschutes County (Figure 2).5
Figure 3: Deschutes County Large Fire History
3 Sebastian U. Busby, Kevan B. Moffett, Andrés Holz. High‐severity and short‐interval wildfires limit forest recovery in the
Central Cascade Range. Ecosphere, 2020; 11 (9) DOI: 10.1002/ecs2.3247
4 6 Halofsky et al. 2020.
5 Oregon Forest Resources Institute Fact Sheet
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Chapter 7: Natural Hazards 5
Wildfire And Heat
By the middle of this century, increasing temperatures are expected to drive increasing
wildfire risk, especially in the Cascades. The yearly percentage of area burned is likely to
increase in the mountains and the interval of return (years between fires) is expected to
decrease across the county. Both the highest and lowest summer temperatures will
increase, leading to more extreme heat days and reducing the historical nighttime cooling
effect of the high desert.
Under all change projections, there will be an increase in the number of days with a heat
index above both 90° and 100°F by mid-century.8 By 2100, Deschutes County can expect
summer maximum temperatures to be 12°F hotter than current highs. Overall, extreme
heat is not considered a human health risk in Deschutes County because of low night
temperatures and the low humidity in the region. However, the Redmond airport, which
sees the hottest temperatures in the county, will likely start to see occasional temperatures
above 105° every few years by mid-century, and at least once a year by 2100. In addition,
summer night lows are likely to increase by up to 5° degrees by mid-century, reducing the
cooling effect of the high desert climate.
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Chapter 7: Natural Hazards 6
Vulnerable Populations (Sidebar)
The socio-demographic qualities of the community population such as language, race and
ethnicity, age, income, and educational attainment are significant factors that can influence
the community’s ability to cope, adapt to and recover from natural disasters. A
disproportionate burden is placed upon special needs groups, particularly children, the
elderly, the disabled, minorities, and low-income persons. Population vulnerabilities can be
reduced or eliminated with proper outreach and community mitigation planning. For
planning purposes, it is essential that Deschutes County and the cities of Bend, La Pine,
Redmond, and Sisters consider both immediate and long-term socio-demographic
implications of hazard resilience
Key Community Issues
Community conversations related to natural hazards have centered around the following
topics:
• Impacts of Climate Change. Throughout the community engagement process,
community members spoke to the importance of recognizing and addressing the
impacts of climate change in Deschutes County and its relationship with natural hazard
events.
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Chapter 7: Natural Hazards 7
• Education and Communication. Providing information about potential risks to
residents and visitors can help the community as a whole be more prepared for natural
hazards.
• Development Code Regulations and Incentives. Some community members
expressed a desire for stricter regulations and additional incentives about “fire-wise”
construction and defensible space practices.
• Limiting Development in hazard-prone areas. Increased development in remote
areas of the County, where life-saving services may be scarce and human impacts may
exacerbate risks, was a concern for some.
Goals, Policies, and Strategies
Goal 7.1: Develop policies, partnerships, and programs to increase resilience and
response capacity in order to protect people, property, infrastructure, the economy,
natural resources, and the environment from natural hazards.
• Policy 7.1.1. Partner with county, state, and regional partners to regularly update
and implement the Deschutes County Natural Hazards Mitigation Plan.
• Policy 7.1.2. Collaborate with federal, state, and local partners to maintain updated
mapping of high wildfire risk areas, floodplains, and other natural hazard areas
within the county.
• Policy 7.1.3. Communicate and cooperate with federal, state, and local entities to
clarify responsibilities regarding wildfire mitigation and suppression to improve fire
protection services.
• Policy 7.1.4. Use the development code to provide incentives and regulations to
manage development in areas prone to natural hazards.
• Policy 7.1.5. Work with agency partners to address and respond to increased
episodes of poor air quality resulting from wildfires in the region.
• Policy 7.1.6. Protect wildlife with wildland fire mitigation measures on private lands.
• Policy 7.1.7. Address wildfire risk, particularly in the wildland urban interface.
• Policy 7.1.8. Identify all areas not protected by structural fire protection agencies
and promote discussions to address fire protection in unprotected lands in the
County.
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Chapter 7: Natural Hazards 8
• Policy 7.1.9. Support forest management practices that reduce wildfire risk.
• Policy 7.1.10. Support local fire protection districts and departments in providing
and improving fire protection services.
• Policy 7.1.11. Continue to review and revise County Code as needed to:
• a. Ensure that land use activities do not aggravate, accelerate or increase
the level of risk from natural hazards.
• b. Require development proposals to include an impact evaluation that
reviews the ability of the affected fire agency to maintain an appropriate
level of service to existing development and the proposed development.
• c. Minimize erosion from development and ensure disturbed or exposed
areas are promptly restored to a stable, natural and/or vegetated
condition using natural materials or native plants.
• d. Ensure drainage from development or alterations to historic drainage
patterns do not increase erosion on-site or on adjacent properties.
• e. Reduce problems associated with administration of the Floodplain
Zone.
• f. Require new subdivisions and destination resorts to achieve FireWise
Standards or other currently accepted fire mitigation standards from the
beginning of the projects and maintain those standards in perpetuity.
Goal 7.2: Ensure the County’s built environment and infrastructure are adequately
prepared for natural disasters.
• Policy 7.2.1. Increase the quality, resiliency, diversity, and redundancy of utility and
transportation infrastructure to increase chances of continued service following a
natural disaster.
• Policy 7.2.2. Prohibit the development of new essential public facilities and uses
that serve vulnerable populations from being located within areas at high risk of
flooding and wildfire, and aim to relocate existing uses in these areas.
• Policy 7.2.3. Support siting of Central Oregon Ready, Responsive, Resilient (CORE3)
regional coordinated emergency services training facility.
• Policy 7.2.4. Coordinate with emergency service providers when new development
is proposed to ensure that response capacity can meet the needs of the new
development.
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Chapter 7: Natural Hazards 9
• Policy 7.2.5. Require new development to follow home hardening, defensible space,
and other resilient design strategies in areas prone to wildfires and other natural
hazards.
• Policy 7.2.6. Encourage and incentivize development that exceeds minimum
building code standards and promote retrofitting of existing development for better
natural disaster resiliency.
• Policy 7.2.7. Require development to be designed to minimize alteration of the
natural landform in areas subject to slope instability, drainage issues or erosion.
• Policy 7.2.8. Regulate development in designated floodplains identified on the
Deschutes County Zoning Map based on Federal Emergency Management Act
regulations.
• a. Continue evaluation of participation in and implementation of the
Community Rating System as part of the National Flood Insurance Program.
• b. Cooperate with other stakeholders to identify alternatives for acquiring
and/or relocating existing structures prone to flooding.
• c. Continue to coordinate with stakeholders and agency staff to correct
mapping errors.
Goal 7.3: Develop programs that inform the public about the increased risks from
natural hazards.
• Policy 7.3.1. Identify high risk, high need populations and ensure equitable access
to emergency preparedness and recovery services.
• Policy 7.3.2. Increase outreach and education for hazard awareness and natural
disaster preparedness, especially for low-income, elderly, non-English speaking, and
other vulnerable populations.
• Policy 7.3.3. Expand partnerships with government agencies, utilities, and other
groups that can help Deschutes County residents prepare for natural disasters.
• Policy 7.3.4. Work with regional partners to establish and maintain adequate
support for a Deschutes County Community Emergency Response Team (CERT) to
aid in responding to natural hazard events.
• Policy 7.3.5. Promote and support business resilience planning.
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Chapter 8: Recreation Page 1
Deschutes County Comprehensive Plan
Chapter 8: Recreation
Opportunities, Challenges, and Considerations
Recreation is an important quality of life issue for Deschutes County and recreational
tourism is a key part of the local economy. Both residents and visitors are drawn by the
County’s extensive public lands, seasonal climate, and wide variety of activities and
settings. Recreational opportunities include places set aside for specific activities such as
campgrounds or sports fields as well as passive spaces such as natural areas.
The primary focus of recreation in rural Deschutes County is outdoor recreation. Outdoor
activities promote healthy communities by encouraging people to enjoy an active lifestyle
and by providing opportunities to reconnect with the natural world.
Deschutes County does not have a parks department; instead, it coordinates with the
federal and state agencies, local park districts, and private entities that provide park and
recreational opportunities. Coordination assures that resources are used efficiently, and
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duplication is avoided. With a holistic view of recreation in Deschutes County, the County
can also provide other agencies and jurisdictions with guidance for service gaps to fill.
Sidebar/Box: Statewide Planning Goal 8, Recreation and Oregon Administrative Rule (OAR)
660-034 address recreation, but do not require local governments to provide park and
recreation services. Several agencies and special districts already provide recreation
services in Deschutes County. These include Bend Parks and Recreation District, La Pine
Parks and Recreation District, Sunriver Parks and Recreation District, and Oregon Parks and
Recreation Department.
The health of the County’s recreational assets and industry is inexorably tied to the health
of the land, forests, and waterways of Central Oregon. The effects of human activity - from
development pressures and overuse of recreational facilities to resource extraction and
climate change – will have a significant impact on recreation in Deschutes County. Some of
these impacts include:
• Changes in precipitation affecting the timing and conditions for winter sports
• Loss of habitat
• Wildfire and risk of wildfire limiting recreational access
• Increased number of dangerously warm days
Future Challenges to Recreation. The health of the County’s recreational assets and
industry is inexorably tied to the health of the land, forests, and waterways of Central
Oregon. The effects of human activity - from development pressures and overuse of
recreational facilities to resource extraction and climate change – will have a significant
impact on recreation in Deschutes County.
There are several environmental concerns that may affect parks and recreation in
Deschutes County in the future. Activities such as hiking, hunting, fishing, swimming, and
foraging are an important part of recreation in Deschutes County - these activities are likely
to be impacted by future changes to the climate.
Fishing may be impacted by drought as water bodies warm and seasonally drop. Foraging
animals, like deer and elk, may express changing behavior like earlier-season high elevation
foraging and increased interactions with agricultural communities due to drought. Drought
also severely reduces the prominence of fruiting fungi for annual mushroom hunters, and
may increase pressure on the remaining harvest areas. Fungi are crucial to the health of
the forest ecosystem, adapting and responding to changing conditions and disease.
These conditions may also lead to greater frequency and severity of algal and bacterial
blooms in fresh water. Algal blooms in other parts of the state have led to drinking water
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concerns, but Deschutes County cities are supplied by groundwater and so the risk in algal
blooms is mainly to recreation – boaters, swimmers, anglers, and campers may be less
motivated to visit.
Winter Sports. Snow sports are a significant component of recreation in Deschutes
County. Overall decline in snow pack is expected in the coming decades, which will heavily
impact winter sports that rely on snowpack in the Cascades. At the Mt. Bachelor Ski Resort,
April Snowpack is expected to decline between 11% and 18% by the middle of the century
and between 18% and 43% by the end of the century. Additionally, inconsistent snowpack
buildup will increase due to more precipitation falling as rain instead of snow throughout
the season, making winter sports seasons less predictable.
Summer Recreation. The summer outdoor season has additional risks from degraded to
severely degraded air quality due to wildfire throughout the west coast. With degraded air
quality, outdoor recreators may avoid the region, impacting regional income and generally
degrading the perception of the county as a retreat to the natural world. Additionally, an
increase in the frequency of very high temperature days may impact the safety and
desirability of outdoor recreation.
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Context
Deschutes County does not directly provide parks and recreation services. The only public
parks the County maintains are a section of the County Fairgrounds and the Worrell
Wayside in downtown Bend. Although there is no County parks department, there are
County-owned properties which are designated as park lands. Parks and recreation
services are provided by the following entities.
Oregon Parks and Recreation Department: OPRD owns and manages several key parks
and scenic areas in the County. These include state parks such as line Falls State Scenic
Viewpoint, La Pine State Park, Pilot Butte State Scenic Viewpoint, Smith Rock State Park, and
Tumalo State Park. In addition, they also manage the Upper and Middle Deschutes River
Scenic Waterway segments, and Cascade Lakes and McKenzie Pass-Santiam Pass Scenic
Byways.
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The Bend Parks and Recreation Special District (BPRD) owns and maintains
approximately 3,035 acres of parkland including 81 parks and 70 miles of trails. The largest
park district in the County, the taxing district follows the City of Bend Urban Growth
Boundary closely, although extends past the UGB to the west and east to include several
properties outside of city limits.
The La Pine Parks and Recreation Special District operates in 85 square miles and 11
parks and recreation facilities in southern Deschutes County including the City of La Pine.
The Redmond Area Parks and Recreation Special District operates five recreational
facilities including the Cascade Swim Center and extends beyond city limits to Tetherow
Crossing. In 2022, the district received voter approval for a general obligation bond to build
a new community center with a variety of recreational, fitness, and therapeutic activates.
The Sisters Park and Recreation Special District operates approximately 15 acres of
land within City of Sisters city limits, including Bike Park 242, Hyzer Pines Disc Golf Course,
a playground, a skatepark, and Coffield Community Center. The district boundary extends
far past city limits, serving approximately 14,000 residents through programming and
activities.
The U.S. Forest Service, Bureau of Land Management: Approximately 76% of the
County’s total land area is owned by the federal government, primarily these two agencies.
Community members seek out extensive recreation activities in these areas, including
skiing, mountain biking, hiking, backpacking, fishing, hunting, kayaking, and off-road vehicle
riding.
County-Owned Open Space. Starting in 1994 the County received donation of several
properties along rivers, creeks, or streams or with wildlife, wetlands, or other value as park
lands. The intent of this donation was not to develop these lands for park use but rather to
preserve lands with valuable resources, which were protected through deed restrictions.
The park designation means that the lands would be retained in public ownership unless
there was a public hearing and the Board of County Commissioners determined that selling
was in the best interest of the public.
ORS 275.330 governs the disposal of these lands, stating that if they are sold the proceeds
must be dedicated to park or recreation purposes. As of 2009, there were approximately 70
properties designated as park lands.
County Fairground and Expo Center. The 132-acre County Fairground and Expo Center
site is located southwest of the Redmond airport, and it is placed strategically at the hub of
the tri-county area (Deschutes, Jefferson, Crook Counties). The facility is used for a variety
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of public and private events. Each of its lawn areas can be rented exclusively by groups for
different events, which range from weddings, picnics, reunions, car shows, RV / motorcycle
rallies, animal shows, and outdoor trade shows, among others.
Key Community Considerations
Recreation and access to nature is a key component of life in Deschutes County and a
primary attraction for both residents and visitors. As part of this Comprehensive Plan
update, community members noted concerns about increasing recreational use or
overuse, conflicts among different users, and the need for permitting or other strategies to
manage use, particularly in popular locations.
Because the county does not have a parks and recreation department, community
members have identified service gaps and lack of continuity of trail networks, habitat and
species preservation, and land access policies. Residents are concerned with private
recreation development and use of natural resources such as land and water.
The tension between resource use of forest land and water, recreational use of these
areas, and natural resource protection is evident among members of the community
Community members also noted that it is imperative for all special districts and agencies
providing park services to coordinate on integrated services. These partnerships will be key
to ensure sustainable recreation and land stewardship as the County continues to grow.
Goals and Policies
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Goal 8.1: Increase affordable, sustainable, and diverse recreation opportunities
through partnerships with government and private entities.
Policy 8.1.1: Reduce barriers to regional parks and recreation projects in Deschutes
County, including acknowledgement or adoption of federal, state and local parks
district trail and facility plans.
Policy 8.1.2: Collaborate with partners to develop a regional system of trails and
open spaces, prioritizing recommendations from local parks districts, County, state,
and federal recreational plans and studies.
Policy 8.1.3: Encourage coordination between the U.S. Forest Service, the Bureau of
Land Management and recreational use interest groups to minimize environmental
degradation, agricultural fragmentation and user conflicts on public and private
land.
Policy 8.1.4: Support the creation and improvement of accessible park and
recreation opportunities in compliance with the Americans with Disabilities Act.
Policy 8.1.5: Support efforts to coordinate recreation planning between the County,
park and recreation districts, school districts, irrigation districts, unincorporated
communities, and cities.
Policy 8.1.6: Support the development of parks and trails identified in locally-
adopted plans.
Policy 8.1.7: Coordinate with unincorporated communities to identify opportunities
for parks, trails, open spaces, and community centers.
Policy 8.1.8: Establish trail design standards and identify specific funding sources
for trails as part of future transportation system planning efforts to ensure
development of identified priority rural trail segments and bicycle routes.
Policy 8.1.9: Explore creation of a County Parks and Recreation Department to
increase the County’s role in recreation and natural resource management and
implement if deemed appropriate.
Policy 8.1.10: Support community efforts for acquisition and management of
Skyline Forest as a community amenity.
Policy 8.1.11: Work with stakeholders to promote new recreational and tourist
initiatives that maintain the integrity of the natural environment.
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Chapter 9: Economic Development Page 1
Deschutes County Comprehensive Plan
Draft Comprehensive Plan Chapters
Chapter 9: Economic Development
Opportunities, Challenges, and Considerations.
Statewide Planning Goal 9 provides guidance on economic development for Oregon
jurisdictions. This goal is intended to “provide adequate opportunities throughout the state
for a variety of economic activities vital to the health, welfare, and prosperity of Oregon’s
citizens.” For Deschutes County, implementing Goal 9 is focused on ensuring opportunities
for economic development, while protecting rural land uses.
In Deschutes County, several areas are designated for rural industrial and rural commercial
activities to allow for activities such as manufacturing or resource processing. Additionally,
unincorporated communities and rural service centers allow for limited commercial
opportunities, including restaurants, services, and retail stores.
Economic development agencies in Central Oregon cite the tremendous natural resource
access and amenities to be essential for drawing in new businesses and workers. As the
County grows, childcare will continue to be challenge for rural residents along with access
to high speed and reliable internet services.
A continued challenge for Deschutes County will be to balance adequate economic
opportunity for rural residents, with protection of natural resource lands. Community
members have expressed interest in providing for new and emerging economic
opportunities through renewable energy development, including potential for biomass,
solar, geothermal, and wind projects that may be compatible with rural uses.
Context
Background. Deschutes County’s economy was initially built around farming and logging.
As those sectors declined in the 20th century, recreation and tourism increased as people
were drawn to the beauty and opportunities to recreate on public lands. Deschutes
County’s high quality of life became a draw for employers and employees alike. In the
2000’s, the building sector boomed as new housing was built to meet both increased
housing demand and the real estate speculation that followed. Housing prices rose so high
that workforce housing became a limiting factor in economic growth. The period of strong
growth ended with the national recession that began in late 2007, leading to falling housing
prices and rising unemployment. The 2010’s and early 2020’s have proven to be another
period of booming economic growth for Deschutes County, exacerbated by the COVID-19
pandemic and the dramatic increase in remote work.
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Primary Industries. Deschutes County is known for its abundant natural resources, though
the County continues to balance its economy through a variety of industries. The top 10
industries overall in Deschutes County (including those within urban areas) are:
1. Trade, transportation, utilities (15,742 jobs)
2. Education/Health Services (13,479 jobs)
3. Goods-producing (13,169 jobs)
4. Leisure and hospitality (12,990 jobs)
5. Health care and social assistance (12,541 jobs)
6. Retail trade (11,714 jobs)
7. Accommodation and food services (10,718 jobs)
8. Professional/business services (10,067 jobs)
9. Food services/drinking places (8,304 jobs)
10. Local government (7,396 jobs)
Employers in Deschutes County: Currently, the largest private employers in Central
Oregon include:
[Insert table of employers]
Deschutes County’s economy remains strong compared to Oregon as a whole, as shown in
the following statistics:
• Median Household Income: $74,082 ($70,084 in Oregon)
• 9.4% of county population experiencing poverty (12.1% in Oregon)
• 63.3% of population in civilian workforce (62.6% in Oregon)
Tourism. Tourism continues to be a major facet of Central Oregon’s economy, with
approximately 4.5 million visitors entering Central Oregon each year. The majority of those
visitors travel to Bend and Deschutes County in particular but other communities in the
County also are popular destinations, including Sisters, Redmond and Terrebonne, as well
as destination resort such as Sunriver, Eagle Crest, Pronghorn and others. In addition,
recreational opportunities throughout the County also attract a multitude of visitors, from
skiing on Mt. Bachelor, hiking in the Three Sisters Wilderness, and rafting the Deschutes
River, to fishing, hunting and camping at dispersed sites on National Forest and BLM land
throughout the County.
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Resource Land. While much of the County’s economic activity occurs in urban areas,
County administration of farmland, forest land, and natural resources plays a vital role in
protecting and enhancing the economic development potential of the area.
Coordination. A key partner for the County in promoting a healthy economy is Economic
Development for Central Oregon (EDCO). This private non-profit organization is dedicated
to diversifying the tri-county regional economy by attracting new investment and jobs. This
organization also tracks the local economy.
Connections to Other Comprehensive Plan Chapters. Much of the County’s economic
development activity is directly related to farmland (Chapter X), forest land (Chapter X),
mineral and aggregate resources (Chapter X), and natural resources (Chapter X). Additional
information can be found in these sections.
Key Community Considerations.
As part of this comprehensive plan update, community members expressed the following:
• A recognition that tourism is an important industry in the County, but some concern
that the interests of tourism-related activity play an outsized role in the County.
• Desire for a strong and diverse economy that benefits local residents.
• Strong interest in expanding access to childcare for rural residents, especially those
who travel into incorporated cities for employment.
• Interest in exploring new economic opportunities including renewable energy
development.
• Desire for additional educational and job training opportunities, including expansion of
colleges and universities.
Goals and Policies
Goal 9.1: Maintain a stable, and sustainable, and thriving rural economy, compatible
with rural lifestyles and a healthy environment.
• Policy 9.1.1. Promote rural economic initiatives, including home-based businesses,
that maintain the integrity of the rural character and natural environment.
• Policy 9.1.2. Support a regional approach to economic development in concert with
Economic Development for Central Oregon or and similar organizations.
• Policy 9.1.3. Support growth and expansion of colleges and universities, regional
educational facilities, and workforce training programs.
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• Policy 9.1.4. Support renewable energy generation as an important economic
development initiative, while taking other community goals and concerns into
consideration.
• Policy 9.1.5. Support and participate in master planning for airports in Deschutes
County, including expansion of noise impact boundaries and upgrades to facilities
as airports continue to grow.
• Policy 9.1.6. Within the parameters of State land use regulations, permit limited
local-serving commercial uses in higher-density rural communities. Support limited
and locally-serving commercial uses in appropriate locations.
• Policy 9.1.7. Support expansion of high-speed internet in rural areas and integrate
infrastructure such as fiber-optic cables into new development and road projects.
• Policy 9.1.8. Support funding and development of childcare locations across the
County to support families in the workforce.
• Policy 9.1.9. Explore need for master planning for rural economic development
lands, including Deschutes Junction.
• Policy 9.1.10. Recognize the importance of maintaining a large-lot industrial land
supply that is readily developable in Central Oregon, and support a multi-
jurisdictional cooperative effort to designate these sites.
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Chapter 10: Housing Page 1
Deschutes County Comprehensive Plan
Draft Comprehensive Plan Chapters
Chapter 10: Housing
Opportunities, Challenges, and Considerations
Deschutes County faces a variety of housing demands, issues, and challenges. The County
continues to be a desirable and attractive place to live, with access to jobs, recreation,
beautiful natural landscapes, and a variety of other amenities. The County’s population is
projected to continue to grow in the coming decades. At the same time, there are several
challenges to the development of housing in the County. Some of the key issues the County
faces today include:
• Increased demand for rural housing.
• Housing affordability.
• State planning requirements related to Urban Growth Boundaries, farm and forest
land, destination resorts, and others.
• Water Availability
• Issues related to homelessness.
What type of housing is allowed in unincorporated Deschutes County? (Sidebar)
Residential development in Deschutes County is less dense than the Cities of Bend, La Pine,
Redmond and Sisters due to state land use rules. Single family homes are most common
type of housing throughout the county in all zones. Recreational vehicles are allowed to be
placed on property for temporary living situations or as medical hardship dwellings for
family members but are not intended to be permanent living situations. Accessory Dwelling
Units or ADUs, also known as “granny flats” or “carriage houses” are smaller secondary
residences on a property. In 2021, the Oregon legislature passed Senate Bill 391 which
allows for rural ADUs with certain parameters, and Deschutes County is currently in the
process of implementing this legislation.
Context
Projected population growth in unincorporated Deschutes County. Deschutes County
is one of the fastest growing counties in Oregon, and that trend is expected to continue.
Significant growth is expected to occur in Deschutes County in the coming years (over
90,000 new residents in the next 25 years). However, the majority of this growth is
forecasted to happen in urban areas with a more modest amount occurring in
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unincorporated parts of the County (about 5,000 additional people during the same
period).
Source: Portland State University Population Research Center
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Increased demand for rural housing. Between 2010 and 2022, Deschutes County
processed seven applications to rezone approximately 1,200 acres of property from a non-
residential zone to a residential zone, with several more applications recently submitted
and under review. Most of these applicants requested rezonings of farmland due to poor
soil quality for farming. This trend is likely to continue.
Housing affordability. The median value of owner‐occupied housing units in Deschutes
County (including cities), is significantly higher than that of the State of Oregon ($435,600
compared to $362,200 according to 2017-2021 Census figures), and consistently increasing.
In July 2023, Becon Appraisal Group reported an all-time high median home value for Bend
area homes, in the amount of $785,000. The same report estimated a median home price
as $694,000 for Sisters area homes, $473,000 for Redmond area homes, and $401,000 for
La Pine area homes. Given that median income is generally on par with the state as a
whole, high housing prices are likely an indicator of an inadequate supply of housing
affordable to many residents of the Deschutes County, particularly those with low to
moderate incomes.
State Planning Requirements. Although Deschutes County has numerous prospects to
expand residential development, some of these opportunities face challenges with respect
to state rules and regulations. The Oregon land use system is designed to concentrate
most growth within Urban Growth Boundaries. A variety of statewide planning goals, laws,
and administrative rules designed to protect farm and forest land, regulate destination
resorts, and ensure cost-effective provision of infrastructure limit where and how housing
can be built outside of urban areas.
Water availability and consumption. A growing demand for water for residential,
business, recreation, and agricultural uses; changes in water table depth; allocation of
water rights; and potential future changes in water supply related to climate change all
may impact the availability of water to support new housing. Water resources are
discussed in Chapter 5 in more detail.
Homelessness. The incidence and impacts of homelessness have been rising in Deschutes
County, as well as across the state and nation in recent years. A variety of factors have
contributed to this trend, including rising housing costs, increasing income disparities, and
limited transitional housing and supportive resources. As a result, impacts on both urban
areas and natural resources have increased, with elevated levels of community concern
and support for more action by the County and its partners to address these issues.
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Balancing residential development opportunities with visitor accommodations.
Although population growth in unincorporated Deschutes County is forecasted to be
relatively limited, rural parts of the County, including several destination resorts, include
significant capacity for new residential development. Community members have expressed
concern regarding the use of these homes as primary residences, second homes, or
vacation rentals.
[chart or infographic that summarizes info in tables shown below – show table totals or
subtotals by category of area or community (e.g., destination resorts, resort communities, rural
residential zones, etc.]
Table 1. Vacant Lots in Resort Areas, Source: Deschutes County 2020 Housing Profile
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Chapter 10: Housing Page 5
Table 2. Vacant Lots in Rural Residential Areas, Source: Deschutes County 2020 Housing Profile
Table 3. Expected Future Opportunities for Rural Residential Lots, Source: Deschutes County 2020 Housing Profile
Recent changes in County housing rules. The County has recently adopted and/or is
currently considering new rules related to development and regulation of different types of
housing. These include:
• Changes to where accessory dwelling units are allowed.
• Repeal of the County’s “Conventional Housing Combining Zone” which prohibited
manufactured homes in three large unincorporated areas east and west of Tumalo
and east of Bend.
Key Community Considerations
Given the range of issues and conditions discussed related to this important topic, the
Comprehensive Plan includes a variety of policies to guide future development of housing
and address impacts to residents in rural areas. Additional related policies are found in
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Chapter 2 (Land Use) and Chapter 13 (Transportation). These strategies are underpinned
by community sentiment, as described below.
• Some community members expressed support for allowing or encouraging growth
in rural areas, particularly to alleviate housing pressure and provide larger-lot
options. However, engagement showed greater opposition to residential
development outside of Urban Growth Boundaries.
• Overall support for allowing a wider range of types of housing (e.g., accessory
dwelling units, manufactured homes, recreational vehicles, etc.), but concerns about
the quality of this housing and additional rural residential development in general.
• Concern about homelessness and its impacts, coupled with strong support for a
proactive approach by the County to work with partner agencies and groups to
address this issue.
• Relatively strong opposition for rezoning low productivity farmland with poor soil to
allow greater opportunities for housing, due to negative impact on open space,
habitat, transportation, and active farm practices.
Housing Goals and Policies
Goal 10.1: Support housing opportunities and choices for rural County residents in
unincorporated Deschutes County, while meeting health and safety concerns,
minimizing environmental and resource land impacts.
• Policy 10.1.1. Incorporate annual farm and forest housing reports into a wider
system for tracking the cumulative impacts of rural housing development.
• Policy 10.1.2. Continue to update the County zoning ordinance and work with
partnering organizations to address health and safety issues associated with
housing.
• Policy 10.1.3. Encourage and/or require, where consistent with County policies and
requirements, new subdivisions to incorporate alternative development patterns,
such as cluster development, that mitigate community and environmental impacts.
• Policy 10.1.4. Implement legislation allowing accessory dwelling units in rural areas
to expand housing choices.
• Policy 10.1.5. Create and encourage opportunities for flexibility in rural housing
including development of manufactured home parks, safe parking sites, and RV
parking areas.
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• Policy 10.1.6. Reduce barriers to housing development and supporting services
(such as locally serving medical offices or similar uses) in unincorporated
communities.
• Policy 10.1.7. Explore grants and funding opportunities for ongoing maintenance
and rehabilitation of existing housing stock.
• Policy 10.1.8. Evaluate the impacts of short-term rentals and consider regulations to
mitigate impacts, as appropriate.
Goal 10.2: Support agencies and non-profits that provide affordable housing.
• Policy 10.2.1. Support Central Oregon Regional Housing Authority and other
stakeholders to meet the housing needs of all Deschutes County residents by
assisting, as needed, in coordinating and implementing housing assistance
programs.
• Policy 10.2.2. Utilize block grants and other funding to assist in providing and
maintaining low- and moderate-income housing in partnership with Housing Works
and other housing agencies and providers in Deschutes County.
Goal 10.3: Regulate the location and density of housing in the area located between
the Bend UGB and Shevlin Park through Westside Transect policies
• Policy 10.3.1. Protect the sensitive eco-systems and interrelationships of the
urban/rural interface on the west side of Bend between the urban area and Shevlin
Park and the public and forestlands to the west.
• Policy 10.3.2. Protect natural resources and environmentally sensitive areas and
provide special setbacks between development and Shevlin Park, Tumalo Creek, and
forestlands.
• Policy 10.3.3. Development patterns shall reflect the protection of land with
environmental significance and fire-wise and other fire prevention community
design best practices.
• Policy 10.3.4. Limit residential development to 200 single-family residential lots.
• Policy 10.3.5. Manage all areas outside of the structural building envelopes on
residential lots for wildfire mitigation and wildlife habitat in accordance with
coordinated plans prepared by professionals, reviewed annually with reports
submitted to the County every three years. The wildfire mitigation and wildlife
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habitat plans shall be funded through homeowner assessments and administered
and enforced by a homeowners association established at the time of creation of
any residential lots.
• Policy 10.3.6. Reduce the impact of construction by using best management
practices to minimize site disturbance during construction and construction impacts
(i.e., erosion) on Shevlin Park, Tumalo Creek, and forestlands.
• Policy 10.3.7. Coordinate with the City of Bend for mitigation of impacts to City
infrastructure from development within the Transect.
Goal 10.4: Participate in regional efforts to plan for housing.
• Policy 10.4.1. Collaborate with cities and private sector partners on innovative
housing developments to meet the region’s housing needs.
• Policy 10.4.2. Partner with cities to incentivize development within urban growth
boundaries and reduce infrastructure costs for workforce and affordable housing.
• Policy 10.4.3. Partner with local, state, and federal agencies to address and limit
nuisance and public health issues related to homelessness.
• Policy 10.4.4. Utilize County owned land in city limits for affordable and workforce
housing, where appropriate.
• Policy 10.4.5. Promote regional housing planning, including urban reserve planning
for cities, to allow for longer term and multi-jurisdictional housing strategies.
• Policy 10.4.6. Limit parcelization and development adjacent to cities or in conflict
with planned and/or known road/utility corridors to preserve land for future urban
development.
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Chapter 11: Unincorporated Communities and Destination Resorts Page 1
Deschutes County Comprehensive Plan
Draft Comprehensive Plan Chapters
Chapter 11: Unincorporated Communities and Destination
Resorts
Opportunities, Challenges, and Considerations
Deschutes County is home to numerous unincorporated communities, which contain
urban levels of development outside of city limits. Many of these communities provide
services and amenities to rural residents. As the county continues to grow, many residents
are concerned about increasingly dense development in these unincorporated areas which
may feel out of scale with the surrounding rural uses. However, many residents also see
the need for more opportunities for small-scale rural services and retail opportunities to
serve existing and future community members. Deschutes County will need to continue to
refine the vision and guidelines for development in these areas while balancing
infrastructure needs, protection of natural resources and rural land uses, and community
desires.
In addition to these unincorporated communities, Destination Resorts are another form of
development outside of urban areas. In recent years, community members have expressed
concern about the creation of new resorts for a variety of reasons. While Destination
Resorts are an opportunity for economic development and housing in the rural County,
many residents have expressed opposition to additional development of this type.
[Map – Unincorporated Communities and Destination Resorts]
Context
Unincorporated Communities
Deschutes County‘s unincorporated communities generally pre-date Oregon’s statewide
land use system and have more urban-scale uses in outer-lying rural areas, within a
defined geographic boundary.
In 1994, Oregon Administrative Rules (OARs) were amended to define unincorporated
communities and the types of uses that could be allowed in these areas. The OARs
established four types of unincorporated communities, all of which were required to be in
existence at the time of the change - the Rule did not allow for new rural communities to
be established. These community types are described below.
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Chapter 11: Unincorporated Communities and Destination Resorts Page 2
• Urban Unincorporated Community - this is a community which contains at least
150 permanent dwelling units, a mixture of land uses, and contains a community
water and sewer system. Sunriver is an Urban Unincorporated community. One
parcel just outside of the City of La Pine was mistakenly left outside of the City’s
urban growth boundary, and is technically under this classification as well.
• Rural Community - this is a community which consists of permanent residential
dwellings and at least two other types of land uses – such as commercial, industrial,
or public uses provided to the community or travelers. Terrebonne and Tumalo are
Rural Communities.
• Resort Community - this type of community was established for a recreation-
related use on private land prior to 1989 when the state adopted its Destination
Resort rules. Black Butte Ranch and Inn of the 7th Mountain/Widgi Creek are Resort
Communities. It's important to note that there are several other resort style
developments in the County on private lands called “Destination Resorts.” See the
next section for more information.
• Rural Service Center – this is an unincorporated community that has primarily
commercial or industrial uses that provide goods and services to the surrounding
rural area and travelers. These are the most common type of unincorporated
community in Deschutes County and include Alfalfa, Brothers, Hampton, Millican,
Whistlestop, and Wildhunt.
Destination Resorts
[Images of existing destination resorts, map of destination resorts and other areas that are
similar but don’t fall under that definition, table with information of
proposed/platted/developed lots]
Since 1979 destination resorts have increased in importance to the economy of Deschutes
County. In 1989, recognizing the importance of tourism to the economy of the State of
Oregon, the state legislature and the Land Conservation and Development Commission
(LCDC) took steps to make it easier to establish destination resorts on rural lands in the
state. Statewide Planning Goal 8, the recreation goal, was amended to specify a process for
locating destination resorts on rural land without taking an exception to Goals 3, 4, 11 and
14, which govern development in rural resource lands. Under these changes, destination
resorts may be sited in EFU zones where they weren't previously allowed. In 1990, LCDC
amended the rule for siting destination resorts on forest lands as well.
Eagle Crest Resort, although it had existed prior to these changes, applied for legislative
changes to comply with these new rules and expand onto adjacent lands.
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In 2010, Deschutes County completed an amendment to its destination resort mapping
process, adding “clear and objective” requirements for eligible and ineligible sites, and the
process for amending the destination resort map based on changes in state law. Since that
time, Pronghorn, Caldera Springs, and Tetherow resorts have gone through the siting
process. Resorts existing prior to the legislative change, such as Black Butte, Sunriver, and
the Inn of the Seventh Mountain have also expanded and been rezoned to Urban
Unincorporated Community and Resort Community, respectively. Thornburgh Resort has
received preliminary approvals, but has not yet broken ground.
Key Community Considerations
Unincorporated Communities are limited in their development potential due to their
specific geographic footprint. Protecting open space and natural resources while providing
economic opportunities in these unincorporated areas continues to be a balancing act.
As additional rural development occurs, so does the demand for services and goods that
can be reached without having to drive to an incorporated city. Aging residents have
expressed a desire for additional medical care and offices in rural areas to support aging in
place. On the other hand, many residents would prefer limiting development in
unincorporated communities in order to preserve the rural of the area.
Destination Resort development continues to be a contentious issue. Community members
have expressed concern regarding the water use of large-scale development – specifically
the effects to groundwater for neighboring property owners. Many community members
have expressed a desire to further limit destination resorts, golf courses, and visitor
accommodations in order to preserve water access and availability for year-round
residents.
Goals and Policies
Destination Resorts Policies
Goal 11.1: Provide for development of destination resorts in the County in a manner
that will be compatible with farm and forest uses, existing rural development, and in
a manner that will maintain important natural features including habitat of
threatened or endangered species, streams, rivers, and significant wetlands.
• Policy 11.1.1. Provide a process for the siting of destination resorts facilities that
enhance and diversify the recreational opportunities and economy of Deschutes
County, on lands that have been mapped by Deschutes County as eligible for this
purpose.
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Goal 11.2: Provide for development of destination resorts consistent with Statewide
Planning Goal 12 in a manner that will ensure the resorts are supported by adequate
transportation facilities.
• Policy 11.2.1. Destination resorts shall only be allowed within areas shown on the
“Deschutes County Destination Resort Map” and when the resort complies with the
requirements of Goal 8, ORS 197.435 to 197.467, and Deschutes County Code
18.113.
• Policy 11.2.2. Create and implement additional limitations on the siting and
development of destination resorts that go beyond current state regulations to
ensure protection of water quality, recreational resources, and other County
resources and values.
• Policy 11.2.3. Ensure that destination resort developments support and implement
strategies to provide workers with affordable housing options within or in close
proximity to the resorts.
• Policy 11.2.4. Mapping for destination resort siting.
o a. To assure that resort development does not conflict with the objectives of
other Statewide Planning Goals, destination resorts shall pursuant to Goal 8
not be sited in Deschutes County in the following areas:
1. Within 24 air miles of an urban growth boundary with an existing
population of 100,000 or more unless residential uses are limited to
those necessary for the staff and management of the resort;
2. On a site with 50 or more contiguous acres of unique or prime farm
land identified and mapped by the Soil Conservation Service or within
three miles of farm land within a High-Value Crop Area;
3. On predominantly Cubic Foot Site Class 1 or 2 forest lands which
are not subject to an approved Goal exception;
4. On areas protected as Goal 5 resources in an acknowledged
comprehensive plan where all conflicting uses have been prohibited
to protect the Goal 5 resource;
5. Especially sensitive big game habitat, and as listed below, as
generally mapped by the Oregon Department of Fish and Wildlife in
July 1984 an as further refined through development of
comprehensive plan provisions implementing this requirement.
• i. Tumalo deer winter range;
• ii. Portion of the Metolius deer winter range;
• iii. Antelope winter range east of Bend near Horse Ridge and
Millican;
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6. Sites less than 160 acres.
o b. To assure that resort development does not conflict with Oregon Revised
Statute, destination resorts shall not be sited in Deschutes County in Areas of
Critical State Concern.
o c. To assure that resort development does not conflict with the objectives of
Deschutes County, destination resorts shall also not be located in the
following areas:
1. Sites listed below that are inventoried Goal 5 resources, shown on
the Wildlife Combining Zone, that the County has chosen to protect:
• i. Antelope Range near Horse Ridge and Millican;
• ii. Elk Habitat Area; and
• iii. Deer Winter Range;
2. Wildlife Priority Area, identified on the 1999 ODFW map submitted
to the South County Regional Problem Solving Group;
3. Lands zoned Open Space and Conservation (OS&C);
4. Lands zoned Forest Use 1 (F-1);
5. Irrigated lands zoned Exclusive Farm Use (EFU) having 40 or greater
contiguous acres in irrigation;
6. Non-contiguous EFU acres in the same ownership having 60 or
greater irrigated acres;
7. Farm or forest land within one mile outside of urban growth
boundaries;
8. Lands designated Urban Reserve Area under ORS 195.145;
9. Platted subdivisions;
o d. For those lands not located in any of the areas designated in Policy 3.9.5(a)
though (c), destination resorts may, pursuant to Goal 8, Oregon Revised
Statute and Deschutes County zoning code, be sited in the following areas:
1. Forest Use 2 (F-2), Multiple Use Agriculture (MUA-10), and Rural
Residential (RR-10) zones;
2. Unirrigated Exclusive Farm Use (EFU) land;
3. Irrigated lands zoned EFU having less than 40 contiguous acres in
irrigation;
4. Non-contiguous irrigated EFU acres in the same ownership having
less than 60 irrigated acres;
5. All property within a subdivision for which cluster development
approval was obtained prior to 1990, for which the original cluster
development approval designated at least 50 percent of the
development as open space and which was within the destination
resort zone prior to the effective date of Ordinance 2010-024 shall
remain on the eligibility map;
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6. Minimum site of 160 contiguous acres or greater under one or
multiple ownerships;
o e. The County shall adopt a map showing where destination resorts can be
located in the County. Such map shall become part of the Comprehensive
Plan and Zoning Ordinance and shall be an overlay zone designated
Destination Resort (DR).
• Policy 11.2.5. Ordinance Provisions
o a. The County shall ensure that destination resorts are compatible with the
site and adjacent land uses through enactment of land use regulations that,
at a minimum, provide for the following:
1. Maintenance of important natural features, including habitat of
threatened or endangered species, streams, rivers, and significant
wetlands; maintenance of riparian vegetation within 100 feet of
streams, rivers and significant wetlands; and
2. Location and design of improvements and activities in a manner
that will avoid or minimize adverse effects of the resort on uses on
surrounding lands, particularly effects on intensive farming
operations in the area and on the rural transportation system. In
order to adequately assess the effect on the transportation system,
notice and the opportunity for comment shall be provided to the
relevant road authority.
3. Such regulations may allow for alterations to important natural
features, including placement of structures, provided that the overall
values of the feature are maintained.
o b. Minimum measures to assure that design and placement of improvements
and activities will avoid or minimize the adverse effects noted in Policy
3.9.4(a) shall include:
1. The establishment and maintenance of buffers between the resort
and adjacent land uses, including natural vegetation and where
appropriate, fenced, berms, landscaped areas, and other similar types
of buffers.
2. Setbacks of structures and other improvements from adjacent land
uses.
o c. The County may adopt additional land use restrictions to ensure that
proposed destination resorts are compatible with the environmental
capabilities of the site and surrounding land uses.
o d. Uses in destination resorts shall be limited to visitor- oriented
accommodations, overnight lodgings, developed recreational facilities,
commercial uses limited to types and levels necessary to meet the needs of
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visitors to the resort, and uses consistent with preservation and maintenance
of open space.
o e. The zoning ordinance shall include measures that assure that developed
recreational facilities, visitor-oriented accommodations and key facilities
intended to serve the entire development are physically provided or are
guaranteed through surety bonding or substantially equivalent financial
assurances prior to closure of sale of individual lots or units. In phased
developments, developed recreational facilities and other key facilitated
intended to serve a particular phase shall be constructed prior to sales in
that phase or guaranteed through surety bonding.
Sunriver Policies
General Sunriver Policies
• Policy 11.3.1. Land use regulations shall conform to the requirements of OAR 660
Division 22 or any successor.
• Policy 11.3.2. County comprehensive plan policies and land use regulations shall
ensure that new uses authorized within the Sunriver Urban Unincorporated
Community do not adversely affect forest uses in the surrounding Forest Use
Zones.
• Policy 11.3.3. To protect scenic views and riparian habitat within the community,
appropriate setbacks shall be required for all structures built on properties with
frontage along the Deschutes River.
• Policy 11.3.4. Open space and common area, unless otherwise zoned for
development, shall remain undeveloped except for community amenities such as
bike and pedestrian paths, and parks and picnic areas.
• Policy 11.3.5. Public access to the Deschutes River shall be preserved.
• Policy 11.3.6. The County supports the design review standards administered by
the Sunriver Owners Association.
Sunriver Residential District Policies
• Policy 11.4.1. Areas designated residential on the comprehensive plan map shall be
developed with single family or multiple family residential housing.
Sunriver Commercial District Policies
• Policy 11.5.1. Small-scale, low-impact commercial uses shall be developed in
conformance with the requirements of OAR Chapter 660, Division 22. Larger, more
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intense commercial uses shall be permitted if they are intended to serve the
community, the surrounding rural area and the travel needs of people passing
through the area.
• Policy 11.5.2. No additional land shall be designated Commercial until the next
periodic review.
• Policy 11.5.3. Multiple-family residences and residential units in commercial
buildings shall be permitted in the commercial area for the purpose of providing
housing which is adjacent to places of employment. Single-family residences shall
not be permitted in commercial areas.
• Policy 11.5.4. Approval standards for conditional uses in the commercial district
shall take into consideration the impact of the proposed use on the nearby
residential and commercial uses and the capacity of the transportation system and
public facilities and services to serve the proposed use.
Sunriver Town Center District Policies
• Policy 11.6.1. Small-scale, low-impact commercial uses shall be developed in
conformance with the requirements of OAR Chapter 660, Division 22. Larger, more
intense commercial uses shall be permitted if they are intended to serve the
community, the surrounding rural area or the travel needs of people passing
through the area.
• Policy 11.6.2. Development standards in the town center district should encourage
new development that is compatible with a town center style of development that
serves as the commercial core of the Sunriver Urban Unincorporated Community.
The following policies should guide development in the Town Center District in
Sunriver:
o a. Combine a mixture of land uses that may include retail, offices,
commercial services, residential housing and civic uses to create economic
and social vitality and encourage pedestrian use through mixed use and
stand alone residential buildings.
o b. Develop a commercial mixed-use area that is safe, comfortable and
attractive to pedestrians.
o c. Encourage efficient land use by facilitating compact, high-density
development that minimizes the amount of land that is needed for
development.
o d. Provide both formal and informal community gathering places.
o e. Provide visitor accommodations and tourism amenities appropriate to
Sunriver.
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o f. Provide design flexibility to anticipate changes in the marketplace.
o g. Provide access and public places that encourage pedestrian and bicycle
travel.
o h. Provide road and pedestrian connections to residential areas.
o i. Facilitate development (land use mix, density and design) that supports
public transit where applicable.
o j. Develop a distinct character and quality design appropriate to Sunriver that
will identify the Town Center as the centerpiece/focal point of the
community.
• Policy 11.6.3. Development within the Town Center (TC) District will be substantially
more dense than development elsewhere in Sunriver. This increased density will
require changes to existing topography and vegetation in the TC District to allow for
screened, underground parking. The requirements of the County’s site plan
ordinance shall be interpreted to reflect this fact.
Sunriver Resort District Policies
• Policy 11.7.1. Areas designated resort on the comprehensive plan map shall be
designated resort, resort marina, resort golf course, resort equestrian or resort
nature center district on the zoning map to reflect a development pattern which is
consistent with resort uses and activities.
Sunriver Business Park District Policies
• Policy 11.8.1. A variety of commercial uses which support the needs of the
community and surrounding rural area, and not uses solely intended to attract
resort visitors, should be encouraged.
• Policy 11.8.2. Allow small-scale, low-impact commercial uses in conformance with
the requirements of OAR Chapter 660, Division 22. Larger more intense commercial
uses shall be permitted if they are intended to serve the community, the
surrounding rural area and the travel needs of people passing through the area.
• Policy 11.8.3. Small-scale, low-impact industrial uses should be allowed in
conformance with the requirements of OAR Chapter 660, Division 22.
Sunriver Community District Policies
• Policy 11.9.1. Areas designated community on the comprehensive plan map shall
be designated community general, community recreation, community limited or
community neighborhood district on the zoning map to reflect a development
pattern which is consistent community uses and activities.
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• Policy 11.9.2. Lands designated community shall be developed with uses which
support all facets of community needs, be they those of year-round residents or
part-time residents and tourists.
• Policy 11.9.3. Development shall take into consideration the unique physical
features of the community and be sensitive to the residential development within
which the community areas are interspersed.
Sunriver Airport District Policies
• Policy 11.10.1. Future development shall not result in structures or uses which, due
to extreme height or attraction of birds, would pose a hazard to the operation of
aircraft.
• Policy 11.10.2. Future development should not allow uses which would result in
large concentrations or gatherings of people in a single location.
Sunriver Utility District Policies
• Policy 11.11.1. Lands designated utility shall allow for development of
administrative offices, substations, storage/repair yards, distribution lines and
similar amenities for services such as water, sewer, telephone, cable television and
wireless telecommunications.
Sunriver Forest District Policies
• Policy 11.12.1. Uses and development on property designated forest that are within
the Sunriver Urban Unincorporated Community boundary shall be consistent with
uses and development of other lands outside of the community boundary which are
also designated forest on the Deschutes County comprehensive plan map.
• Policy 11.12.2. Forest district property shall be used primarily for effluent storage
ponds, spray irrigation of effluent, biosolids application and ancillary facilities
necessary to meet Oregon Department of Environmental Quality sewage disposal
regulations.
• Policy 11.12.3. The development of resort, residential or non-forest commercial
activities on Forest district lands shall be prohibited unless an exception to Goal 14
is taken.
Sunriver General Public Facility Policies
• Policy 11.13.1. Residential minimum lot sizes and densities shall be determined by the
capacity of the water and sewer facilities to accommodate existing and future
development and growth.
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• Policy 11.13.2. New uses or expansion of existing uses within the Sunriver Urban
Unincorporated Community which require land use approval shall be approved only
upon confirmation from the Sunriver Utility Company that water and sewer service for
such uses can be provided.
• Policy 11.13.3. Expansion of the Sunriver Water LLC/Environmental/LLC Water and
Sewer District outside of the historic Sunriver boundaries shall adequately address the
impacts to services provided to existing property owners.
Sunriver Water Facility Policies
• Policy 11.14.1. Water service shall continue to be provided by the Sunriver Utilities
Company.
Sunriver Sewer Facility Policies
• Policy 11.15.1. Sewer service shall continue to be provided by the Sunriver Utilities
Company.
Sunriver Transportation System Maintenance Policies
• Policy 11.16.1. Privately-maintained roads within the Sunriver Urban Unincorporated
Community boundary shall continue to be maintained by the Sunriver Owners
Association.
• Policy 11.16.2. The bicycle/pedestrian path system in Sunriver shall continue to be
maintained by the Sunriver Owners Association or as otherwise provided by a
maintenance agreement.
• Policy 11.16.3. The County will encourage the future expansion of bicycle/pedestrian
paths within the Sunriver Urban Unincorporated Community boundary in an effort to
provide an alternative to vehicular travel.
• Policy 11.16.4. All public roads maintained by the County shall continue to be
maintained by the County. Improvements to County maintained public roads shall
occur as described the County Transportation System Plan.
Resort Community Policies
General Resort Community Policies
• Policy 11.17.1. Land use regulations shall conform to the requirements of OAR 660
Division 22 or any successor.
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• Policy 11.17.2. Designated open space and common area, unless otherwise zoned for
development, shall remain undeveloped except for community amenities such as bike
and pedestrian paths, park and picnic areas. Areas developed as golf courses shall
remain available for that purpose or for open space/recreation uses.
• Policy 11.17.3. The provisions of the Landscape Management Overlay Zone shall apply
in Resort Communities where the zone exists along Century Drive, Highway 26 and the
Deschutes River.
• Policy 11.17.4. Residential minimum lot sizes and densities shall be determined by the
capacity of the water and sewer facilities to accommodate existing and future
development and growth.
• Policy 11.17.5. The resort facility and resort recreation uses permitted in the zoning for
Black Butte Ranch and the Inn of the Seventh Mountain/Widgi Creek shall serve the
resort community.
Black Butte Ranch General Policies
• Policy 11.18.1. County comprehensive plan policies and land use regulations shall
ensure that new uses authorized within the Black Butte Ranch Resort Community do
not adversely affect forest uses in the surrounding Forest Use Zones.
• Policy 11.18.2. The County supports the design review standards administered by the
Architectural Review Committee.
• Policy 11.18.3. Residential, resort and utility uses shall continue to be developed in
accordance with the Master Design for Black Butte Ranch and the respective Section
Declarations.
• Policy 11.18.4. Industrial activities, including surface mining, shall only occur in the area
zoned Black Butte Ranch Surface Mining, Limited Use Combining District (Black Butte
Ranch SM/LU) located in the northwest corner of Black Butte Ranch.
• Policy 11.18.5. Employee housing shall be located in the area zoned Black Butte Ranch-
Utility/Limited Use Combining District (Black Butte Ranch-U/LU).
• Policy 11.18.6. Any amendment to the allowable use(s) in either the Resort Community
District or the Limited Use Combining District shall require an exception in accordance
with applicable statewide planning goal(s), OAR 660-04-018/022 and DCC 18.112 or any
successor.
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• Policy 11.18.7. The westerly 38-acres zoned Black Butte Ranch Surface Mining, Limited
Use Combining District (Black Butte Ranch SM/LU) shall be used for the mining and
storage of aggregate resources. Uses that do not prevent the future mining of these
resources, such as disposal of reclaimed effluent and woody debris disposal from
thinning and other forest practices may be allowed concurrently. Other resort
maintenance, operational and utility uses, such as a solid waste transfer station,
maintenance facility or equipment storage may be allowed only after mining and
reclamation have occurred.
• Policy 11.18.8. The 18.5 acres zoned Black Butte Ranch-Utility/Limited Use Combining
District (Black Butte Ranch-U/LU) may be used for the disposal of reclaimed sludge.
• Policy 11.18.9. The area west of McCallister Road and east of the area zoned Black
Butte Ranch may be used for large equipment storage, general storage, maintenance
uses, RV storage, telephone communications, administration offices, housekeeping
facilities and employee housing.
• Policy 11.18.10. Employee housing shall be set back at least 250 feet from the eastern
boundary of the area zoned Black Butte Ranch Surface Mining, Limited Use Combining
District (Black Butte Ranch SM/LU).
• Policy 11.18.11. Surface mining within the Black Butte Ranch community boundary
shall adhere to the following Goal 5 ESEE “Program to Meet Goal” requirements:
o a. Only the western most 38 acres of the site shall continue to be mined.
o b. Setbacks shall be required for potential conflicting residential and other
development. A minimum 50-foot setback shall be maintained from the
perimeter of tax lot 202 for all surface mining activity.
o c. Noise impact shall be mitigated by buffering and screening.
o d. Hours of operation shall be limited to between 7:00 a.m. and 6:00 p.m.
weekdays. No operations shall be allowed on weekends and holidays.
o e. Processing shall be limited to 45 days in any one year, to be negotiated with
Deschutes County in the site plan process in consultation with the Oregon
Department of Fish and Wildlife (ODFW).
o f. The conditions set forth in the August 10, 1989, letter of ODFW shall be
adhered to.
o g. Extraction at the site shall be limited to five acres at a time with on-going
incremental reclamation (subject to DOGAMI review and approval).
o h. Mining operations, siting of equipment, and trucking of product shall be
conducted in such a manner that applicable DEQ standards are met and
minimizes noise and dust.
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o i. DOGAMI requirements for a permit once mining affects more than five acres
outside the 8.6-acre exemption area shall be met.
o j. A conditional use permit shall be obtained from Deschutes County, under the
provisions of section 18.128.280. Surface mining of resources exclusively for on-
site personal, farm or forest use or maintenance of irrigation canals, before
mining activity affects more than five acres outside the 8.6-acre exempt area.
Black Butte Ranch Public Facility Policies
• Policy 11.19.1. Police protection services shall be provided by the Black Butte Ranch
Police Services District.
• Policy 11.19.2. The Black Butte Ranch Water Distribution Company and the Black Butte
Ranch Corporation shall confirm the water and sewer service, respectively, can be
provided for new uses or expansion of existing uses that require land use approval.
• Policy 11.19.3. The Black Butte Ranch Water Distribution Company shall provide water
service for the Black Butte Ranch Resort Community.
• Policy 11.19.4. The Black Butte Ranch Corporation shall provide sewer service for Black
Butte Ranch.
• Policy 11.19.5. The Black Butte Ranch Fire Protection District shall provide fire
protection services for Black Butte Ranch.
• Policy 11.19.6. The roads and the bicycle/pedestrian path system within the Black Butte
Ranch Resort Community boundary shall be maintained by the Black Butte Ranch
Owners Association.
Inn of the 7th Mountain Widgi Creek General Policies
• Policy 11.20.1. Any amendment to the allowable uses in either the Resort Community
District or the Widgi Creek Residential District shall require an exception in accordance
with applicable statewide planning goal(s), OAR 660-04-018/022 or any successor, and
DCC 18.112 or any successor.
• Policy 11.20.2. The County shall encourage and support land exchanges efforts by and
between private property owners, public agencies, and public trusts for the purpose of
fostering public access to and protection of natural resources, such as rivers, streams,
caves, areas/features of historical importance and other natural features.
Inn of the 7th Mountain/Widgi Creek Public Facility Policies
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• Policy 11.21.1. Police protection services shall be provided under contract with the
Deschutes County Sheriff.
• Policy 11.22.2. Water service shall be supplied by on-site wells for the Inn/Widgi Resort
Community.
• Policy 11.22.3. New uses or expansion of existing uses that require land use approval
shall be approved only upon confirmation from the City of Bend that sewer service can
be provided.
• Policy 11.22.4. Fire protection services for the Inn/Widgi shall be provided through a
contract with the City of Bend until such time as Inn/Widgi develops another plan to
provide adequate fire protection.
• Policy 11.22.5. The Resort Community, not Deschutes County, shall maintain roads in
the community.
• Policy 11.22.6. The bicycle/pedestrian path system shall be maintained by the
Inn/Widgi Owners Association.
• Policy 11.22.7. Emergency access between Widgi Creek and the Inn of the Seventh
Mountain shall be provided in accordance with the approved development plan for the
Elkai Woods town homes. The respective resort property owners shall maintain
emergency access between the Inn and Widgi Creek
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Chapter 12: Public Facilities Page 1
Deschutes County Comprehensive Plan
Draft Chapters
Chapter 12: Public Facilities and Services
Opportunities, Challenges, and Considerations.
Public facilities and services provide the basic infrastructure for urban and rural
development. These systems include water and sewer systems, police and fire protection,
health and social services, schools, and libraries. The transportation system is also a public
facility – the County has developed and maintains a Transportation System Plan that is
included as Appendix B.
These public services are provided by a variety of entities, each with their own jurisdiction,
funding sources, and regulatory requirements. Overall, the provision of facilities and
services is more efficient and cost-effective in urban areas than in rural development,
where ratepayers may be few and far between. In some areas of the County, particularly
east County, available services are limited due to lower population density and distance
from urban centers. Many of the people who choose to reside there consider the limited
availability of services and facilities as an acceptable tradeoff for a rural lifestyle.
Statewide Planning Goal 11, Public Facilities and Services and the associated Oregon
Administrative Rule 660-011 specify that facilities and services should be appropriate for,
but limited to, the needs and requirements of rural areas to be served. Public facility plans
are not required (with some exceptions); in fact, Goal 11 and the associated rule set limits
to the provision of sewers and water systems in rural areas, in order to limit rural growth.
There are several important issues relating to the provision of public facilities and services
that this Comprehensive Plan addresses, including:
• Meeting the needs of county residents while supporting the protection of resource
lands;
• Maintaining health, safety, and security throughout the county; and
• Cooperation among the various providers of public services.
Context
Deschutes County plays a role in ensuring that public facilities and services are planned for,
however the facilities and services are often not provided by county government directly.
The discussion below highlights who provides the services listed and how the County will
manage development impacts on existing facilities and services.
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Chapter 12: Public Facilities Page 2
County Facilities and Services
Law Enforcement: The Deschutes County Sheriff’s Office is a full service organization
providing patrol, traffic team, criminal investigations, corrections, civil and search and
rescue. Special operations include a Marine Patrol, K-9 units, and Forest Patrol. The Sheriff
is an elected public official who serves a four-year term. Housed within the Sheriff’s office is
the County’s Emergency Management Unit, which coordinates the countywide response to
natural hazards events.
Solid Waste: The County manages Knott Landfill Recycling and Transfer Station, which is
the only landfill in Deschutes County. In addition to this, the department manages four
additional transfer stations throughout the County which gather waste in convenient
locations, before transferring to the Knott Landfill facility. Operations at the landfill include
recycling, hazardous waste disposal, and composting. This landfill site is anticipated to
remain open until 2029 at which time it is projected to reach maximum capacity.
The Deschutes County Solid Waste Department is currently undertaking a new landfill
siting process, which is anticipated to be completed in 2024. In the future, the County will
likely need to site addition facilities to support composting, recycling, and waste stream
diversion facilities.
Figure x: Deschutes County Solid Waste System, Source: Solid Waste Management Plan, 2019
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Chapter 12: Public Facilities Page 3
County Health Department: Deschutes County Health Services has a primary
responsibility to help address the basic health and wellness of Deschutes County residents.
The department offers services at more than 40 locations in Deschutes County including
public schools; health clinics in Bend, La Pine, Redmond and Sisters; five school-based
health clinics; agencies such as the KIDS Center and the State of Oregon Department of
Human Services; area hospitals; care facilities and homes.
Fairgrounds: The County maintains the County Fairgrounds and Expo Center. With
panoramic views of the snow-capped Cascade range, the Deschutes County Fair and Expo
Center is situated on the outskirts of Redmond just off of Hwy 97 and adjacent to the
Redmond Municipal Airport. Due to its central location, the fairgrounds also serves as an
emergency center. The fairgrounds hosts the annual County Fair and numerous other
events throughout the year.
Other Agency Facilities and Services
Where other agencies provide facilities and services, the County coordinates with
numerous other providers of facilities and services for the benefit of County residents.
Where there are gaps in the coverage for specific areas, the County can work with
providers to fill them. A selection of other agencies and entities are noted below.
Central Oregon Intergovernmental Council (COIC): COIC began serving the residents
and communities of Central Oregon in 1972 as a Council of Governments organized under
ORS 190 by Crook, Deschutes and Jefferson Counties and Bend, Culver, Madras, Metolius,
Prineville, Redmond and Sisters. COIC provides a wide variety of educational and economic
development services such as workforce training, alternative high school education,
business loans and public transportation. COIC continues to evolve to meet the needs of
Central Oregon.
COIC is governed by a 15-member board made up of elected officials who are appointed by
each of the member governments as well as appointed representatives of key economic
sectors – business and industry, tourism and recreation, agribusiness and agriculture,
timber and wood products, and the unemployed/underemployed.
School Districts: There are three school districts in Deschutes County:
• Bend-La Pine (SD 1),
• Redmond (SD 2J) and
• Sisters (SD 6).
Additionally, the Brothers Community School is owned and operated by Crook County
School District (SD 15). The High Desert Education Service District (ESD) partners with the
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Chapter 12: Public Facilities Page 4
districts to provide support services such as special education, school improvement,
administrative and legal services.
Fire Districts: The following fire districts support rural residents: Bend Fire Department,
Black Butte Ranch Rural Fire Protection District, Cloverdale Rural Fire Protection District,
Crooked River Ranch Rural Fire Protection District, Deschutes County Rural Fire Protection
District #1 and #2, La Pine Rural Fire Protection District, Sisters-Camp Sherman Rural Fire
Protection District, and Sunriver Service District. Public lands are protected by federal
agencies. There are some areas in Deschutes County that are not covered by a fire district.
(See Chapter 7 for more on fire protection.)
Irrigation Districts: Irrigation districts in Oregon are organized as Special Districts under
ORS Chapter 545. Six irrigation districts operate in Deschutes County: Arnold, Central
Oregon, North Unit, Swalley, Tumalo, Three Sisters Irrigation Districts. They are public
corporations under Oregon Law, with prescribed rules for purpose, boards, elections,
staffing, charges, etc. The districts are created for the purpose of delivering water to their
patrons. As such they are effectively non-profit water user associations. In addition to
irrigation uses, these districts also supply a number of other services, including municipal,
industrial, and pond maintenance, warranting coordination with municipalities.
Libraries: Deschutes Public Library has branches in Bend, Redmond, Sisters, La Pine and
Sunriver. They also operate a bookmobile program that focuses on children and parenting
books and a program for supplying books to homebound residents.
Higher Education: Deschutes County is home to Oregon State University Cascades
Campus (Bend) and Central Oregon Community College (Bend and Redmond). These
campuses are expected to grow significantly in the future.
Soil and Water Conservation District: Soil and Water Conservation Districts are
authorized by the State of Oregon to provide for the conservation of its soil and water
resources. Working in cooperation with stakeholders, the districts address issues such as
control and prevention of soil erosion, conservation and development of water resources,
water quality, and wildlife preservation. The Deschutes Soil and Water Conservation District
is a legally defined subdivision of the state government, but, like all soil and conservation
districts, functions as a local unity led by a locally elected board of directors who serve
without pay.
Public Water Systems: Public Water Systems are defined as those that have more than
three connections, supply water at least 60 days/year and are used by at least 10
persons/day. All water systems are regulated under the federal 1974 Safe Drinking Water
Act and 1981 Oregon Drinking Water Quality Act. Public Water Systems serving over 3,300
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people are overseen by the Oregon Department of Human Services Drinking Water
Program. The County acts as a contractor for the Department of Human Services to
monitor approximately 180 Public Water Systems. Some privately owned systems are, for
various reasons, regulated by the Public Utility Commission, which sets rates and rules for
public utilities.
Privately Owned Facilities and Services
Utilities
Electric: Electricity is provided by Pacific Power around Bend and Redmond. Central
Electric Cooperative and Midstate Electric provide service in the rest of the County. Phone
service is provided by Qwest and numerous cell phone providers. Cable is provided by
Bend Cable and satellite providers. Internet access is provided by a variety of entities.
Hospitals: Cascade Healthcare Community manages two hospitals: St. Charles Bend and
St. Charles Redmond. Additionally there are numerous health providers and clinics in the
County.
Sewer Districts: Creating or expanding existing sewer systems outside an urban growth
boundary or unincorporated community is governed by Statewide Goal 11 and OAR 660-
011-0060. In order to protect rural areas from urban-style development, the rules regulate
where and when rural sewers are appropriate. Some sewer districts, such as Oregon Water
Wonderland Unit 2, have used the Statewide Goal 2 exception process to create or expand
a sewer system.
Individual Facilities and Services
Private wells: Most rural properties are served by private wells that are approved and
managed by the Oregon Water Resources Department. The County currently does not
track the number of wells.
Individual septic systems: Most rural properties are served by septic systems that are
approved by the County Environmental Soils Division.
Key Community Considerations
The role that Deschutes County plays in the provision of public facilities and services was
part of the community discussion during the update of this Comprehensive Plan. Highlights
included:
• City governments currently own property outside of urban growth boundaries and
within County jurisdiction. In some instances, these lands are used for water and
wastewater treatment facilities. As the County continues to grow, additional facilities
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Chapter 12: Public Facilities Page 6
are likely to be needed, and coordination among jurisdictions regarding placement
of these facilities will be key.
• Significant population growth will lead to an increase in solid waste, requiring at
minimum the siting of a new landfill. Community members expressed a desire for
consideration of livability among other factors when considering the placement of
key public facilities.
Goals and Policies
Goal 12.1 Support the orderly, efficient, and cost-effective siting of rural public
facilities and services.
• Policy 12.1.1. Encourage and support the formation of special service districts to
serve the need for public facilities in rural areas.
• Policy 12.1.2. Encourage and support planning for and acquisition of sites needed
for public facilities, such as transportation, water, and wastewater facilities.
• Policy 12.1.3. Support the siting of community health clinics, hospitals, and private
medical practices to serve rural residents throughout the County.
• Policy 12.1.4. Continue to support the County Fairgrounds as a community
gathering place, event facility and home to the annual County Fair.
• Policy 12.1.5. Maintain the County Fairgrounds as an emergency readiness location
and staging area in the event of a Cascadia Subduction Zone earthquake or other
large disaster.
• Policy 12.1.6. Prior to disposing of County-owned property, consider whether the
land is appropriate for needed public projects such as schools, health clinics, fire
stations, senior centers, or affordable housing.
• Policy 12.1.7. Coordinate with rural service districts and providers to review
development proposals.
• Policy 12.1.8. Use the land use entitlement process to ensure new development
addresses and mitigates impacts on existing and planned public facilities.
• Policy 12.1.9. Support education districts, library districts and recreation districts in
meeting community needs, such as meeting spaces.
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• Policy 12.1.10. Where practicable, locate utility lines and facilities within or adjacent
to existing rights-of-way to avoid dividing farm or forest lands.
• Policy 12.1.11. Use the development code to mitigate visual and other impacts of
public facilities and cell towers.
• Policy 12.1.12. Use the Comprehensive Plan and Development Code to guide rural
development in a manner that supports the orderly and cost-efficient provision of
public facilities and services.
• Policy 12.1.13. Support siting and development of city owned water and wastewater
facilities on rural lands, including innovative facilities that include additional
community amenities.
Goal 12.2. Pursue sustainable, innovative, and cost-effective waste management
practices
• Policy 12.2.1. Allow for siting of waste management facilities on rural lands,
including but not limited to landfill facilities, transfer stations, organics management
facilities, material recovery facilities, and recycling modernization facilities, in a
manner that is sensitive to environmental and community concerns.
• Policy 12.2.2. Provide incentives, education, and resources to promote reuse and
recycling of construction waste.
• Policy 12.2.3. Encourage waste reduction through community education and
partnerships with community groups such as the Environmental Center
• Policy 12.2.4. Support the creation of a landfill overlay zone.
Goal 12.3. Serve as a conduit for countywide resources.
• Policy 12.3.1. Provide resources to connect community members with a variety of
housing and health related issues in Deschutes County
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Chapter 13: Transportation Page 1
Deschutes County Comprehensive Plan
Draft Comprehensive Plan Chapters
Chapter 13: Transportation
The Deschutes County transportation system includes roadways, bicycle facilities,
pedestrian facilities, and transit facilities, as well as rail, air, marine, and pipeline systems.
In general, the County only owns, manages, and maintains facilities in the unincorporated
portions of the County. Facilities within the Urban Growth Boundaries of the incorporated
cities of Bend, Redmond, Sisters, and La Pine are managed and maintained by those cities.
In addition, the Oregon Department of Transportation (ODOT) owns and maintains a
number of state highways throughout the County.
Information about existing conditions, planned investments, and policies related to
transportation are contained in the Deschutes County Transportation System Plan (TSP),
which is adopted as Appendix B of this Comprehensive Plan.
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Chapter 14: Energy Page 1
Deschutes County Comprehensive Plan
Draft Comprehensive Plan Chapters
Chapter 14: Energy
Opportunities, Challenges, and Considerations
The amount, source, and distribution of energy used in Deschutes County is a fundamental
component of how we live our lives, and it is influenced by land use and other decisions
made at the County level. The State of Oregon requires land uses to be managed with an
eye to their energy impacts.
Statewide Planning Goal 13: Land and uses developed on the land shall be managed and
controlled so as to maximize the conservation of all forms of energy, based upon sound
economic principles.
In Deschutes County, the key energy issues include:
• Community design in more urban areas to limit the need for large vehicles
(generally powered with fossil fuel) for everyday tasks.
• Generating, transporting, and storing energy locally from a variety of sources, and
managing the impacts of these facilities.
• Conservation of energy through building design and orientation, the use of energy-
efficient technologies, and incentives/regulations/education to encourage others to
do so.
Deschutes County coordinates with utility providers that serve the area, including:
• Central Electric Cooperative
• Midstate Electric Cooperative
• Pacific Power (PacifiCorps)
• Cascades Natural Gas
Context
The role of Deschutes County in planning for energy is addressed in more detail below.
Solar Orientation
The solar orientation of structures can create significant energy savings and allows for
photovoltaic energy generation. The County has long promoted energy conservation
through a passive solar code that requires new structures to be sited so that they do not
block the sun from falling on adjacent properties.
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Chapter 14: Energy Page 2
Siting Large-Scale Energy Facilities
In general, cities and counties have siting authority over energy projects below a certain
size or generating capacity. This includes individual projects powering or supplementing
homes and businesses or small commercial projects which produce energy for sale. Larger
facilities are regulated by the Oregon Energy Facility Siting Council. The thresholds for
Siting Council jurisdiction are determined by the Legislature and are defined in Oregon
Revised Statutes (ORS) 469.300. The Siting Council does not regulate hydroelectric
development. Instead, the Oregon Water Resources Commission has the authority to issue
licenses for hydroelectric development.
Deschutes County currently has five developed large-scale energy facilities, primarily
located on the eastern side of the County, approved between 2015-2017. In 2018, the
Department of Land Conservation and Development altered statewide rules related to
these types of large-scale energy facilities on high value farmland, limiting development
opportunities in parts of the County. Community members have expressed concern
regarding impacts of these facilities on wildlife habitat and aesthetics.
In addition to solar, several irrigation districts have developed in conduit hydroelectric
facilities in which existing canals are upgraded with equipment for power generation. Three
of these facilities currently exist, two of which are owned and operated by Central Oregon
Irrigation District, and the third owned and operated by Three Sisters Irrigation District.
Small-Scale Residential, Business, and Commercial Energy Generation
The State oversees construction and approval of large commercial energy facilities, as
noted above. However, there is a role for local governments to oversee smaller commercial
projects. Commercial energy generation is considerably more complex than permitting
small projects for homes and businesses. From a land use perspective, the scale, extended
time frame, investment required and required off-site components all complicate the
approval process. For example, to move the electricity generated at an alternative energy
facility to market there is often a need for approval of roads, transmission lines or
substations. The accessory facilities may or may not be in place at the same site as the
main facility, but are an integral part of the project and are currently reviewed separately,
based on State regulations.
Wind Energy Generation
As shown in the following figure, wind energy is most abundant in the eastern portion of
Deschutes County.
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Chapter 14: Energy Page 3
Potential impacts of this type of facility include temporary construction impacts, habitat
loss and animal fatalities due to collision with turbines, visual impacts from towers and
accessory structures, and noise. Deschutes County regulates small scale wind energy
development generating less than 100 kilowatts of power. This allowance was added to the
Deschutes County Code in 2010, although since that time no applications have been
received to establish this type of facility.
Solar Energy Generation
The following figure gives a broad sense of where in the US solar irradiance is highest, and
therefore where solar generation will be most efficient. Deschutes County is generally
favorable to solar generation.
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Potential impacts of this type of facility include temporary construction impacts, habitat
loss, animal fatalities due to reflected sunlight (for some solar facilities), and visual impacts.
As noted previously, the Department of Land Conservation and Development amended its
rules in 2018 to limit solar development on high value farmland. Typically, solar
developments require large acreage and relatively flat terrain for their operations. This
requirement is a limiting factor in Deschutes County, as many of the properties that would
meet large acreage and terrain requirements are actively used for farming purposes. The
Bureau of Land Management is exploring an amendment to its rules to allow for greater
opportunity for solar development in the western United States. The County anticipates
limited solar development on private land going forward and an increase of leased BLM
land for this type of development in the future.
Commercial Biomass
Commercial biomass uses organic material such as wood, agricultural waste or crop
residues to power boilers to generate heat. According to the Oregon Forest Resources
Institute an estimated 4.25 million acres (about 15% of Oregon’s forestland) have the
potential to provide useful woody biomass through thinning to reduce the risk of
uncharacteristic forest fires.
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Potential impacts include temporary construction impacts, transportation impacts (as
materials need to be transported to a central location), visual impacts, and air quality and
climate impacts due to combustion of biofuels.
The County’s first biomass facility is under construction through a partnership with the
Deschutes National Forest and Mt. Bachelor Ski Resort. The project is located on federal
land and outside of the purview of Deschutes County regulations.
Geothermal Energy Generation
Geothermal energy is a form of renewable energy derived from heat in the earth. This heat
is transferred to water through various means and the steam produced is used to produce
electricity. Geothermal energy is dependent on the location of geothermal resources;
central Oregon may contain some of the best prospects for geothermal exploration in the
continental United States.
Potential impacts include construction and visual impacts of geothermal facilities.
Deschutes County regulates geothermal energy in accordance with state law, although no
geothermal development projects have been proposed to date.
Hydroelectric Energy Generation
Several water districts in Deschutes County have implemented hydropower projects to
harness the energy of moving water. These projects may have impacts on wildlife habitat
and migration, as well as construction, visual, and noise impacts.
Currently, Deschutes County has three approved “in conduit” hydroelectric facilities that
are owned and operated by irrigation districts within existing irrigation district canals.
Approval of these facilities have previously been contentious with many community
members expressing concern about wildlife and impacts to other basin users. Irrigation
districts have expressed interest in reducing barriers to permitting these types of
developments to promote renewable energy development using man-made waterways.
Key Community Considerations
Community discussions related to energy have revolved around the following topics:
• Interest in planning for and adapting to climate change, including using more
renewable energy sources.
• Concern about the design and location of energy facilities and their impacts on
environmental resources and scenic views.
• Preparation for more use of electric vehicles in the future, which often require
specialized charging infrastructure.
Goals and Policies
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Chapter 14: Energy Page 6
Goal 14.1: Promote Energy Conservation and Alternative Energy Production
• Policy 14.1.1. Continue to incorporate energy conservation into the building and
management of all County operations and capital projects using regular energy
audits to refine the results.
• Policy 14.1.2. Reduce energy demand by supporting energy efficiency in all sectors
of the economy.
• Policy 14.1.3. Encourage energy suppliers to explore innovative alternative energy
conservation technologies and provide energy audits and incentives to patrons.
• Policy 14.1.4. Provide flexibility and exemptions for small properties and
anomalous sites in the development code to promote energy conservation.
Goal 14.2: Promote affordable, efficient, reliable, and environmentally sound
commercial energy systems for individual homes, and business consumers.
• Policy 14.2.1. Promote development of solar, hydropower, wind, geothermal,
biomass and other alternative energy systems while mitigating impacts on
neighboring properties and the natural environment.
• Policy 14.2.2. Provide incentives for homes and businesses to install small-scale on-
site alternative energy systems consistent with adopted County financing programs.
• Policy 14.2.3. Support development of electric vehicle charging stations and
facilities to help promote use of electric vehicles.
• Policy 14.2.4. Use the development code to promote commercial renewable energy
projects while addressing and mitigating impacts on the community and natural
environment.
• Policy 14.2.5. Use Oregon's Rural Renewable Energy Development Zones to support
the creation of renewable energy projects.
• Policy 14.2.6. Identify, protect, and support the development of significant
renewable energy sites and resources.
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Deschutes County
Comprehensive Plan
223
Item #IV.2.
Public
Engagement
1.0
224
Item #IV.2.
7 | Deschutes County Comprehensive Plan
Opportunities, Challenges, and Considerations
Public engagement is the touchstone of planning in Oregon. As Deschutes
County grows and its population changes over the course of the next 20 years,
the County must be prepared to find innovative ways to keep community
members involved in the planning process and provide ample and accessible
ways to find and digest information. Challenges including funding, resources,
and ongoing state appeals might pose challenges to this work. The County has
an opportunity to plan for adequate resources and staffing to support this work.
Context
A far-reaching community
conversation was a vital part of
updating the Deschutes County
Comprehensive Plan. This effort
included:
• Two phases of engagement – one
focusing on long-range vision,
opportunities, and challenges;
and another phase focusing on
important and controversial topics .
• Outreach events in all parts of the
County .
• A deliberate audit of engagement
activities to learn and build on
successes .
• Engagement infographic
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Item #IV.2.
STATEWIDE PLANNING GOAL 1
Statewide Planning Goal 1: To
develop a citizen involvement
program that ensures the
opportunity for citizens to be
involved in all phases of the
planning process.
8 | Deschutes County Comprehensive Plan
Involving the public in planning is a critical part of
Oregon’s land use system . Statewide Planning Goal
1, Citizen Involvement, is intended to ensure that
the public has the opportunity to be meaningfully
involved in all phases of the land use planning
process. Creating these opportunities requires time
and energy on the part of County staff, as well as
systems to incorporate that input in a meaningful
way .
Whether it be focus groups for a larger planning
project, email notification lists for department
activities, or mailed notices of public hearings,
local governments need to be aware of changing
technologies and best practices to involve the
community . To participate in planning actions, the
public needs to be notified of the proposal or project,
understand the legal framework for the decision and
understand the implications of the decision .
Regulatory Framework
Statewide Planning Goal 1 – Citizen Involvement lays
the groundwork for the County’s public involvement
program. Jurisdictions are required to establish
a Citizen Involvement Program that provides
widespread community involvement, ensures two-
way communication with appropriate feedback
mechanisms, provides opportunities for engagement
in all phases of the planning process, makes technical
information available in an intelligible form, and is
adequately funded.
Deschutes County’s
Community Involvement
Program
Statewide Planning Goal 1 is implemented by
Deschutes County’s Community Involvement
Program, as described in the following .
Deschutes County Planning
Commission
The Deschutes County Planning Commission serves as
the County’s Committee for Community Involvement
(CCI) . The Planning Commission is composed of seven
volunteer members appointed to four-year terms by
the Board of County Commissioners (Board) .
Membership of the commission is representative of
the various geographic areas of the County . Members
are selected through an open process that aims
to balance the diverse views of Deschutes County
residents .
The purpose of the CCI is to create a direct and
transparent connection between County decision-
making and the public by providing regular updates,
speakers, panel discussions, and handouts on land
use law and policy . The CCI aims to make materials
intelligible and convenient for the public and to
provide a venue for civil discourse on important
issues for the County .
226
Item #IV.2.
9 | Deschutes County Comprehensive Plan
Historic Landmarks Commission
The Historic Landmarks Commission serves as a
hearings body for matters concerning historical
districts, structures and sites within unincorporated
Deschutes County as well as the city of Sisters . The
Landmarks Commission is composed of nine voting
and several non-voting ex-officio members who have
demonstrated expertise in historic preservation
related disciplines . Commissioners serve four-year
terms .
Other Land Use Related
Advisory Groups
Project Wildfire is a committee formed to coordinate,
develop and implement strategies to mitigate the
effects of losses due to natural disasters that strike
Deschutes County. Project Wildfire is composed of
15 to 27 members who reside or represent agencies
within Deschutes County . All members are appointed
by the Board and serve four years (see also Chapter X,
Natural Hazards) .
The Deschutes River Mitigation and Enhancement
Program helps achieve Oregon Department of Fish
and Wildlife (ODFW) habitat and management goals
and objectives within the Upper Deschutes River
sub-basin, consistent with an agreement between the
Central Oregon Irrigation District (COID) and ODFW .
As part of that agreement COID provides ODFW with
funds to develop and implement a fish and wildlife
habitat mitigation and enhancement program for the
Upper Deschutes River Basin . The Deschutes River
Mitigation and Enhancement Committee has seven
voting members appointed to three-year terms by the
Board (see also Section 2 .5) .
In addition to convening these groups, Deschutes
County engages with the public through numerous
methods, including:
•Conducting regular work sessions and hearings
•Providing timely public notice of important
items
•Maintaining the County Website at www .
deschutes .org, including the planning
departments “Community Engagement Center”
page .
•Advertising events and engaging with
constituents through social media channels
•Coordinating with media organizations, such as
local newspapers .
•Meeting with individuals and small groups to get
feedback on important issues .
These activities were part of the most recent update
of this Comprehensive Plan .
227
Item #IV.2.
10 | Deschutes County Comprehensive Plan
Key Community Issues
Deschutes County is changing and community
members are seeking new ways to engage in key
issues . To provide ample opportunities to engage,
new tools and technologies will be needed to engage
new groups . Issues that the policies in this section
address include:
•Continuing to simplify materials to use plain
language and be accessible to a variety of
audiences
•Continuing to maintain a presence throughout
the County, including holding meetings and
events throughout the County
•Supporting engagement activities that allow
community members to participate virtually and
at the time of their choosing .
With these issues in mind, Deschutes County has
adopted the following goals and policies:
Goals and Policies
Goal 1: Provide for a robust community
involvement program that includes all
members of the community, including those
who are commonly under-represented, by
ensuring access to information, encouraging
community collaboration, identifying and
addressing barriers to involvement, and
promoting efficient and transparent planning
processes.
Policy 1. Convene the Deschutes County Planning
Commission as the County’s Committee for
Community Involvement in order to provide a
direct and transparent connection between County
decision-making and the public .
Policy 2. Write all County planning documents to
be understandable, intuitive, and easily available to
the general public, using simplified language where
possible, with acronyms spelled out and technical
language explained .
Policy 3. Hold area-specific comprehensive plan and
zoning text amendment public hearings in locations
and at times convenient and accessible to area
residents, as appropriate .
Policy 4. Provide property information to the public in
an intuitive and easy-to-use manner .
Policy 5. Consult and coordinate with developers
before submitting applications as required or
recommended by the County Development Code
to identify and discuss project requirements and
impacts .
Policy 6. Invest in and support land use educational
resources for community members including
information related to rural living, agricultural
practices, natural resources, and natural hazards .
Policy 7. Promote opportunities for community
members to have civil dialogue around key
community issues .
Policy 8. Explore new and innovative ways to reach
community members and promote participation in
the planning process .
Goal 2: Support the activities of the
Committee for Community Involvement
Policy 1. Maintain adequate funding and staffing
support for the Committee .
Policy 2. Provide regular updates, speakers, panel
discussions, and handouts on land use law and policy .
Policy 3. Appoint members through an open and
public process to reflect the diverse geographic
regions, demographics, and values of Deschutes
County residents .
Policy 4. Meet with the Board of County
Commissioners at least once a year to coordinate
planning policies and activities .
Policy 5. Complete periodic reports on community
involvement implementation for the State Citizen
Involvement Advisory Committee, the Board of
County Commissioners, and the public .
Policy 6. Maintain open and civil discourse among
Committee members and with the public .
228
Item #IV.2.
13 | Deschutes County Comprehensive Plan
23
Months
1,500
Unique Website
Visitors
466
Email Contact List
29,000
Social Media
Impressions
296
In-Person Attendees
at Open Houses
13
News Stories
361
Online Open House
Survey Responses
8
Planning
Commission
Meetings
55
Small-Group Meetings
and Stakeholder
Discussions
254
Small Group
Attendees
2
Staff Community
Engagement Trainings
3
Board
Worksessions
Engagement
229
Item #IV.2.
11 | Deschutes County Comprehensive Plan
1859
Oregon Statehood
1941
Roberts Airfield completed
allowing flights to Central
Oregon for the first time
1988 to 2003
Periodic Review
and updates to
Comprehensive Plan
1916
Deschutes County
created from a portion
of Crook County
1973
SB100 and Oregon
Land Use Planning
System Enacted
2023
“Deschutes 2040”
Comprehensive
Plan Update
1937
County Courthouse
and most early records
destroyed by fire
1979
“Deschutes
County Year 2000”
Comprehensive Plan
1905
City of Bend
incorporated
1970
“Deschutes
County to 1990”
Comprehensive Plan
2010
“Deschutes County
2030” Comprehensive
Plan Update
Timeline
230
Item #IV.2.