2015-543-Ordinance No. 2015-010 Recorded 12/24/2015 COUNTY OFFICIAL
NANCY DESCHUTES COUNTY CLERKS 4i1 L015•543
COMMISSIONERS' JOURNAL
REVIF s
12/24/2015 12:35:06 PM Iiviuu"i' i' uiu Lf lN 2 -
1 For7Rorurng•5ramp vnry-
BEFORE THE BOARD OF COUNTY COMMISSIONERS OF DESCHUTES COUNTY,OREGON
An Ordinance Amending Deschutes County Code
Title 23 and the Deschutes County Comprehensive * ORDINANCE NO.2015-010
Plan,and Declaring an Emergency *
WHEREAS, on July 23, 2015 the Oregon Department of Land Conservation arid Development
Commission adopted Greater Sage-Grouse habitat inventories and rules establishing a procedure for considering
development proposals on lands identified as significant Greater Sage-Grouse Habitat;and
WHEREAS,Deschutes County is one of seven counties with Greater Sage-Grouse Habitat;and
WHEREAS, amendments to the Deschutes County Comprehensive Plan are necessary to comply with
ORS 197.646(3)and OAR 660-023-0115(4);and
WHEREAS,after notice was given in accordance with applicable law, a public hearing was held before
the Deschutes County Planning Commission on October 8,2015 to consider the revised County Comprehensive
Plan;and
WHEREAS, on November 12, 2015 the Planning Commission forwarded to the Board of County
Commissioners("Board")a recommendation of approval to adopt changes to the Comprehensive Plan;and
WHEREAS, the Board considered this matter after a duly noticed public hearing on December 2 and
concluded that the public will benefit from changes to the Comprehensive Plan;and
WHEREAS, the Board finds it in the public interest to adopt the following Comprehensive Plan
amendments; now, therefore,
THE BOARD OF COUNTY COMMISSIONERS OF DESCHUTES COUNTY,OREGON,ORDAINS
as follows:
Section 1. AMENDMENT. DCC 23.01.010, introduction, is amended to read as described in Exhibit
"A," attached hereto and by this reference incorporated herein, with new language underlined and language to
he deleted in str-iliothfeitigh.
Section 2. ADOPTION. Deschutes County Comprehensive Plan Map, Greater Sage Grouse Habitat
Area inventory Map is adopted to describe properties affected by the designation as shown in Exhibit "B,"
attached and incorporated by reference herein.
Section 3. AMENDMENT. Deschutes County Comprehensive Plan Map, Deschutes County Sensitive
Bird and Mammal Habitat Inventory Map is amended to describe properties affected by the designation as
shown in Exhibit"C,"attached and incorporated by reference herein.
Section 4. AMENDMENT. Deschutes County Comprehensive Plan Chapter 2, Resource
Management, is amended to read as described in Exhibit"D,"attached hereto and by this reference incorporated
herein, with new language underlined and language to be deleted in stud-Ikcthrough.
PAGE. I OF 2-ORDINANCE NO.2015-010
Section 5. AMENDMENT. Deschutes County Comprehensive Plan Chapter 5, Supplementary
Sections, is amended to read as described in Exhibit "E," attached hereto and by this reference incorporated
herein, with new language underlined and language to be deleted in strikcthrough.
Section 6. FINDINGS. The Board adopts as its findings Exhibit "F," attached and incorporated by
reference herein.
Section 7. EMERGENCY. This Ordinance being necessary for the immediate preservation of the
public peace, health and safety, an emergency is declared to exist, and this Ordinance takes effect on its passage.
BOARD OF COUNTY COMMISSIONERS
Dated this '----of it—' . 2015 OF DESCHUTES COUNTY, OREGON
ANTHONY De BONE, Chair
ALAN UNGER, Vice Chair
ATTEST:
(.13.74ustii_.)
441 1A-
Recording ng Secretary TAMMY- ANEY, Co issioner
r/ m�, ^
Date of 1St Reading:�f day of '/ , 2015.
Date of 2nd Read ina ----day of 0---)-tt / , 2015.
Record of Adoption Vote:
Commissioner Yes No Abstained Excused
Anthony De Bone
Alan Unger v
Tammy y Bane ✓
�.
Effective date:it day of , 2015.
PAGE 2 OF 2-ORDINANCE NO. 2015-010
Chapter 23.01 COMPREHENSIVE PLAN
23.01.010. Introduction.
A. The Deschutes County Comprehensive Plan, adopted by the Board in Ordinance 2011-003
and found on the Deschutes County Community Development Department website, is
incorporated by reference herein.
B. The Deschutes County Comprehensive Plan amendments, adopted by the Board in Ordinance
2011-027, are incorporated by reference herein.
C. The Deschutes County Comprehensive Plan amendments, adopted by the Board in Ordinance
2012-005, are incorporated by reference herein.
D. The Deschutes County Comprehensive Plan amendments, adopted by the Board in Ordinance
2012-012, are incorporated by reference herein.
E. The Deschutes County Comprehensive Plan amendments, adopted by the Board in Ordinance
2012-016, are incorporated by reference herein.
F. The .Deschutes County Comprehensive Plan amendments, adopted by the Board in Ordinance
2013-002, are incorporated by reference herein.
G. The Deschutes County Comprehensive Plan amendments, adopted by the Board in Ordinance
2013-009, are incorporated by reference herein.
H. The Deschutes County Comprehensive Plan amendments, adopted by the Board in Ordinance
2013-012, are incorporated by reference herein.
1. The Deschutes County Comprehensive Plan amendments, adopted by the Board in Ordinance
2013-007, are incorporated by reference herein.
J. The Deschutes County Comprehensive Plan amendments, adopted by the Board in Ordinance
2014-005, are incorporated by reference herein.
K. The Deschutes County Comprehensive Plan amendments, adopted by the Board in Ordinance
2014-006, are incorporated by reference herein.
L. The Deschutes County Comprehensive Plan amendments, adopted by the Board in Ordinance
2014-012, are incorporated by reference herein.
M. The Deschutes County Comprehensive Plan amendments, adopted by the Board in Ordinance
2014-021, are incorporated by reference herein.
N. The Deschutes County Comprehensive Plan amendments, adopted by the Board in Ordinance
2014-027, are incorporated by reference herein.
O. The Deschutes County Comprehensive Plan amendments, adopted by the Board in Ordinance
2015-010, are incorporated by reference herein.
(Ord. 2015-010 §1, 20 l 5;Ord. 2014-27 §1, 2014; Ord. 2014-121 §1, 2014; Ord. 2014-12 §1, 2014; Ord.
2014-006 §2, 2014; Ord. 2014-005 §2, 2014; Ord. 2013-012 §2, 2013; Ord. 2013-009 §2, 2013; Ord.
2013-007 §1, 2013; Ord. 2013-002 §1, 2013; Ord. 2013-001 §1, 2013; Ord. 2012-016 §1, 2012; Ord.
2012-013 §1, 2012; Ord. 2012-005 §1, 2012; Ord. 2011-027 §1 through 12, 2011; Ord. 2011-017
repealed; Ord.2011-003 §3, 2011)
Click here to be directed to the Comprehensive Plan (http://www.deschutes.org/compplan)
PAGE 1 OF 1 — EXHIBIT A TO ORDINANCE 2015-010
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Background
Wildlife diversity is a major attraction of Deschutes County. It was mentioned in many
Comprehensive Plan meetings in 2008 and 2009 as important to the community. Healthy
wildlife populations are often a sign of a healthy environment for humans as well as other
species. 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, in order to protect migration routes and avoid isolated populations.
Wildlife is tied to land use planning because human development impacts habitats in complex
ways. Wildlife protections are provided by federal, state and local governments. Oregon land
use planning protects wildlife with Statewide Planning Goal 5, Open Spaces, Scenic and
Historical Areas and Natural Resources and the associated Oregon Administrative Rule (OAR)
660-023 (this Rule replaced 660-016 in 1 996). Statewide Goal 5 includes a list of resources
which each local government must inventory, including wildlife habitat.
The 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.
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. Note that this section focuses on wildlife, while fish are
covered in the Water Resources section of this Plan.
Wildlife Designations
Comprehensive Planning for Wildlife
Plan 2000, the Comprehensive Plan adopted in 1 979, included a Fish and Wildlife Chapter with
policies aimed at protecting wildlife. That Plan also noted the controversial nature of wildlife
protections. To implement the Plan policies, the Wildlife Area Combining Zone was adopted.
This overlay zone was intended to protect identified big game habitat through zoning tools such
as appropriate lot sizes and setbacks. In 1 986 a River Study was completed and adopted into
the Resource Element. Goals and policies from that study, including wildlife goals, were added
to Plan 2000.
As part of State mandated Periodic Review, the County took another look at wildlife
protections to further comply with the requirements of Goal 5 and the then prevailing OAR
660-16. The County worked with the ODFW to obtain the most recent inventory information
on fish and wildlife resources in the county and to identify uses conflicting with those
resources. This information was used to update the inventories and amend the ESEE analyses.
DESCHUTES COUNTY COMPREHENSIVE PLAN-201 I
CHAPTER 2 RESOURCE MANAGEMENT SECTION 2.6 WILDLIFE
PAGE 1 OF I 0-EXHIBIT"D"TO ORDINANCE 2015-010
In addition, ODFW provided information to support zoning ordinance provisions to resolve
conflicts between fish and wildlife resource protection and development. The County adopted a
Sensitive Bird and Mammal Combining Zone which identified and protected specific bird nests
or leks and bat hibernating or nursery sites.
Ordinances for Compliance with Goal S
During periodic review in 1 992, Deschutes County met the requirements of Goal 5 by:
• The adoption of Goals and Policies in Ordinance 92-040 reflecting Goal 5 requirements,
including a Sensitive Bird and Mammal Combining Zone to identify and protect specific
bird nests or leks and bat hibernating or nursery sites;
• The adoption of Ordinance 92-041 amended the comprehensive plan to inventory each
Goal 5 resource, analyze conflicting uses, and analyze the ESEE consequences of protecting
or not protecting inventoried fish and wildlife resources;
• The adoption of zoning ordinance provisions in Ordinance 92-042, as applied to
inventoried sites by the map adopted by Ordinance 92-046.
In 2015, the Land Conservation and Development Commission (LCDC) adopted rules to
Oregon Administrative Rule (OAR) chapter 660, division 23, to establish procedures for
considering development proposals on lands identified as Greater Sage-Grouse Area Habitat.
Deschutes County met the requirements by:
• Adopting the 2015 Goal 5 Greater Sage Grouse habitat Area Inventory Map into its
Comprehensive Plan and amending the Sensitive Bird and Mammal Habitat Inventory to
remove 1990 sage grouse lek and range data by Ordinance 2015-010 (Those maps are
incorporated by reference herein); and,
• Adopting sage grouse regulations as a Greater Sage Grouse Area Combining Zone by
Ordinance 2015-011.
Wildlife Snapshot 2008-2009
Source: County GIS data
• There are 816,649 acres in Deschutes County's Wildlife Area Combining Zone.
• There are 40 sites protected by the Sensitive Bird and Mammal Habitat Combining Zone.
• 76% of County land is owned and managed by the Federal government through the U.S.
Forest Service and Bureau of Land Management.
Source: Fishing, Hunting, Wildlife Viewing, and Shellf shing in Oregon, 2008 May 2009 Prepared for
Oregon Department of Fish and Wildlife by Dean Runyan Associates
• Nearly $70 million was spent in Deschutes County on travel generated expenditures on
wildlife viewing, fishing and hunting by people from over 50 miles away.
• Over 60% of the $70 million noted above was spent for wildlife viewing, with fishing
second with nearly 30% and nearly 10% on hunting.
• Over $8 million in revenue from fishing, hunting and wildlife viewing came from people
who live in the County or within 50 miles of the County.
• Over 60% of the $8 million noted above was spent on fishing, over 20% was spent on
hunting and under 20% was spent on wildlife viewing.
• All total, over $78 million was spent in Deschutes County on fishing, hunting and wildlife
viewing.
2 DESCHUTES COUNTY COMPREHENSIVE PLAN-2011
CHAPTER 2 RESOURCE MANAGEMENT SECTION 2.6 WILDLIFE
PAGE 2 OF 10—EXHIBIT"D"TO ORDINANCE 2015-010
Deer Migration Corridor
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.
Deer Winter Range
The ODFW identified the Metolius, Tumalo and North Paulina deer winter ranges during
Deschutes County's initial comprehensive plan. 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 1 5,000 deer.
In 1 992, 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.
Elk Habitat
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 Habitat
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.
Sensitive Birds
Nest sites for the northern bald eagle, osprey, golden eagle, prairie falcon, great grey owl, and
great blue heron rookeries are inventoried in Ordinance No. 92-041. 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.
DESCHUTES COUNTY COMPREHENSIVE PLAN-20 I I 3
CHAPTER 2 RESOURCE MANAGEMENT SECTION 2.6 WILDLIFE
PAGE 3 OF 10-EXHIBIT"D"TO ORDINANCE 2015-010
Federal and State Wildlife Protections
Federal Protections
The primary federal protection for wildlife is the Endangered Species Act (ESA), which sets the
preservation of biodiversity as its highest priority. Under ESA, National Oceanic Atmospheric
Administration (NOAA) Fisheries or the U.S. Fish and Wildlife Service (USFWS) list species as
threatened or endangered. ESA prohibits both federal actions that jeopardize listed species and
private actions that result in the "taking" of listed species. Court rulings have explicitly
determined that habitat modification can lead to a "taking," even if the modification does not
affect a specific individual member of the species. ESA authorizes civil and criminal suits be
brought against entities that violate its substantive or procedural provisions.
There are two fish species and one bird species listed as federally threatened or endangered in
Deschutes County. Fish are discussed under the Water Resources section of this chapter and
the bird, the Northern Spotted Owl, has not been found on private lands.
State Protections
It is Oregon's policy "to prevent the serious depletion of any indigenous species" (ORS
496.012). The Oregon Department of Fish and Wildlife maintains a list of fish and wildlife
species determined to be either threatened or endangered according to OAR 635. When a
species population is seriously depleted, recovery can be difficult and expensive as well as
socially and economically divisive. To provide a positive approach to species conservation, a
"sensitive" species classification was created under Oregon's Sensitive Specie Rule (OAR 635-
100-040). Table 2.7.I lists species in Deschutes County that are listed by either federal or state
wildlife agencies under the above mentioned laws.
Besides the listings of endangered or threatened, species can be federally listed as candidate
species or species of concern. State listings include threatened, critical and vulnerable. Each
status has a definition specifying different actions.
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4 DESCHUTES COUNTY COMPREHENSIVE PLAN—2011
CHAPTER 2 RESOURCE MANAGEMENT SECTION 2.6 WILDLIFE
PAGE 4 OF 10—EXHIBIT"D"TO ORDINANCE 2015-010
Table2.6.I- Special Status of Select Mammals, Birds, Amphibians, and Reptiles in.
Deschutes County 2009
Species State Status Federal Status
Mammals
California Wolverine Threatened Species of Concern
Fisher Critical --
Fringed Myotis Vulnerable --
Long-eared Myotis -- Species of Concern
Long-legged Myotis Vulnerable Species of Concern
Pallid Bat Vulnerable --
Preble's Shrew -- Species of Concern
Pygmy Rabbit Vulnerable Species of Concern
Silver-haried bat Vulnerable Species of Concern
Small-footed Myotis -- Species of Concern
Spotted bat Vulnerable --
Townsends western big-eared bat Critical Species of Concern
Yuma Myotis _ -- Species of Concern
girds
American Peregrine Falcon Vulnerable Delisted
Bald Eagle Threatened Delisted
Black Tern -- Species of Concern
Black-backed Woodpecker Vulnerable --
Ferruginous Hawk Vulnerable Species of Concern
Flammulated Owl Vulnerable --
Great Gray Owl Vulnerable --
Greater Sage Grouse Vulnerable Species of Concern
Lewis'Woodpecker Critical Species of Concern
Loggerhead Shrike Vulnerable --
Long-billed Curlew Vulnerable --
Mountain Quail Vulnerable Species of Concern
Northern Goshawk Vulnerable Species of Concern
Northern Spotted Owl Threatened Threatened
Olive-sided Flycatcher Vulnerable Species of Concern
Pileated Woodpecker Vulnerable --
Swainson's Hawk Vulnerable --
Western Burrowing Owl Vulnerable* Species of Concern
White-head Woodpecker Critical Species of Concern
Willow Flycatcher Vulnerable Species of Concern
Yellow-breasted chat -- Species of Concern
Yellow-billed cuckoo Vulnerable Candidate
Amphibians and Reptiles
Cascades Frog Vulnerable Species of Concern
Coastal tailed frog Vulnerable Species of Concern
Northern Sagebrush Lizard -- Species of Concern
Oregon slender salamander Vulnerable Species of Concern
Oregon Spotted Frog Critical Candidate
Western Pond Turtle Critical _ --
Western Toad Vulnerable --
*listed only for the Basin and Range Ecoregion
Source:2009 Interagency Report and ODFW
DESCHUTES COUNTY COMPREHENSIVE PLAN --201 I 5
CHAPTER 2 RESOURCE MANAGEMENT SECTION 2.6 WILDLIFE
PAGE 5 OF 10—EXHIBIT"D"TO ORDINANCE 2015-010
Oregon Department of Fish and Wildlife
Oregon Conservation Strategy
In 2006 the Oregon Conservation Strategy (OCS) was adopted by Oregon's Fish and Wildlife
Commission for the state of Oregon. Wildlife and habitat issues are often crisis-driven and
focused on individual species. The OSC is intended to provide a long-term, big-picture look,
using the best available science, on how best to maintain and improve Oregon's species,
habitats and ecosystems.
This document is not intended to be a set of regulations, but rather it presents issues,
opportunities and recommended actions that can serve as the basis for regional collaborative
actions. The recommendations within the OCS can be used to address species and habitat
conservation needs, to expand existing partnerships and develop new ones, and to provide a
context for balancing Oregon's conservation and development priorities. The future of many
species will depend on landowners' and land managers' willingness to voluntarily take action on
their own to improve fish and wildlife habitat.
The OCS works by defining ecoregions and offering an overview of each region that covers a
variety of ecological, land use and economic issues. Parts of Deschutes County fall into three of
the ecoregions; East Cascade, Blue Mountains and Northern Basin and Range. For Deschutes
County this document offers a wealth of knowledge that can be used to inform fish and wildlife
habitat policies and protect and enhance ecosystems.
Fish and Wildlife Habitat Mitigation Policy
The ODFW's Fish and Wildlife Habitat Mitigation Policy provides direction for their staff to
review and comment on projects that may impact fish and wildlife habitat. This policy
recognizes six distinct categories of wildlife habitat ranging from Category I — essential, limited,
and irreplaceable habitat, to Category 6 — low value habitat. The policy goal for Category I
habitat is no loss of habitat quantity or quality through avoidance of impacts by using
development action if impacts cannot be avoided. The ODFW recommends avoidance of
Category I habitats as they are irreplaceable, and thus mitigation is not a viable option.
Categories 2-4 are for essential or important, but not irreplaceable habitats. Category 5 habitat
is not essential or important, but has high restoration potential.
Interagency Report
In 2009 the USFW, ODFW, U.S. Forest Service and the Bureau of Land Management
collaborated to provide a report on Wildlife in Deschutes County, Updated Wildlife In formation
and Recommendations for the Deschutes County Comprehensive Plan Update (Interagency Report).
This report provided updated information to be used in revising the County Goal 5 inventory.
This update will be done as part of the Goal 5 review as described in Section 2.4 of this Plan.
The report also outlined numerous issues that the agencies believe are important for the
County to address. The Interagency Report generated debate over how best to protect wildlife
while also protecting the rights of property owners. Key issues from the report are touched on
below.
Economic benefits of fish and wildlife: The report notes the ODFW report by Dean Runyan
regarding the economic benefits of fishing, hunting and wildlife viewing, including that Deschutes
County generated more freshwater fishing revenue than any other county in Oregon.
6 DESCHUTES COUNTY COMPREHENSIVE PLAN-2011
CHAPTER 2 RESOURCE MANAGEMENT SECTION 2.6 WILDLIFE
PAGE 6 OF 10-EXHIBIT"D"TO ORDINANCE 2015-010
Oregon Conservation Strategy: The report discusses the Oregon Conservation Strategy described
above and recommends that the County use it as a guide and reference for the maintenance
and enhancement of wildlife resources.
Threatened and Endangered Species and Species of Concern:The report recommends developing
and adopting measures to protect federal and state listed threatened and endangered species to
limit conflicting use.
Riparian and wetland areas for wildlife and fish: The report recommends completing and adopting
a Local Wetland Inventory. The current National Wetland Inventory was done at a scale so
that wetlands under 5 acres are not identified. Yet, those wetlands provide significant habitat.
Deschutes County adopted a Local Wetland Inventory for South County in 201 I.
Oregon Spotted Frog:The report recommends adding an Oregon Spotted Frog habitat area to
the wildlife area combining zone and provides some specific ideas for protecting those areas.
The Oregon Spotted Frog can be found in the floodplains and wetlands along the Deschutes
River and Little Deschutes River, south of Bend. Riverine oxbows are particularly key habitat.
This frog is listed as a Federal Candidate and State Critical Species.
Shrub-Steppe Habitat The report recommends the County consider impacts to wildlife and
habitat when development will degrade shrub-steppe habitat. Shrub-steppe habitat provides
needed resources for numerous birds and mammals, including 12 Oregon listed sensitive
species, and one threatened species. Large blocks of un-fragmented habitat with low human
disturbance are needed to support shrub-steppe wildlife. If avoidance of these areas is not
possible, providing for "no net loss' and a "net benefit" (restoration) of shrub-steppe habitat
should be a vital component of any conservation plan.
Greater Sage Grouse:The report provides recommendations for limiting conflicting uses near
sage grouse leks and habitat. The population management objective for sage-grouse in this
region (Prineville District), which includes portions of Deschutes and Crook counties, is to
restore sage grouse numbers and distribution near the 1980 spring breeding population level,
approximately 3,000 birds. Many aspects of human development have impacted sage grouse
populations and can be considered conflicting uses. Conservation efforts focused on maintaining
large expanses of sagebrush habitat, enhancing the quality of existing habitat, and increasing
connections between suitable habitat patches would be most beneficial to maintaining healthy
sage-grouse populations. Breeding and nesting habitat is particularly important because it is
essential, limited and irreplaceable.
Critical Bird and Mammal Sites: The report does not recommend additional or modification of
existing protections for site specific sensitive bird and mammal sites, except for additional
protections for sage grouse. The report does provide a new inventory and site specific
recommendations that will be used to update the list of Goal 5 wildlife resources.
Game Species: The report does not recommend changes to the existing big game winter range
or migration corridor maps. It does recommend that the County revise the uses allowed in
those areas to prohibit the following uses that generate activity, noise and habitat alteration:
• Guest ranch
• Outdoor commercial events (i.e. Wedding Venues, Farmers Market)
• OHV course
• Paintball course
DESCHUTES COUNTY COMPREHENSIVE PLAN-201 1 7
CHAPTER 2 RESOURCE MANAGEMENT SECTION 2.6 WILDLIFE
PAGE 7 OF 10-EXHIBIT"D"TO ORDINANCE 2015-010
• Shooting range
• Model airplane park
• BMX course
Sensitive Species: Table 2.7.2 shows species considered sensitive to human disturbance. Mule
deer are the only species in decline.
Table 2.7.2 - Big Game Population Estimates, Deschutes County(2009)
Species Population
Mule Deer 9,337*
Elk 1,500
Pronghorn 1,000
Cougar —150
Black Bear —150
Silver Grey Squirrel —800
*The management objective for the Paulina and Upper Deschutes Wildlife Management Units,primarily
in Deschutes County,is an April adult population of 18,7000 mule deer.
Source:Interagency Report
Fish and Wildlife Habitat Mitigation Policy: The Interagency Report includes one recommendation
that is only from the ODFW. They recommend that the County require impact avoidance for
development that will impact Category I habitat and require a wildlife mitigation plan for
development that will impact habitat Categories 2-5, to limit conflicting uses.
The Interagency Report recommendations will be considered more closely when the Goal 5
review is undertaken.
Future of Wildlife and Habitat in Deschutes County
Coordination
Much of the wildlife habitat in Deschutes County is located on public lands. Federal lands make
up 76% of County lands with another 3% State or County owned. Federal lands are not subject
to County regulation but as noted in the Forest section of this Plan, they are important
economic generators that also contribute to the community's quality of life, providing ample
opportunities for wildlife viewing, fishing and hunting. It should be noted that not all federal
lands are managed for wildlife habitat.
Regarding public lands the County's role is to coordinate with the land management agencies to
ensure development approved by the County does not impact wildlife.
Another area for coordination is with the Trust for Public Lands (TPL). In 2009 this non-profit
group initiated a Greenprint effort that will identify specific areas needing protection, including
wildlife habitat. A survey done by this organization identified protecting wildlife habitat as
important to County residents.
Rural Development
The loss of wildlife species and habitat may lead to declining recreational opportunities, tourist
dollars and quality of life. Yet, many species are sensitive to human development, with some
species benefiting and some harmed by land disturbance. New structures or infrastructure can
fragment habitats. Barriers such as roads, dams or housing can interfere with migration routes
and connectivity leading to isolated and unhealthy populations. Development can also increase
8 DESCHUTES COUNTY,._ _..._..................................................
COMPREHENSIVE PLAN—2011
CHAPTER 2 RESOURCE MANAGEMENT SECTION 2.6 WILDLIFE
PAGE 8 OF 10—EXHIBIT"D"TO ORDINANCE 2015-010
non-native and invasive species. Most Deschutes County residents consider the local wildlife as
one of the benefits of living in this region. With careful planning, many of the impacts to wildlife
habitat can be mitigated.
DESCHUTES COUNTY COMPREHENSIVE PLAN-2011 9
CHAPTER 2 RESOURCE MANAGEMENT SECTION 2.6 WILDLIFE
PAGE 9 OF 10-EXHIBIT"D"TO ORDINANCE 2015-010
Secti,o1A, 2.0 WGLc L�f e PoLicies
Goals and Policies
Goal I Maintain and enhance a diversity of wildlife and habitats.
Policy 2.6.1 Goal 5 wildlife inventories, ESEEs and programs are retained and not repealed.
Policy 2.6.2 Promote stewardship of wildlife habitats and corridors, particularly those with
significant biological, ecological, aesthetic and recreational value.
Policy 2.6.3 Ensure Goal 5 wildlife inventories and habitat protection programs are up-to-
date through public processes and expert sources, such as the 2009 Interagency
Report.
Policy 2.6.4 Support incentives for restoring and/or preserving significant wildlife habitat by
traditional means such as zoning or innovative means, including land swaps,
conservation easements, transfer of development rights, tax incentives or
purchase by public or non-profit agencies.
Policy 2.6.5 Assist in providing information and education on wildlife and habitat protection.
Policy 2.6.6 Review the Oregon Conservation Strategy when amending the Wildlife section
of this Plan.
Policy 2.6.7 Use a combination of incentives, regulations and education to promote
stewardship of wildlife habitat and address the impacts of development.
Policy 2.6.8 Balance protection of wildlife with wildland fire mitigation on private lands in the
designated Wildland Urban Interface.
Goal 2 Promote the economic and recreational benefits of wildlife and
habitat.
Policy 2.6.9 Encourage wildlife related tourism.
Policy 2.6.10 Coordinate with stakeholders to ensure access to significant wildlife and riparian
habitat through public or non-profit ownership.
Goal 3 Support retaining populations of Federal and State protected
endangered species.
Policy 2.6.1 I Develop local approaches, in coordination with Federal and State agencies, for
protecting Federal or State Threatened or Endangered Species or Species of
Concern.
Policy 2.6.12 Address potential conflicts between large-scale development and sage grouse
habitat using Ordinances Nos. 2010-010 and 2010-011, which are consistent
with OAR 660-023-0115.
I O DESCHUTES COUNTY COMPREHENSIVE PLAN-20 I I
CHAPTER 2 RESOURCE MANAGEMENT REFERENCES
PAGE 10 OF 10-EXHIBIT"D"TO ORDINANCE 2015-010
S ect%o vt 5.12 L c Ls Lati,ve I—ttsto r j
Background
This section contains the legislative history of this Comprehensive Plan.
Table 5.1 1.1 Comprehensive Plan Ordinance History
Ordinance Date Adopted/ Chapter/Section Amendment
Effective
All, except
Transportation, Tumalo
and Terrebonne
2011-003 $-10-1 1/1 1-9-1 I Community Plans, Comprehensive Plan update
Deschutes Junction,
Destination Resorts and
ordinances adopted in
2011
2.5, 2.6, 3.4, 3.10, 3.5, Housekeeping amendments to
2011-027 10-3 I-I 1/1 1-9-I I 4.6, 5.3, 5.8, 5-I I, ensure a smooth transition to
23.40A, 23.406, the updated Plan
23.40.065, 23.01.010
23.60, 23.64 (repealed), Updated Transportation
2012-005 8-20-12/11-19-12 3.7 (revised), Appendix C System Plan
(added)
2012-012 8-20-12/8-20-12 4.1, 4.2
La Pine Urban Growth
Boundary
Housekeeping amendments to
20 12-0 16 12-3-12/3-4-13 3.9 Destination Resort Chapter
Central Oregon Regional
2013-002 1-7-13/1-7-13 4.2 Large-lot Employment Land
Need Analysis
Comprehensive Plan Map
Amendment, changing
designation of certain
2013-009 2-6-13/5-8-13 1.3 property from Agriculture to
Rural Residential Exception
Area
Comprehensive Plan Map
2013-012 5-8-13/8-6-13 23.01.010 Amendment, including certain
property within City of Bend
Urban Growth Boundary
Newberry Country: A Plan
2013-007 5-29-13/8-27-13 3.10, 3.11 for Southern Deschutes
County
DESCHUTES COUNTY COMPREHENSIVE PLAN-201 1
CHAPTER 5 SUPPLEMENTAL SECTIONS SECTION 5.1 1 GOAL 5 ADOPTED ORDINANCES
PAGE I OF 2-EXHIBIT"E"TO ORDINANCE 2015-010
Ordinance Date Adopted/ Chapter/Section Amendment
Effective
Comprehensive Plan Map
2013-016 10-21-13/10-21-13 23.01.010 Amendment, including certain
property within City of Sisters
Urban Growth Boundary
Comprehensive Plan Map
2014-005 2-26-14/2-26-14 23.01.010 Amendment, including certain
property within City of Bend
Urban Growth Boundary
20 14-0 12 4-2-14/7-1-14 3.10, 3.I I Housekeeping amendments to
Title 23.
Comprehensive Plan Map
Amendment, changing
designation of certain
2014-021 8-27-14/11-25-14 23.01.010, 5.10 property from Sunriver Urban
Unincorporated Community
Forest to Sunriver Urban
Unincorporated Community
Utility
Comprehensive Plan Map
Amendment, changing
2014-027 12-15-14/3-31-15 23.01.010, 5.10 designation of certain
property from Agriculture to
Rural Industrial
Comprehensive Plan Text and
2015-010 12-2-15/12-2-15 2.6 Map Amendment recognizing
Greater Sage-Grouse Habitat
Inventories
2 DESCHUTES COUNTY COMPREHENSIVE PLAN-2011
CHAPTER 5 SUPPLEMENTAL SECTIONS SECTION 5.1 2LEGISLATIVE HISTORY
PAGE 2 OF 2-EXHIBIT"E"TO ORDINANCE 2015-010
FINDINGS
The Deschutes County Planning Commission held a public hearing on October 8, 2015
in Brothers to consider legislative plan amendments and to Deschutes County
Comprehensive Plan and legislative amendments to Deschutes County Code (DCC)
Title 18.1 The Planning Commission closed the hearing but left the written record open
until October 23, 2015. On November 12, they forwarded a recommendation of adoption
to the Board of County Commissioners (Board). They also asked the Board to consider
adding an amendment to County Code requiring bonding and reclamation for renewable
energy facilities.
The Board held a hearing on December 2, 2015.
I. BACKGROUND
The Greater Sage Grouse is a species common to the western United States. Over time,
much of the sagebrush ecosystem needed to maintain a healthy population has
suffered. Habitat has eroded as a consequence of the introduction of invasive weeds,
juniper encroachment, large-scale development, wildland fire, and intensive agriculture.
Strong concerns about the future of the species have resulted in the United States Fish
and Wildlife Service (USFWS) receiving multiple petitions to list the Greater Sage
Grouse under the federal Endangered Species Act (ESA).
In April 2010, the USFWS determined that protection of Greater Sage Grouse under the
ESA was warranted. The USFWS did not list sage grouse at that time in order to
address other species facing greater risk of extinction, but stated its intent to revisit its
"Warranted but Precluded" decision. The USFWS must still make a determination
whether the species should be proposed for ESA listing or be removed from the
candidate list, which would result in no further consideration by this fall.
Sage grouse habitat in Oregon includes about 11 million acres distributed across five
Bureau of Land Management (BLM) management districts in seven central and eastern
Oregon counties (Baker, Crook, Deschutes, Harney, Lake, Malheur and Union). Private
lands account for about 21 percent of this total while BLM controls about 70 percent. The
remaining lands are made up of other public agencies including the Oregon Department
of State Lands.
Last January, Governor Kitzhaber requested the Oregon Land Conservation and
Development Commission (LCDC) initiate a rulemaking to address potential conflicts
between "large-scale development" and sage grouse habitat The purpose is to address
a potential federal listing of the Greater Sage Grouse under the ESA. The Governor's
request follows the work of an interagency group called "SageCon," begun in 2012.
SageCon's goal is to demonstrate that Oregon can put together a plan of action that will
demonstrate that the federal listing for sage grouse in Oregon is unnecessary.
A public notice will be published in the Bulletin on September 20, 2015.
PAGE 1 OF 6— EXHIBIT F TO ORDINANCE 2015-010
LCDC agreed and appointed a Sage Grouse Rules Advisory Committee (Committee) in
March to assist the Oregon Department of Land Conservation and Development (DLCD)
in drafting proposed rules. The Committee met four times. The rulemaking amends
Oregon Administrative Rule (OAR) chapter 660, division 23, often referred to as the
"Goal Five rule." The rule applies to non-federal lands in eastern Oregon that constitute
approximately 30 percent of sage grouse habitat. LCDC held a public hearing on July 23
and 24 in Burns, OR and after closing the hearing on the 24th, adopted the rules (OAR
660-024-0115).2 They became effective on August 13, 2015. State law, ORS 197.646(3)
requires the seven eastern Oregon counties, including Deschutes, to implement them.3
As a result, staff is initiating two ordinances. Ordinance 2015-010 contains the following
amendments:
• Exhibit A: Amendment to DCC 23.010.010, Introduction;
• Exhibit B; Comprehensive Plan map adopting Oregon Department of Fish and
Wildlife's (ODFW) Greater Sage-grouse Habitat Area Inventory Map (Core Area,
Low Density Area, and General Habitat, including occupied and occupied-
pending lek locations);
• Exhibit C: Comprehensive Plan map amendment removing Deschutes County's
1990 sage-grouse inventory and lek locations from the Sensitive Bird and
Mammal Habitat Inventory;
• Exhibit D: Amendment to Comprehensive Plan Chapter 2, Resource
Management, Section 2.6—Wildlife;
• Exhibit E: Amendment to Comprehensive Plan Chapter 5, Supplemental
Sections, Section 5.12 — Legislative History; and,
• Exhibit F: Findings.
Ordinance 2015-011 contains the following amendments:
• Exhibit A: Zoning code amendment to Deschutes County Code (DCC), adopting
Chapter 18.89, Greater Sage-Grouse Area Combining Zone (mirrors Oregon
Administrative Rule 660-024-0115); and,
• Exhibit B: Zoning code amendment to DCC 18.90, Sensitive Bird and Mammal
Habitat Combining Zone, removing outdated references to sage-grouse and leks.
II. REVIEW CRITERIA
ORS 197.646(3) requires Deschutes County to implement OAR 660-023-0115.
Subsection 4 of the rule underscores this requirement as well:
2 http://www.oregon.gov/LCD/Pages/SageGrouseRulemaking.aspx
3 ORS 197.646(3). https://www.oregonlegislature.gov/bills_laws/lawsstatutes/2013ors197.html
PAGE 2 OF 6- EXHIBIT F TO ORDINANCE 2015-010
"Local governments may develop a program to achieve consistency with
this rule by following the standard process in OAR 660-023-0030, 660-
023-0040 and 660-023-0050 and submitting the amendment to the
commission in the manner provided for periodic review under ORS
197.628 to 197.650 and OAR 660-025-0175. Until the commission has
acknowledged a county amendment to its comprehensive plan and land
use regulations to be in compliance with Goal 5 and equivalent to this rule
with regard to protecting sage-grouse habitat, sections (5) to (12) shall
apply directly to county land use decisions affecting significant sage-
grouse habitat"[emphasis added].
The changes to the Comprehensive Plan and new regulations in DCC Chapter 18.89
mirror the state rules. Therefore, the new chapter and the revisions to DCC 18.90 are
consistent with the County's Comprehensive Plan
II. SUMMARY
To supplement the overview below, attached with the findings are also a DLCD rule-
making summary and the rules themselves, OAR 660-023-0115 (Attachments 1 and 2).
A. New Sage Grouse Inventories
Deschutes County is now designating core areas, low density areas, and general habitat
within 3.1 miles of a lek as significant sage grouse habitat. These designations under
OAR 660-023-0115(6) only apply to lands protected under Statewide Planning Goals 3
and 4, which in Deschutes County's case are located in the Alfalfa, Horse Ridge East,
and Bend-Tumalo-Redmond, Exclusive Farm Use (EFU) subzones and Forest Use Zone
(F-1). All of the non-federal properties, except one, which is split zoned, are located in
EFU.
B. Regulatory Thresholds
There are two types of development that require County review to determine if it creates
a conflicting use to sage-grouse.
1. Large-scale development in core areas, low density areas, and lands within a
general habitat area located within 3.1 miles of an occupied or occupied-pending
lek.4 Large-scale development goes through a two-part analysis:
• First, is it a use listed in the OAR 660-033-0120 table (Attachment 3) that
requires review? If yes, than,
a"Large-scale development" means uses that are: over 50 feet in height; have a direct impact in excess of
five acres; generate more than 50 vehicle trips per day; or create noise levels of at least 70 dB at zero
meters for sustained periods of time. Uses that constitute large-scale development also require review by
county decision makers and are listed in one of the following categories identified in the table attached to
OAR 660-033-0120.
A. Commercial Uses.
B. Mineral,Aggregate, Oil and Gas Uses.
C. Transportation Uses.
D. Utility/Solid Waste Disposal Facilities.
E. Parks/Public/Quasi-Public.
PAGE 3 OF 6— EXHIBIT F TO ORDINANCE 2015-010
• Does the use meet qualifying feature(s)? Is the use over 50 feet in height;
have a direct impact in excess of five acres; generate more than 50 vehicle
trips per day; or create noise levels of at least 70 dB at zero meters for
sustained periods of time? If yes, it is subject to review.
Examples:
A commercial photovoltaic solar project is a candidate to be considered large-
scale development because it requires review by local government and is
identified in category D — Utility/Solid Waste Disposal Facilities. However, it
would only be determined to be a large-scale development if it covers more than
five acres.
Alternatively, a three-acre aggregate quarry that requires review and is identified
in category B — Mineral, Aggregate, Oil and Gas Uses — would likely be
considered a large-scale development because of it noise and not because of its
size.
2. Smaller levels of development may jeopardize the future of the species if a
proposal is in close proximity of a lek. Land uses that do not qualify as "large-
scale development" would still be evaluated if they require review pursuant to the
OAR 660-033-0120 table and are proposed in:
a. Core area within 4.0 miles of an occupied or occupied-pending lek;
b. Low density area within 3.1 miles of an occupied or occupied-pending lek; or
c. General habitat within 3.1 miles of an occupied or occupied-pending lek.
Examples:
Farm use and other buildings provided in conjunction with farm use are exempt
since they do not require review.
Alternatively, a two-acre guest ranch proposed in any of the areas referenced in
subsection 2 above, would require confirmation from ODFW. The agency would
determine if the use poses a threat to sage-grouse habitat or the way sage-
grouse use that habitat. They could also condition the approval based on certain
recommendations, including minimization techniques and compensatory
mitigation, if necessary, to resolve threats to significant sage-grouse habitat (See
DCC 18.89.080(B), 18.89.090(B), 18.89.100 (B)).
C. Large Scale Development Regulation / Mitigation
Core Area
Core areas are also known as Priority Areas for Conservation (PACs). These two
terms are synonymous. Core areas/PACs are subject to disturbance thresholds
that limit the direct impact of large-scale development to one percent of the total
delimitated area of a PAC over 10 year increments and a maximum total of three
percent. These percentages must be taken into account when a county considers
a large-scale development proposal. A proposal that would exceed either
threshold may not be allowed.
PAGE 4 OF 6- EXHIBIT F TO ORDINANCE 2015-010
In addition to limiting the amount of allowable anthropogenic disturbance in each
core area/PAC, a proposal for large-scale development is subject to the full
mitigation hierarchy, which includes a rigorous avoidance test, minimization
requirements and compensatory mitigation (offsets) responsibility. Applying the
avoidance test and minimization requirements are the purview of local
government. Should any negative impacts to the species remain after these
items are satisfied the applicant will be responsible to offset those impacts
through compensatory mitigation. Compensatory mitigation must be consistent
with ODFW's rule.
Low Density Areas
The regulatory arrangement for low density areas differs from core areas/PACs
in two ways. First, low density areas are not subject to disturbance thresholds
such as the one percent over 10 year increments or three percent total that apply
to core areas/PACs. Second, while large-scale development proposals in low
density areas do require application of the full mitigation hierarchy, a different,
somewhat more lenient avoidance test applies to these areas. In other words, it
will be easier to site large-scale development in low density areas.
General Habitat
General habitat is essentially sagebrush habitat used by sage-grouse that is not
included in a core or low density area. In these areas the rules apply only to
lands within 3.1 miles of a lek. Rather than directly applying the mitigation
hierarchy, large-scale development proposal in general habitat within 3.1 miles of
a lek would be subject to a "consultation" with ODFW. However, consideration for
avoidance, in addition to minimization, is included and the ordinary obligations for
compensation mitigation remain intact.
D. Non-Large Scale Development Regulation / Mitigation
Core Area
Non-large-scale development activities may also constitute a conflicting use if
proposed within 4.0 miles of a lek in a core area. Under these circumstances, a
pre-application conference will be followed by a discussion between the applicant
and ODFW. Through this discussion, which will likely involve a site visit, the local
ODFW biologist will assess the facts and may conclude the given situation does
not pose a threat to sage-grouse and no further consideration is needed. The
ODFW biologist may also conclude that minimization activities such as sharing a
driveway, locating on a specific portion of the property or limiting hours of
operation would be necessary. In extreme cases it may be found that
compensatory mitigation is needed. ODFW would forward these comments to the
county who would then include them in the decision document. This approach is
not expected to result in the denial of any proposal. Instead the conversation and
requirements will be about how the proposal is carried out.
PAGE 5 OF 6—EXHIBIT F TO ORDINANCE 2015-010
Low Density Areas
As with core areas/PACs, non-large-scale development activities may constitute
a conflicting use in low density areas. However, for low density areas the
distance is 3.1 miles from a lek rather than 4.0 miles.
General Habitat
Non-large-scale development may constitute a conflicting use in general habitat
within 3.1 miles of a lek_ These instances will be treated consistent with the
provisions for core and low density areas.
Attachments:
1. DLCD Sage-Grouse Rule-making Report
2. OAR 660-023-0115
3. OAR 660-033-0120 Table
PAGE 6 OF 6— EXHIBIT F TO ORDINANCE 2015-010