LOC News
Stewardship of Oregon’s Land Use Planning Program
This article is written by Brenda Bateman, Gordon Howard, Ellen Porter, and Stuart Warren from the Oregon Department of Land Conservation and Development (DLCD):
This place we call Oregon is truly special. Whether driving from a city center to more rural areas, flying overhead, or walking through tree-lined streets, parks, and forests, residents and visitors alike can see and feel the character of Oregon, even when they cannot fully describe it.
Here at Oregon’s Department of Land Conservation and Development (DLCD) we have been tasked with stewardship of the state’s land use planning program in partnership with our city and county partners. DLCD Director Brenda Bateman has been in her role for three years and this summer she invited Oregon Land Conservation and Development (LCDC) commissioners and staff to co-author this article for the League of Oregon Cities, as Oregon’s land use planning program embarks on its next 50 years.
A Brief History and Purpose of Land Use
Oregon’s land use planning system — codified in Senate Bill 100 in 1973 — instituted several important features that guide our use of land today.
19 Land Use Goals. One important feature of the land use program is the collection of 19 land use goals, which require planning for adequate economic development lands (for businesses and jobs, homes, schools, medical services, etc.) over a 20-year period. Our working lands — including agricultural lands and forest lands that contribute significantly to Oregon’s economy — are also economic development lands.
The 19 goals guide decisions to locate infrastructure away from hazards like fire- and landslide-prone areas that affect public health and safety.
The 19 goals also protect open spaces, coastal access, ocean and natural resources, and cultural areas. This protection of public resources contributes to “what makes Oregon, Oregon.”
Addressing these goals in a balanced way contributes to “complete communities” that provide residents access to jobs, education, childcare, food, and housing through a variety of transportation options.
Community Engagement. Another important feature of our land use planning system is community engagement. Built on the input gathered during town halls and workshops held all over the state, Oregon’s land use program was an early embodiment of “The Oregon Way,” which means to invite diverse views, dialogue, and collaboration in designing land use zoning, ordinances, and permitting systems. While no one gets their way all the time, they do deserve to have a voice in the decision-making process.
Urban Growth Boundaries (UGB). UGBs are a well-known but often misunderstood feature of Oregon’s land use program. UGBs help direct growth “into town,” where infrastructure and services are available to accommodate and support growth. UGBs are not static lines; they are designed to adapt and grow to meet community needs while developing thoughtfully and avoiding the state’s highest value resource lands. UGBs are required to provide enough land for the next 20 years of housing and economic growth. This system allows for orderly and efficient urbanization of land, so that future growth is predictable and land is less susceptible to speculation. Claims that Oregon’s system of urban growth boundaries doesn’t work are incorrect. In fact, from 2016 to 2024, cities in Oregon approved 46 urban growth boundary amendments adding 17,600 acres to UGBs in Oregon, and only two locally adopted urban growth boundary amendments during that time were rejected in judicial review. During that time, DLCD and LCDC did not reject a single submitted UGB amendment adopted by an Oregon city. There are many standout examples in recent history:
- The city of Bend completed a 2,000+ acre UGB expansion in 2016 to address the explosive growth that city has seen in recent years.
- Metro completed successful amendments in 2019 and 2022 that have — and will continue to — result in new, orderly, planned urban growth in an area that hosts more than half of Oregon’s population.
- In 2021, the city of Eugene adopted an urban reserve with 5,900 developable acres that will help address the city’s need for growth during the next 50 years.
- This year the DLCD provided critical technical assistance to support an urban growth boundary expansion by the city of Madras under the Central Oregon Regional Large Lot Industrial Land Program. This program relies on a regional economic opportunities analysis to supply cities in central Oregon with industrial sites for significant economic development opportunities.
Local Implementation. Perhaps the most important feature of all is the interaction among multiple levels of government to manage Oregon’s land. While the state sets the overall policy, ensuring some level of consistency, it is the local government — cities and counties — who are the implementers. They shape the comprehensive plans, zoning, ordinances, and permitting that define the character of each location. While DLCD reviews local government plan amendments and zoning code revisions, the state acknowledges the vast majority of local plan amendments and zoning code revisions as proposed without need for revision. All 241 incorporated cities and all 36 counties in Oregon have comprehensive plans reviewed and acknowledged by the state.
All other local government decisions on applications such as land divisions, conditional use permits, and variances, are subject to review only by appeals to the Oregon judicial system, and such appeals are subject to significant procedural restrictions that fall on potential appellants.
Community members can take part in local decision‑making by sharing their views at public meetings of commissions and councils or by serving as planning commissioners, city councilors, or county commissioners, or by sharing their views at public meetings of these commissions and councils.
Unfortunately, some of the foundational building blocks meant to support the work of local planners have withered in recent years due to funding shortages. Examples include:
- Funding that helped local jurisdictions periodically review needs, data, and information that shaped local comprehensive plans; and
- State agency coordination agreements that hold individual state agencies accountable for the process they use in their interactions with city and county partners.
These supports are critical to the success of local partners and are part of DLCD’s work plan to rebuild over the next several years. Our department is working to remedy these issues by encouraging local governments to enter “voluntary periodic review” and by updating our state agency coordination agreements with other state agencies involved in the planning process.
In 2021, Wasco County completed a voluntary periodic review program and prepared a handbook for other cities and counties to use in creating their own voluntary periodic review program. The department sees this as an opportunity to revive a powerful tool that cities can use to plan for their future. Last year, LCDC approved a voluntary periodic review program for the city of Amity, in Yamhill County, and the department provided a technical assistance grant to help the city with its work.
Taken together, these features — all of which are state policies — acknowledge that Oregon’s economy and population are destined to grow. But in the process, decision-makers must show their work, documenting and demonstrating the need for more land, and they must also inform and consult with their communities.
Built by Strong Partnerships
The formation of Oregon‘s land use system came at a pivotal moment in state history when business leaders, labor leaders, political leaders, journalists, and other community leaders saw a need for thoughtful, integrated planning across transportation, industry, infrastructure, and other sectors to address multiple community needs at the same time. That spirit continues today through partnerships across the state.
The cities of Jackson County set themselves up for success in managing their long-term urban growth through the development of the Greater Bear Creek Valley Regional Problem Solving Plan. This plan resulted in urban reserves for six of the county’s cities. Urban reserves are designed to provide for the next 50 years of projected urban growth and will provide more coordinated planning in the region.
Cities continue to innovate in the planning arena, as evidenced by the city of Sandy, a recipient of DLCD’s 2025 Achievements in Community Engagement award. Sandy officials partnered with 3J Consulting, ECONorthwest, Geos Institute, and Veritas Collaborations to deliver a robust and inclusive planning process. Their goal was to elevate community voices, especially those historically underrepresented in local decision-making. The process included a focus on addressing economic development, wildfire resilience, housing affordability, and infrastructure redundancy. The process — supported with a $50,000 technical assistance grant from DLCD —culminated in a unanimous 2024 adoption by the Sandy City Council of a new comprehensive plan.
Going Forward
As Oregon cities begin working through the new Oregon Housing Needs Analysis rules, which require them to inventory past harms imposed on underserved communities, we as a state also need to grapple with the burdens imposed through the statewide land use system. Our system was built during a time of anti-migrant sentiment in the early 1970’s. Over my five-year tenure as a Land Conservation and Development Commissioner, I have watched as the state began shifting the statewide planning system from anti-growth towards a system that plans for growth. We, as a state, still have progress to make, but I am confident that we are heading in a better direction to leverage our statewide planning system to work towards a more equitable future for all current and future Oregonians.
--LCDC Commissioner Stuart Warren
Acknowledging and Preventing Future Racism and Inequity. For all communities, wealth and health are closely correlated to having access to well-functioning land, water, and ecosystems. However, our national, state, and local policies have separated or excluded entire communities from the land time and again through actions such as:
- Breaking treaties, terminating most tribes, and suppressing indigenous language and culture;
- Constitutionally excluding Black residents from Oregon when the state was first formed;
- Removing Japanese farmers and business owners during WWII;
- Moving, re-moving, and redlining Black neighborhoods in the name of development; and
- Failing to recognize or to house those who are experiencing homelessness.
Looking ahead to the next 50 years of Oregon’s land-use planning program, we know we can do better. Our commitment today is to avoid inflicting, perpetuating, or allowing harm like this… and taking corrective action when possible. Doing better means working deliberately to be in partnership and communication with each other. It means ensuring that our processes are open, inclusive, and welcoming to all Oregonians.
Streamlining the UGB Process. The urban growth boundary helps plan for future growth, ensuring that development is systematic and not speculative, and the use of UGBs remains as important a tool in the planning toolbox today as it was 50 years ago. Despite the noted success of the program, the process still has room for streamlining. This work is underway in the Oregon Housing Needs Analysis rulemaking scheduled to come before LCDC in December 2025.
Honing Our GIS Skills. Geographic information systems (GIS) help decision-makers map and visualize where important features need to go on a landscape. Communities cannot properly plan without up-to-date information about needs, population, landscape features, protected, habitat, critical wetlands, and more. DLCD responds to requests quickly and accurately, especially for local partners without in-house GIS capacity.
Recruiting state agency planners with a local perspective. You may have noticed that in addition to their professional certifications, all of DLCD’s regional representatives working directly with local governments also have a deep knowledge as practitioners at the local level. This real-world experience allows the agency to develop grant programs, technical assistance, model codes, and guidance — all useful to city and county planners. DLCD has nine regional representatives, who are always happy to help.
Funding and Technical Assistance
“One of the things I appreciate about Oregon’s land use planning program is that while the state provides the framework for implementation, it also provides technical assistance and funding support to the local jurisdictions who are the implementers. This is a partnership, and no one is expected to do this alone.”
--LCDC Commissioner Ellen Porter
Technical Assistance Grants for Local Jurisdictions. In DLCD’s 2025–27 budget, the Legislature appropriated approximately $1 million in grants for general technical assistance to local governments. DLCD offers Technical Assistance grants to local governments for a wide range of general planning projects on topics — excluding housing, for which the department offers a separate grant program. These topics include economic development, natural hazards, public facilities, environmental and cultural resources, and others. The department is especially interested in offering assistance to cities considering voluntary periodic review, which would allow a city to complete a general update of its comprehensive plan to respond to new issues the city is facing. The 2025 Legislature also added $500,000 to the agency’s base budget to help with technical assistance for local wetlands inventory and planning. Now is the time for cities to apply for technical assistance grants for the 2025-2027 biennium. The application window opened in mid-August and closes on October 10.
Community Green Infrastructure Grants. Green infrastructure consists of nature-based systems that increase community resilience by managing stormwater, reducing heat, restoring landscapes, and providing a wide array of other benefits. Examples of green infrastructure include trees, rain gardens, bioswales, and green roofs. Applications are now being accepted until October 13 at 5 pm for projects that bring green infrastructure into Oregon communities. Approximately $3,000,000 is available during this round. Eligible projects include:
- Planting or building green infrastructure that benefits people and ecosystems;
- Growing and supplying native plants and seeds; and
- Creating green infrastructure master plans.
Housing Planning Assistance Grants. The Housing Division and Housing Accountability and Production Office (HAPO) within DLCD provides resources to help Oregon communities prepare and update local land use plans and implement ordinances that respond to identified housing needs, growth management, and resource protection issues. This year’s open call for applications closed on August 4. In total, we received 91 applications from Tribal governments and local jurisdictions. The team will publish award decisions in early October and look forward to investing in housing projects across the state that will increase housing production, affordability, and choice.
Frequently Asked Questions. DLCD often fields questions about Oregon’s land use planning program, and has compiled some of the most frequently-asked land use questions into one place on-line for easy reference. As you read through these, if you have follow-up questions or additional questions, we invite you to reach out to the authors below or to DLCD’s regional representative for your area for more information.
Author Bios
Dr. Brenda Ortigoza Bateman joined the Oregon Department of Land Conservation and Development as director in 2022 and has served the state of Oregon for the past 18 years. At the Oregon Water Resources Department, she co-authored the state’s first water plan, The Integrated Water Resources Strategy. At Business Oregon, she served as Chief Operating Officer. Dr. Bateman led the American Water Resources Association (AWRA) as its national president in 2018, after serving on AWRA’s Board of Directors and chairing AWRA’s Policy Committee for almost a decade. She earned a bachelor’s degree in international relations and a master’s degree in international economics and law from The Johns Hopkins University and a doctorate in public policy from the University of Maryland Baltimore County.
Gordon Howard has been with the Oregon Department of Land Conservation and Development since 2012, when he became the department’s urban planning specialist. In 2017 he became the Community Services Division Manager with the Department, supervising regional representatives and the department’s urban and rural specialists. His prior Oregon planning experience, dating from 1993, has been with the City of West Linn and Multnomah County. He is also a member of the Oregon State Bar, having worked as an attorney with the City of West Linn and the Oregon State Legislature before joining DLCD. Gordon has a Masters Degree in Planning from UCLA and is a graduate of Lewis and Clark Law School in Portland.
Ellen Porter has served as a commissioner on the Land Conservation and Development Commission since 2024 and has worked in the environmental field for more than 25 years. She is an independent contractor/consultant who assists various companies with environmental compliance and permitting. Ellen was the Director of Environment for Roseburg Forest Products for nearly 20 years and was an Environmental Manager for Louisiana Pacific prior to that. Ellen received several degrees from the University of Montana including a bachelor’s degree in liberal arts and a Law degree where she specialized in Environmental, Real Property and Water Rights. Ellen currently serves on the Roseburg City Council, is the Conservation Chair for the local Audubon chapter, and is the President for Riverbend Live!, a summer concert series and Youth Theater program based in Winston, Oregon.
Stuart Warren has served as a commissioner on the Land Conservation and Development Commission since 2020 and was born and raised in rural Southern Oregon. He owned and operated his own guided fly-fishing business on the Rogue River and served on the Phoenix, Oregon City Council as council vice-president, Chair of the Phoenix Urban Renewal Agency board, and council liaison to the city's Parks and Recreation Committee. The Almeda Fire in 2020 displaced many of Stuart’s neighbors, including an inequitable number of Latino families, and destroyed a part of his hometown. During the fire recovery efforts, Stuart worked to help families provide for their daily needs and decided to make public service a full-time career. After receiving his Masters in Community and Regional Planning from the University of Oregon, Stuart now works as an Associate Planner in Eugene, Oregon, where he remains passionate about equity, housing, and wildfire planning.
Last Updated 9/12/25