Chapter 22.24
RECREATIONAL RESOURCE PROTECTION—GENERAL MANAGEMENT AREAS
Sections:
22.24.010 Applicability of chapter—Maps.
22.24.010 Applicability of chapter—Maps.
Proposed resource-based recreation facilities or uses shall be consistent with recreation intensity classes as set out on the recreation intensity class maps adopted by the Columbia River Gorge Commission as part of the management plan for the Columbia River Gorge National Scenic Area. (Ord. 2021-05 (Att. A), 12-14-21; Ord. 2018-04 (Exh. A), 4-17-18; Ord. 2008-06 (part): Ord. 2006-11 (part): Ord. 2005-07 (part))
22.24.020 General provisions.
A. Applicability of Section. This section applies only to resource-based recreation uses, developments and facilities. Recreation uses and developments that are not resource-based in nature are not subject to the provisions governing recreation intensity classes set out in this chapter. Non-resource-based recreation uses may be permitted pursuant to the provisions of Chapter 22.14.
B. Allowed Uses. Each recreation intensity class includes a description of the desired social, physical, and managerial setting for recreation development within each recreation intensity class. Each recreation intensity class also includes a list of allowable uses, subject to compliance with the approval standards set out in subsections (C) and (D) of this section.
1. Recreation Intensity Class 1 (Very Low Intensity).
a. Social Setting. Visitors in this designation have a high chance of finding solitude and opportunities to experience activities that rely on self-reliance, challenge and risk. Encounters with other visitors are low throughout the designation. Perceived crowdedness is low to nonexistent away from roads and recreation sites. Visitor encounters and perceived crowdedness is low to moderate at or near (within one mile) roads and recreation sites.
b. Physical and Managerial Setting. Predominately natural or natural-appearing landscapes with rustic improvements characterize this designation. Nodes of developed recreation facilities are allowed. Developed recreation site regulations and controls (signing, regulations or other regimentation) are noticeable but harmonize with the natural environment. Away from developed recreation sites there is minimal or subtle control of users.
c. Trail development is simple and typically accommodates low use levels. Users are highly skilled with a high degree of orienteering skills.
d. The following uses may be permitted:
i. Parking areas, not to exceed a site-wide capacity of ten vehicles, when associated with any allowed uses in recreation intensity Class 1. Accommodations for mass transportation facilities should be considered where compatible with the social and physical settings.
ii. Trails for hiking, equestrian and mountain biking use.
iii. Pathways for pedestrian and bicycling use.
iv. Trailheads, with hitching rails and equestrian trailers if trailheads accommodating equestrian use.
v. Scenic viewpoints and overlooks.
vi. Wildlife and botanical viewing and nature study areas.
vii. River access areas.
viii. Boat docks, piers and wharfs.
ix. Picnic areas.
x. Restrooms and comfort facilities.
2. Recreation Intensity Class 2 (Low Intensity).
a. Social Setting. Recreation intensity Class 2 is characterized by opportunities to experience relaxation, physical fitness and outdoor learning and where there is a moderate probability to experience solitude. Typically encounters with other visitors throughout the designation are low to moderate. Visitor encounters are low to moderate on trails and away from developed recreation sites and roads, and moderate to high near (within one mile) recreation sites and roads.
b. Physical and Managerial Setting. Predominately natural or natural-appearing landscapes with rustic improvements characterize this designation. Nodes of highly developed recreation facilities may be allowed. Developed recreation site regulations and controls (signing, regulations or other regimentation) are noticeable but harmonize with the natural environment. Away from developed recreation sites there is minimal or subtle control of users.
c. Trails are moderately developed (native surface or gravel, trail bridges and other facilities are provided for user convenience). Trail use is typically low to moderate. Trails are suitable for a wide range of users and are challenging and involve intermediate to advanced skills.
d. The following uses may be permitted:
i. All uses permitted in recreation intensity Class 1.
ii. Parking areas, not to exceed a site-wide capacity of twenty-five vehicles, when associated with any allowed uses in recreation intensity Class 2. Parking spaces for campground units shall be included in the maximum twenty-five spaces. Accommodations for mass transportation facilities should be considered where compatible with the social and physical settings.
iii. Boat ramps, not to exceed two lanes.
iv. Campgrounds for twenty or fewer tent sites.
3. Recreation Intensity Class 3 (Moderate Intensity).
a. Social Setting. A high degree of interaction with other visitors with opportunities to experience relaxation and activities that provide little challenge or risk in a natural appearing environment characterizes this designation. Visitor encounters are moderate to high on trails away from developed recreation sites and roads.
b. Physical and Managerial Setting. Changes to the natural landscape may be evident but in harmony with characteristics of the landscape setting. Highly developed recreation facilities and trails are constructed for visitor convenience. On-site regulation and controls are noticeable but harmonize with the natural characteristics of the landscape.
c. Trails typically accommodate moderate to high use and are well developed (native, gravel or paved surfaces, trail facilities such as bridges are provided for convenience). Trails are easily traveled by a wide range of users who have intermediate skill level and minimal orienteering skills.
d. The following uses may be permitted:
i. All uses permitted in recreation intensity Classes 1 and 2.
ii. Parking areas, not to exceed a site-wide capacity of seventy-five vehicles, when associated with any allowed uses in recreation intensity Class 3. Parking spaces for campground units shall be included in the maximum seventy-five spaces.
iii. Accommodation of facilities for mass transportation (bus parking, etc.) shall be required for all new recreation intensity Class 3 day-use recreation sites, and improvements to existing Class 3 day-use recreation sites where the improvement would increase the use of the site, except for sites predominantly devoted to boat access. The number and size of the mass transportation facilities shall reflect the physical capacity of the site.
iv. Boat ramps, not to exceed three lanes.
v. Concessions stands subject to the following provisions:
(A) Private concessions and other commercial uses at public recreation sites shall be allowed pursuant to adopted policies of the public park agency owning the site. If a different agency manages the site, that agency’s policies shall apply, unless superseded by provision of the owning agency’s policies.
(B) For commercial recreation sites and public recreation sites not owned or managed by a public park agency with adopted concession policies, the following policies shall apply:
(1) Retail sales at campgrounds shall be limited to camping supplies for overnight guests in dedicated space within the registration or central office building.
(2) Private concessions in permanent structures shall be limited to one structure per park site. Sales shall be limited to those items necessary for enjoyment and use of recreation opportunities at the site, including food and beverages and recreation equipment rental.
(3) Mobile vendors may be permitted, subject to local government approvals. Local government review shall address solid waste disposal, visual impacts or signage, traffic circulation, and safety. Such uses shall be limited to the term of the recreation season, and sales shall be limited to food and beverages and recreation equipment rental.
vi. Campgrounds for fifty or fewer individual units, for tents and recreational vehicles, with a total density of no more than ten units per acre. Campgrounds in recreational intensity Class 3 may include one group campsite area in addition to the allowed individual campground units and parking area maximums. Density is to be measured based on total size of the recreation facility and may include required buffer setback areas.
4. Recreation Intensity Class 4 (High Intensity).
a. Social Setting. This designation is characterized by highly developed facilities where there is little challenge or risk associated with being in the outdoors. There is a high degree of interaction with other visitors. Encounters are high in recreation sites, on roads and trails within this designation.
b. Physical and Managerial Setting. Changes to the natural landscape may be evident but in harmony with characteristics of the landscape setting. Highly developed recreation facilities and trails are constructed for visitor convenience and ease of movement. On-site regulation and controls are noticeable but harmonize with the natural characteristics of the landscape.
c. Trails are highly developed (gravel or paved surfaces, trail facilities such as bridges are provided for convenience) and accommodate heavy to intensive use. Users are typically inexperienced with little or no orienteering skills. Trails are easily traveled by a wide range of users.
d. The following uses may be permitted:
i. All uses permitted in recreation intensity Classes 1, 2, and 3.
ii. Parking areas, not to exceed a site-wide capacity of two hundred fifty vehicles, when associated with any allowed uses in recreation intensity Class 4. Parking spaces for campground units shall be included in this number.
iii. Accommodation of facilities for mass transportation (bus parking, etc.) shall be required for all new recreation intensity Class 4 day-use recreation sites and improvements to existing Class 4 day-use recreation sites where the improvement would increase the use of the site, except for sites predominantly devoted to boat access. The number and size of the mass transportation facilities shall reflect the physical capacity of the site.
iv. Horseback riding stables and associated facilities.
v. Boat ramps.
vi. Campgrounds for one hundred seventy-five or fewer individual units for tents and recreational vehicles, with a total density of no more than ten units per acre. Campgrounds in recreational intensity Class 3 may also include up to three group campsite areas in addition to allowed individual campsite units and parking areas. Density is to be measured based on total size of the recreation facility and may include required buffer setback areas.
C. Approval Standards for Recreation Uses. Proposed resource-based recreation projects to be located outside of public or commercial recreation zoning classifications shall be subject to review by the administrator for compliance with other applicable provisions of this title and with the following criteria:
1. Cumulative effects of proposed recreation projects on landscape settings shall be based on provisions addressing the compatibility of recreation uses with landscape settings in Section 22.18.030.
2. Proposed recreation projects in or adjacent to lands zoned Ag-1, Ag-2, F-1, F-2 or F-3 must comply with the following:
a. The use would not seriously interfere with accepted forest or agricultural practices on surrounding lands devoted to forest or farm uses. Provision of on-site buffers may be used to partially or fully comply with this provision.
b. A declaration has been signed by the project applicant or owner and recorded with the county auditor’s office specifying that the applicant or owner is aware that surrounding landowners, agents and operators are entitled to carry on accepted forest or farm practices on resource lands.
3. Proposed projects including facilities for outdoor fires for cooking or other purposes, or for proposed campgrounds, must comply with the following:
a. The project applicant shall demonstrate that a sufficient quantity of water necessary for fire suppression (as determined pursuant to applicable fire codes or the county fire marshal) is readily available to the proposed facility, either through connection to a community water system or on-site wells, storage tanks, sumps, ponds or similar storage devices. If connection to a community water system is proposed, the project applicant shall demonstrate that the water system has adequate capacity to meet the facility’s emergency fire suppression needs without adversely affecting the remainder of the water system with respect to fire suppression capabilities.
b. To provide access for firefighting equipment, access drives shall be constructed to a minimum of twenty feet in width and a maximum finished grade of twelve percent. Access drives shall be maintained to a level that is passable to firefighting equipment.
4. Proposed trail or trailhead projects must comply with following:
a. Where applicable, new trails should incorporate existing segments of older or historic trails, abandoned roads and railroad rights-of-way, and other previously developed areas suitable for recreation use to the maximum extent practicable.
b. Trails that are intended for multiple user groups shall be required to post signs at trailheads alerting users that multiple user groups may be present on the trail. Trails shall be designed such that user conflicts and safety issues are minimized.
c. Applications for new trails or trailheads shall include measures to minimize the potential spread of noxious weeds.
d. Applications for new trails or trailheads shall consider the potential of fire risk during critical fire hazard periods in developing the physical and managerial setting of the site.
5. For proposed projects providing recreation access to the Columbia River or its tributaries, applicants shall demonstrate that the new facility is consistent with and does not affect or modify tribal treaty rights.
6. For proposed projects on public lands or those that would provide access to the Columbia River or its tributaries, the provisions of Section 22.06.180 shall apply.
7. Proposed projects that include interpretation of natural or cultural resources must demonstrate that the interpretive facilities will not adversely affect natural or cultural resources and that appropriate and necessary resource protection measures shall be employed.
8. Applications for public recreation development in recreation intensity Classes 3 and 4 shall demonstrate how the proposed recreation development will be equitable and accessible (regardless of income level, ethnicity, gender, ability, or age). Applications for public recreation development in recreation intensity Classes 1 and 2 shall meet this standard to the maximum extent practicable.
9. Applications shall demonstrate compliance with the social, physical and managerial setting characteristics in the applicable recreation intensity class description.
D. Design Standards for Recreation Uses.
1. Recreation facilities that are not resource-based may be included at sites providing resource-based recreation uses consistent with the provisions of this chapter, as long as such facilities comprise no more than one-third of the total land area dedication to the recreation use or facilities.
2. The facility design standards are intended to apply to individual recreation facilities. Developments or improvements within the same recreation intensity class are considered as separate facilities if they are separated by at least one-quarter mile of undeveloped land, excluding trails, pathways or access roads.
3. Existing vegetation, particularly mature trees, shall be maintained to the maximum extent practicable. These trees may be used to satisfy requirements for perimeter and interior landscaped buffers.
4. Parking areas providing over fifty spaces shall be divided into discrete “islands” separated by unpaved, landscaped buffer areas.
5. Lineal frontage of parking areas and campsite loops on scenic travel corridors shall be minimized.
6. Ingress and egress points shall be consolidated to the maximum extent practicable consistent with provision of adequate emergency access pursuant to applicable fire and safety codes.
7. Signs shall be limited to those necessary to provide relevant recreation or facility information, interpretive information, vehicular and pedestrian direction and for safety purposes.
8. Innovative designs and materials that reduce visual impacts (such as “turf blocks” instead of conventional asphalt paving) shall be encouraged through incentives such as additional allowable parking spaces and reduced required minimum interior or perimeter landscaped buffers. If potential visual impacts have been substantially reduced by use of such designs and materials, then the administrator may allow either:
a. Reductions up to fifty percent of required minimum interior or perimeter landscape buffers; or
b. Up to ten percent additional parking spaces.
9. A majority of trees, shrubs and other plants in landscaped areas shall be species native to the landscape setting in which they occur. Project applicants that are required to use new landscaping are encouraged to place trees, shrubs, and other plants in a manner approximating their natural condition.
10. For any parking area with over fifty spaces, interior landscaped buffers breaking up continuous areas of parking into discrete “islands” shall be provided. The minimum width of interior landscaped buffers separating each subarea of fifty spaces or less shall be twenty feet.
11. Grading or soil compaction within the “drip line” of existing mature trees shall be avoided to the maximum extent practicable, to reduce risk of root damage and associated tree mortality.
12. Project applicants shall use measures and equipment necessary for the proper maintenance and survival of all vegetation used to meet landscape standards and shall be responsible for such maintenance and survival.
13. All parking areas shall be set back from property boundaries by at least fifty feet. All campsites and associated facilities shall be set back from property boundaries by at least one hundred feet.
E. Variances. Variances may be granted:
1. To the setback and buffer requirements contained in this chapter upon meeting the requirements of Section 22.06.040 and a finding that all of the following conditions exist:
a. The proposed project is a public use, resource-based recreation facility providing or supporting either recreational access to the Columbia River and its tributaries, or recreational opportunities associated with State Road 14.
b. All reasonable measures to redesign the proposed project to comply with required setbacks and buffers have been explored and application of those setbacks and buffers would prohibit a viable recreation use of the site as proposed.
c. Resource impacts have been mitigated to less than adverse levels through design provisions and mitigation measures.
d. The variance is the minimum necessary to accommodate the use.
2. To the parking and campground unit provisions under recreation intensity Class 4 listed in subsection (B)(4) of this section of up to ten percent upon demonstration that all of the following conditions exist:
a. Demand and use levels for the proposed activity or activities, particularly in the area where the site is proposed, are high and expected to remain so or increase. Statewide comprehensive outdoor recreation plan (SCORP) data and data from the National Visitor Use Monitoring Program shall be relied upon to meet this criterion in the absence of current applicable studies.
b. The proposed use is dependent on resources present at the site.
c. Reasonable alternative sites offering similar opportunities, including those in nearby urban areas, have been evaluated, and it has been demonstrated that the proposed use cannot be adequately accommodated elsewhere.
d. The proposed use is consistent with the goals, objectives, and policies in this chapter.
e. Through site design and mitigation measures, the proposed use can be implemented without adversely affecting scenic, cultural, or natural resources and adjacent land uses.
f. Through site design and mitigation measures, the proposed use can be implemented without affecting or modifying treaty rights. (Ord. 2021-05 (Att. A), 12-14-21; Ord. 2018-04 (Exh. A), 4-17-18; Ord. 2008-06 (part): Ord. 2006-11 (part): Ord. 2005-07 (part))