CPO Handbook

Welcome

This is the Clackamas County CPO handbook. As a member of this group, you play a pivotal role in our community. Your feedback, communication, and commitment are essential in fostering collaboration, ensuring transparency, and advancing our community's goals. Whether you're facilitating meetings, organizing community feedback, or ensuring compliance with regulations, you are an integral part of the team that helps shape the future of our county.

This handbook is designed to be a valuable resource as you carry out this important work. Our goal is to equip you with the necessary tools, knowledge, and support to excel in your role and feel confident in your responsibilities. Your commitment to managing communications, maintaining meeting integrity, and engaging in discussions helps create a positive, productive environment for everyone. Thank you for your hard work and dedication. Together, we are making a lasting impact.

History
Section 1. Introduction
Section 2. Relationship with Clackamas County
Section 3. Roles and responsibilities
Section 4. Bylaws
Section 5. Public Meetings
Section 6. Keeping Your CPO Recognized
Section 7. Request for Reimbursement
Section 8. Liability Insurance
Section 9. Checklist for New CPO
Appendix A. Boundary maps
Appendix B. Public Meetings
Appendix C. Requirements for Liability Insurance
Appendix D. Effective media relations
Appendix E. Dealing with Conflict

Quick Links

History

In 1973, Oregon passed a law requiring the state to establish a statewide comprehensive plan for land use planning. The program comprises 19 goals that outline the state's policies on land use and related topics, including citizen involvement, housing, and natural resources. The law also required local jurisdictions—counties, cities, and special districts—to develop comprehensive local plans consistent with the statewide planning goals.

State Goal 1 establishes community participation as a hallmark of Oregon's comprehensive planning, ensuring the public can participate in each phase.

Each of Clackamas County's 16 cities has a comprehensive land use plan. For unincorporated areas, Clackamas County established a formal and organized structure for public engagement and participation in its land use planning process through the Committee for Community Involvement, community planning organizations (CPOs), hamlets, and villages.

Committee for Community Involvement

The Committee for Community Involvement (CCI) is a public advisory board appointed by the Board of County Commissioners (BCC). It was established to help the county meet State Goal 1 and is responsible for assisting the Board of Commissioners and other appropriate governing bodies with developing a program that promotes and enhances community involvement in land use planning, implementing the program, and evaluating the process for community involvement. The county's Public and Government Affairs (PGA) is the CCI liaison.

Community Planning Organizations

Section 1. Introduction

CPOs are independent advisory organizations established by volunteers who live in unincorporated areas whose boundaries are established by the county to meet community involvement requirements outlined in State Goal 1: Community Involvement and the county's Comprehensive Plan. They are rooted in state planning law and play a role in the larger task of self-governance in Clackamas County. While the original purpose of CPOs was to involve community members in the land use planning process, many have expanded it to include other matters of community importance.

Anyone 18 years or older who lives, owns property, or operates a business in the unincorporated parts of the county (not inside an incorporated city) can be a member of one of the county's recognized CPOs. Since land use planning within a city is the city's responsibility, individuals who live within city limits can participate in their city's community involvement program through neighborhood associations or similar groups.

Section 2. Relationship with Clackamas County

CPOs advise the BCC and other appropriate county departments on matters affecting their communities, including land use planning and neighborhood livability. They are notified of proposed land use actions and legislative changes within their boundaries. They may review these applications and recommend approval or denial.

Section 3. Roles and responsibilities

Role of PGA

Public and Government Affairs (PGA) manages the county's community involvement program, which includes engaging with and supporting the CPOs. PGA's responsibilities include:

Assist in the CPO's official recognition by keeping current bylaws, minutes, and names of CPO officers on file for the public.
Process CPO's requests for reimbursements. The approved annual reimbursement amount is announced to CPOs at the beginning of each fiscal year.
Act as a resource and referral service for information about the county.
Assist with the formation and boundary adjustments of CPOs.
Facilitate required training sessions.
Support participation in the CPO program through various media outlets, promote special events, and provide a webpage for the program.
Provide third-party liability insurance to CPO boards to provide protection, but still allow for CPO autonomy from the county.

Role of CPOs

CPOs are one of the many stakeholders in the county's land use planning processes.

Under state law and county regulations, part of the land use planning process is notifying the appropriate stakeholders when the county receives certain types of land use applications. Stakeholders include:

The applicant
Property owners in the surrounding area
The respective CPO
State and county agencies (e.g., Oregon Department of Transportation, Oregon Department of State Lands, fire departments, and water/sewer agencies)
County departments (e.g., Building Codes, Transportation Engineering, Septic and Water Environment Services)

Planning and Zoning notifies all appropriate stakeholders and emails a copy of the land use application, or a link to access it online, to CPOs for review.

Based on the application and local knowledge, the CPO can recommend that an application be approved or denied using the applicable Zoning and Development Ordinance (ZDO) criteria. The CPO must identify the reasons for its recommendation, along with any vote, and explain how those reasons relate to the ZDO criteria applicable to the application.

Planning and Zoning considers the information submitted by multiple stakeholders, weighs it against the ZDO criteria, and renders a decision for approval, modified approval with conditions, or denial.

Comment period

All stakeholders can comment on an application within a 20-day comment period. Comments submitted after 20 days are considered if received before Planning and Zoning makes its decision. CPOs are encouraged to contact the planner in charge of a particular land use application if more time is needed to respond to an application. If it's possible to grant the extra time without compromising the legal timelines for issuing a final county decision (including a potential appeal), staff is typically able to do so.

Appeal

Any interested party, including a CPO, who disagrees with the Planning and Zoning staff decision, may appeal to the Land Use Hearing Officer(s) within 12 days of the mailing date of the staff decision. The Hearing Officer acts in a similar capacity as a judge, reviewing land use applications that require public hearings and appeals of staff decisions. Most Hearing Officer decisions can only be appealed to the Oregon State Land Use Board of Appeals. If the application is for an interpretation of the ZDO, the Hearing Officer's decision may be appealed to the BCC, which then decides whether to hear the application.

Under Subsection 1307.16 of the Clackamas County Zoning and Development Ordinance, an active, recognized CPO is not required to pay the $250 appeal fee provided the decision to file an appeal is made at a public meeting held in compliance with Oregon Public Meeting Laws and according to the decision-making process outlined in their bylaws.

CPO Boundaries

The BCC establishes CPO boundaries within Clackamas County and must approve any request for a new CPO or changes to existing CPO boundaries. For additional information on boundary changes, contact PGA.

If neighboring cities annex the area, CPO boundaries automatically change to exclude any areas within unincorporated Clackamas County. Boundaries should not overlap with another CPO unless each CPO agrees in writing and the BCC approves this change.

All residents and stakeholders (e.g., business representatives) within a designated CPO boundary are automatically eligible for membership.

Maps

CPO maps are available for each respective CPO. These can be downloaded from the county's website or by submitting a request to PGA. Refer to Appendix A for instructions on downloading a CPO map and more information about Clackamas County's geographic information services (GIS).

Section 4. Bylaws

CPOs are required to establish bylaws upon formation to meet statutory requirements. The county provides an approved template for CPOs to follow when developing their bylaws. While a CPO decides most of its organizational details, the language in boldface is required by state statute or county ordinance. The bylaws must include at least these elements:

Roles and responsibilities of board members
How decisions are made
How bylaws can be amended
Procedures for removing board members and filling vacant positions

Once a CPO drafts its bylaws using the county-approved template, it submits the draft bylaws to PGA for review and approval.

PGA conducts an initial review and may request revisions from the CPO.
PGA sends the bylaws to county counsel for legal review and approval.
After legal review and approval, PGA submits the final draft to the BCC.
With BCC approval, the CPO adopts the bylaws at its next public meeting.

Proposed amendments to CPO bylaws follow the same procedure as outlined above.

Section 5. Public Meetings

The Oregon Public Meetings Law (ORS 192.610) requires advisory bodies to hold public meetings so that the public can be informed and aware of the deliberations, decisions, and the information upon which those decisions are made. A CPO is a public body with the authority to make decisions and recommendations. For this reason, CPOs are subject to public meeting laws.

CPOs must hold at least two public meetings annually to be recognized as an active advisory body. The meetings should be held within the CPO geographical boundaries or at the nearest practical location. Meetings can be held in person or virtually, facilitated by technology. Meetings should be accessible to people with disabilities.

A public vote must follow all official actions taken by the CPO. Each member's vote must be recorded unless the CPO has more than 25 members. Even then, any member may require that the votes of each member be recorded. Written ballots are not required, but each ballot must identify the voting member, and the vote must be announced.

CPOs are prohibited from calling or holding executive sessions (where the public is excluded). Any subcommittee that meets with a quorum of board members present qualifies as an executive session and, thereby, is also prohibited. Under the law, executive sessions are allowed only when discussing labor negotiations, confidential medical records, property transactions, or public investments. None of these issues fall within the expected topics for CPO meetings.

Public meeting notice

Noticing meetings are a legal requirement. Reasonable notice must be provided to the public, and CPOs should choose various notification methods to help attract a diverse group to their meetings.

The county recommends at least seven days' notice before a meeting.
Actual notice must be provided to those requesting it by phone, email, or mail.
The law encourages, but does not require, notification of parties with a special interest in the meeting.
Public notification must include the meeting's date and time, place, and the subjects of discussion. An agenda is highly recommended but not required.

How to notice a public meeting

Posting a notice on a website or social media is one way to notice meetings or other activities. Community newspapers, if available, will generally run CPO meeting announcements. Most newspapers have specific submission deadlines and typically require at least 10 days' notice before the meeting.

Clackamas County's website offers a page where CPOs post notices. These can be submitted through PGA's document submittal portal.

Meeting minutes

CPOs must take minutes of their public meetings. The minutes do not have to be verbatim, and the meeting does not have to be recorded unless otherwise required by law. However, they must accurately reflect the matter discussed at the meeting and the participants' views.

Minutes must be submitted to PGA through the document submittal portal within a reasonable time after the meeting, preferably within 30 days.
If the minutes are not approved, they may be marked as drafts. Once they are prepared, however, they must be made accessible to the public, even if they have not been approved until the next meeting.
The county will keep a copy of the minutes for public review and retain them following the rules of the State Archives. The CPO should also keep a file of its minutes.

Minutes and records available to the public must be made accessible to everyone, even if it means converting them to large print, Braille, or other formats upon request. Contact PGA if an individual requests the minutes in a special format.

CPOs are encouraged to use the county-approved template for meeting minutes. Refer to Appendix B for additional information on conducting public meetings.

Section 6. Keeping Your CPO Recognized

Every year, PGA is required to review CPO files to ensure the requirements for official recognition are met. If these requirements are not met, CPOs will be deemed inactive. PGA conducts this review annually from January to February.

The following information is required to ensure a CPO's recognized status:

A list of current CPO officers with addresses, phone numbers, and email addresses.
Current CPO bylaws.
Hold at least two public meetings annually, keep minutes, and provide copies to PGA. CPOs are required to submit a copy of minutes for all meetings (regardless of frequency) to comply with public records laws.
Submission of the annual CPO Authorization Form.

Section 7. Request for Reimbursement

CPOs may request reimbursement for certain operational costs at the current annual reimbursement rate. A reimbursement request must be submitted, along with copies of all receipts, through PGA's document submittal portal.

Examples of operational expenses include:

Post office box rental
Equipment (e.g., laptop, projector, etc.)
Supplies (e.g., paper, ink, etc.)
Printing/copying (e.g., cost to print or copy a flyer, postcard, brochure, etc.)
Postage/mailing (e.g., cost for postage)
Marketing (e.g., cost of ad placement, cost for photographer, etc.)

CPOs should contact PGA if they have questions about what qualifies as a reimbursed expense. Additionally, CPOs should be aware that the Internal Revenue Service (IRS) requires the county to issue a 1099-MISC form to individuals who receive a reimbursement from the county that exceeds the annual federal maximum cap, as determined by the IRS, to be reported as income on their income tax return.

CPOs may designate up to three members authorized to submit reimbursement requests and the person authorized to receive payment from the county annually. To receive reimbursement, CPOs must submit an authorization form. The CPO authorization form can be found and submitted through PGA's document submittal portal.

PGA processes approved reimbursement expenses quarterly and remits payment to the designated CPO recipient within two weeks of the quarterly distribution deadlines to the appropriate parties. Any requests received after the quarterly deadline will be processed in the next quarter. The submission deadline is the first Thursday of the following months:

Quarter 1: October
Quarter 2: January
Quarter 3: April
Quarter 4: June

Section 8. Liability Insurance

Clackamas County provides optional liability insurance to recognized CPOs. A third-party insurance provider provides the insurance, allowing the CPO to maintain its autonomy in land-use decisions. This coverage protects against accident liability, strategic lawsuits against public participation (SLAPPs), and other legal matters that may arise. To qualify for coverage, the CPO must be recognized, and all CPO board members must complete a brief training course on the community involvement program and best practices for meetings. Refer to Appendix C for additional details on the qualifying criteria.

Section 9. Checklist for New CPO

Community residents may organize a new CPO in an unincorporated area of Clackamas County if one does not currently exist or to reactivate an inactive CPO.

Bylaws: Use the county-approved bylaws template and customize it for your new CPO. The bylaws must comply with the county's Comprehensive Plan and include a map of the CPO boundaries. The draft document must be submitted to PGA through the document submittal portal for approval before the CPO adopts the bylaws.
Meeting Notice: You'll want to use the broadest possible advertising. For support in identifying effective ways to advertise your meeting and increase participation, contact PGA.
First Meeting: The first meeting of the new CPO will be organizational.
- Review, revise, and approve the proposed bylaws.
- Consider appointing a nominating committee for electing CPO officers (chair or president, vice-chair or vice-president, secretary, treasurer). Elections will take place at the second meeting.
Meeting Dates and Location: Several CPOs have found it more efficient to establish meeting dates and locations. Your bylaws need to address this.
Responsibilities: CPO officers and all active members are volunteers. The CPO is responsible for planning and scheduling its meetings. Open meeting laws must be followed. Meeting minutes must be submitted to PGA through the document submittal portal.
Funding: The county provides annual reimbursement funds for CPO operational costs. The CPOs are required to submit an annual CPO Authorization Form. Refer to Section 7 above for additional information and details.

Recruiting and maintaining volunteers

A CPO's success relies on a community dedicated to its goals and committed to helping achieve them. After people volunteer for the board, specific committees, or projects, it is important to keep their enthusiasm and commitment.

Agree on clear goals, expectations, and responsibilities.
Be flexible. Provide opportunities that meet their time schedules and abilities.
Always be open to newcomers and additional volunteers.
Say "thank you." Make people glad they participated.

PGA encourages CPOs to collect contact information from attendees at meetings. This allows CPOs to maintain an email distribution list to send notices, update members on community issues, request assistance with various duties, and keep interested residents engaged in the CPO's efforts.

CPOs should also consider establishing a working relationship with the local media to help create visibility and promote their efforts. Refer to Appendix D for additional information on working with the media.

Appendix A. Boundary maps

Downloading a CPO map

The county provides downloadable maps of the geographic boundaries of active CPOs. Follow these instructions to download a map.

Click the Interactive Map button on the CPO webpage or use this interactive map link.
The link will bring up the Active CPOs & Hamlets view.
To view active CPOs, click the Map Layers icon in the upper right corner and deselect all layers except County Boundary and CPO (Community Planning Organization). To deselect the layers, click the Visibility icon (the eye) for tax lots, hamlets, city boundaries, and inactive CPO.
Click on the active CPO you need. A pop-up screen will appear with information about the selected active CPO. Select PDF in the Map Download field.
The map of the selected active CPO will appear on your screen.
Print the map.
The map can be downloaded and saved by selecting the download icon in the upper right corner and saving the file to your device.

Clackamas county geographic information services (GIS)

GIS produces maps for the county and other organizations at the county's direction. GIS is not a map production company like Metro, nor is it a profit-making business. Its purpose is to maintain a database required for the county (and non-county) departments to do their work. This database includes millions of data points, plots, attributes, photos, lots, and other additional data. This information is subject to change and must be accurate and up-to-date for county purposes.

GIS serves four categories of clients:

In-house Clackamas County agency requests, especially from DTD (Department of Transportation and Development) divisions, are a significant source of requests. GIS usually does not charge for these projects, and these requests receive high priority for work assignments.
Non-county agencies include police, city, school, and fire. GIS charges for work and the cost of all supplies. The following priority levels are in effect, with the time spent on each project varying according to its requirements.
Other agencies, such as PGE and others. GIS charges these agencies per hour, as well as the full cost of supplies.
CPOs, hamlets, villages, and walk-in community members. GIS charges these public bodies for the time spent addressing questions or requests, as well as for the map(s) created, depending on the request and the size and number of maps required.

Appendix B. Public Meetings

The Oregon Public Meetings Law (ORS 192.610) requires meetings of advisory bodies to be open to the public, allowing the public to be informed and aware of the deliberations, decisions, and the information upon which those decisions were made. CPOs, hamlets, and villages are public bodies with the authority to make decisions and recommendations. For this reason, they are subject to public meeting laws.

Robert's rules of order

Clackamas County uses Robert's Rules of Order to provide a structured framework for conducting meetings and ensuring fair and orderly decision-making. It emphasizes equal rights, majority rule, and a clear process for handling motions and amendments.

How to conduct a meeting

The following is a general format and order of business. Any items not applicable can be deleted.

Welcome and opening ceremonies (optional)
Reading and approval of meeting minutes
Financial statement
Bills
Correspondence
Reports of Officers, the Board, and Standing Committees
Reports of Special Committees
Special Orders
Unfinished Business and General Orders
New Business
Program
Announcements

Process for handling a motion

A motion is a formal proposal by a board member that asks the board to take a specific action.

A member makes a motion: "I move that…"
Another member seconds the motion: "I second the motion…"
The chair states the motion "is moved and seconded."
The chair opens debate: "Is there discussion?"
The members debate the question.
The chair puts the question: "The question is on adopting the motion that…"
The chair initiates a voting process.
If it is a small board (25 or fewer members), each member's vote is recorded. The chair or secretary calls each member's name and provides a unique opportunity for each member to respond with "Aye" or "Nay."
If it is a large board (more than 25 members), a roll call is not required. The chair can call for "all in favor/all opposed and tally the number of votes.
The chair announces the vote.

Minutes for public meetings

Written minutes are to be taken at all meetings and include the following:

Date, time, and location of the meeting.
List of members who are present.
Any motions, proposals, resolutions, orders, ordinances, and measures proposed, and the action taken by the public body regarding them.
The results of all votes and a record of each member's vote by name if the public body has 25 members or fewer (Note: if the public body has more than 25 members, then the ballots do not need to be listed by name unless a member requests a "roll call" vote of that body).
A summary of any discussion on any matter.
Reference to any document discussed at the meeting.

Appendix C. Requirements for Liability Insurance

Statement of Assumed Responsibilities for Elected Officers and Directors of Community Planning Organizations

Preamble

The community planning organizations of Clackamas County (CPO) are volunteer organizations. They are part of the community involvement program required by the State of Oregon statute, as outlined in Goal 1, Citizen Involvement of the Statewide Planning Goals. CPOs serve the residents, property owners, businesses, corporations, and trusts within their geographical boundaries, addressing community development, land use, and general community issues. CPOs are entities distinct from and not agents of Clackamas County.

Statement of Assumed Responsibilities for CPO Board Members

CPO board members are officers and directors at large whom the CPO members have elected to represent their interests. By accepting a position on a CPO board, each board member pledges to follow and assume the stated responsibilities in all official acts taken as a member of the CPO board.

To serve the best interests of the CPO regardless of personal interests.
To conduct open, fair, and well-publicized meetings and elections.
To provide opportunities for members of the CPO to comment on decisions facing the CPO.
To perform duties without bias for or against any individual or group
To act in compliance with all their CPO's bylaws.
To comply with all other aspects of Oregon law applicable to public officials, including the public records law, public meeting law, ethics law, and election laws.
To be eligible for general liability and directors' and officers' insurance coverage under any insurance plan or plans offered to the CPOs and paid for by Clackamas County, the CPO board members of the accepting CPO shall both:
- Undertake reasonable training as reasonably provided by, and at the expense of, the Clackamas County Board of County Commissioners and county staff within 90 days of being elected (or the enactment of this statement, whichever is later).
- Notify the county in writing that such training was taken. Such training may include, but is not limited to, general governance and procedures, bylaws, public meetings and records, elections, and governmental ethics. It shall be offered at times and in convenient formats for citizen volunteers, such as online and/or at regularly scheduled CPO meetings.
To comply with the requirements provided by Clackamas County to be recognized as an active CPO.

Appendix D. Effective media relations

CPOs, hamlets, and villages can use the media to establish credibility, engage with community members, and enhance the public's understanding and support.

Be proactive in communicating with the media through releases, letters to the editor, guest editorials, and meetings with reporters, editors, and publishers.
Invite media representatives to all your meetings.
Not all media are the same. Know the difference and how to optimize your relationship.
Honor deadlines. Provide the media with sufficient prior notice to schedule an interview and ensure ample coverage.
Never be afraid to say, "I don't know." But add "I'll find out for you."
Look for publicity niches to reach segments of the public who may read local newspapers or tune into local television or radio.
Face the inevitable—bad news does indeed drive out good news—but take that as a challenge to convince the media otherwise.
Be friendly with the media, but professional when speaking or providing information.

Appendix E. Dealing with Conflict

As leaders of public bodies in Clackamas County, members of your communities respect your judgment and expect you to be fair and judicious in carrying out your responsibilities. The following are ways to address them that preserve the integrity of your organization and enable you to move on to other challenges. In most cases, you should be able to work through difficult situations without an outside mediator.

Contact PGA for support.
Meet to discuss the issues at a convenient time and place.
Choose a neutral facilitator.
Involve all parties in the conflict, being careful not to overload the group with too many representatives on one side.
Agree with the items to be discussed and the goals you want to achieve. Stay with the agenda.
Respect all participants and receive respect in return.
Focus on outcomes and what is best for the community, not on what is best for one individual or small group.
Take turns speaking. Do not interrupt or talk over one another.
Avoid blaming. Remember, everyone makes mistakes.
Avoid using words or actions to intimidate others.
Avoid taking irrevocable or non-negotiable positions.
Look and listen carefully. Watch for clues in body language or speech that indicate moods or attitudes and respond appropriately.
Take as much time as required to reach a solution. You may need more than one meeting to achieve your goals.
Work toward an agreement that is fair and constructive for everyone.
Strive for small victories that give everyone a win.
Be willing to defer unresolved issues to a later time.
Publicize the terms of your agreement to other members in writing.
Follow through. Agree on deadlines or a schedule for action and monitor progress.
Avoid holding a grudge. You may have to agree or disagree on some issues.
Move on to work together to benefit your organization.