1995-24348-Ordinance No. 95-041 Recorded 7/12/1995REVIEWED 95-243,18 LEGAL COUNSEL BEFORE THE BOARD OF COUNTY COMMISSIONERS OF DESCHUTES COUNTY, OREGON An Ordinance Amending PL -20, Deschutes County Year 2000 Comprehensive Plan, Revising the Mineral and Aggregate Resource Inventory for Deschutes County, and Declaring and Emergency. ORDINANCE NO. 95-041 WHEREAS, the southern 240 acres in tax lot 200 in Sections 1 and 12 of Township 19 South, Range 14 East, Willamette Meridian (the subject site), is designated as Agriculture under the County's Comprehensive Plan and is zoned as Exclusive Farm Use, Horse Ridge Subzone, under the County's Zoning Ordinance; and WHEREAS, Howard M. Day has proposed a Plan Amendment to PL -20, the Deschutes County Year 2000 Comprehensive Plan, to change the designation of the subject site from Agriculture to Surface Mining in the County's Comprehensive Plan; and WHEREAS, Deschutes County has previously adopted as part of the Comprehensive Plan an inventory of mineral and aggregate resource sites, by Ordinance 90-025, including Exhibit G, a listing of sites with significant mineral resources; and WHEREAS, the subject site adjoins a 200 -acre portion of tax lot 200 in Sections 1 and 12 of Township 19 South, Range 14 East, Willamette Meridian, listed as Site No. 404 on the County's inventory of mineral and aggregate resource sites; and WHEREAS, Howard M. Day has proposed a Plan Amendment to PL -20 to add the subject site to the County inventory of significant mineral resources and has submitted a geotechnical report documenting the location, quantity and quality of this parcel's mineral resources; and WHEREAS, the Deschutes County Hearings Officer, after review conducted in accordance with applicable law, has recommended approval of the proposed Plan Amendment to PL -20, to include the listing of the subject site in the mineral and aggregate inventory; and WHEREAS, after notice was given and hearing conducted on July 12,1995 in accordance with applicable law, the Board of County Commissioners has considered the Hearings Officer's recommendation; now, therefore, THE BOARD OF COUNTY COMMISSIONERS OF DESCHUTES COUNTY, OREGON ORDAINS as follows: 1 - ORDINANCE 95-041 KEY HED j 31995 ,u` 1 g �g95 0147-061 A Section 1. Inclusion of New Aggregate Site on Mineral and Aggregate Inventory. That PL -20, the Deschutes County Year 2000 Comprehensive Plan, as amended, is further amended to expand existing Site No. 404 of the county's Goal 5 Inventory of Mineral and Aggregate Resources, as set forth as Exhibit G to Ordinance 90-025, to include the southern most 240 acres of tax lot 200 in Sections 1 and 12 of Township 19 South, Range 14 East, Willamette Meridian. Said site shall be known as Site 404 and is more fully described as to description, location, quality and quantity of the resource as Site 404 in the aforementioned Exhibit G to Ordinance 90-025 as amended herein, attached hereto as Exhibit A and by this reference incorporated herein and as shown on the map attached as Exhibit B to Ordinance 95-043 and by this reference incorporated herein. Section 2. Designation of Impact Area. The impact area for the expanded Site No. 404 shall include all areas within 1/2 mile of the boundaries of the Site, as set forth in Exhibit B to Ordinance 95-043 and by this reference incorporated herein. Section 3. Additions and Deletions. Additions, if any, to text or tables are set out in bold- faced type and deletions, if any, are bracketed. Section 4. Findings in support of its decision. The Board adopts the Decision of Hearings Officer, attached hereto as Exhibit B and incorporated herein by reference and the findings set forth in Ordinance 90-025. Section 5. Repeal of Ordinances as Affecting Existing Liabilities. The repeal, express or implied, of any ordinance, ordinance provision, code section or any line of any map by this ordinance shall not release or extinguish any duty, condition, penalty, forfeiture, or liability incurred under such ordinance, ordinance provision, code section or map feature unless a provision of this ordinance shall so expressly provide, and such ordinance repealed shall be treated as still remaining in force for the enforcement of such duty, condition, penalty, forfeiture, or liability, and for the purpose of authorizing the prosecution, conviction and punishment of the person or persons who violated the repealed ordinance. Section 6. Emergency Clause. 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. DATED this %6�_ day of July, 1995. ATTEST: J�& 6�t� Recording Secretary 2 - ORDINANCE 95-041 BOARD OF COUNTY COMMISSIONERS OF DESCJJUTES COUNWV, OREGON H. T L. 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Day 9�St % £L ZL��O� REQUEST: The applicant is requesting a Comprehensive Plan Amendment from Agriculture to Surface Mining, and a Zone Change from EFU to SM, for the southern 240 cares of a 440 -acre parcel (SM Site No. 404). STAFF: David B. Leslie, Associate Planner The Hearings Officer hereby adopts the Staff Report, modified on page 6 to show that the ODOT specifications reports are dated January 1995. The Conflict Analysis and ESEE Findings and Decision for Site No. 404 is adopted as presented by Staff. Based upon the findings set forth in the Staff Report, and the findings and conclusions set forth in the Conflict/ESEE Analysis, the Hearings Officer recommends that the Board of Commissioners amend the Deschutes County Comprehensive Plan to (1) place the southern 240 acres of Site 404 on the Deschutes County's inventory for sites with significant mineral resources and (2) change the designation of the subject property from Agriculture to Surface Mining. It is further recommended that the new site not be operated from December 1 through April 30 to protect conflicting wildlife (deer) uses. 1 - PA-95-3/ZC-95-3 0147-0617 Based upon the findings set forth in the Staff Report, the zone change from EFU to SM is approved. THIS DECISION ON THE ZONE CHANGE SHALL BECOME FINAL TEN DAYS AFTER THIS DECISION IS MAILED, UNLESS THIS DECISION IS APPEALED. Mailed this day of June, 1995. Christo C. Eck, Hearings Officer 2 - PA-95-3/ZC-95-3 a147-0618 DESCHUTES COUNTY PLANNING DIVISION STAFF REPORT FILE NUMBER: PA -95-3 and ZC-95-3 DATE: May 2, 1995 TIME: 7:00 P.M. PLACE: Room A, Juvenile Justice Building 1128 N.W. Harriman Bend, Oregon 97701 APPLICANT/ OWNER: Howard M. Day ENGINEER: James E. Bussard REQUEST: The applicant is requesting a Comprehensive Plan Amendment from Agriculture to Surface Mining and a Zone Change from EFU to SM for an additional 240 acres of a 440 -acre parcel. STAFF CONTACT: David B. Leslie, Associate Planner I. LEGAL CRITERIA: 1. PL -20, the Deschutes County Year 2000 Comprehensive Plan. 2. Title 18 of the Deschutes County Code, the Deschutes County Zoning Ordinance: -Section 18.136.030, Rezoning Standards. 3. OAR 660-12-060, Plan and Land use Regulation Amendments 4. Oregon's Statewide Planning Goals. 5. Title 22 of the County Code, Procedures Ordinance. PA-95-3/ZC-95-3 Page 1 0147-0619 II. PROCEDURE: This land use action is a quasi-judicial zone change and plan amendment that involves lands designated for agricultural use. DCC 22.28.030(3) requires the Board of Commissioners to hold a de novo hearing on the plan amendment application. No appeal of the Hearings Officer's decision on the plan amend- ment is necessary. DCC 22.28.030(4) states that if the plan amendment has been consolidated with a zone change, that any party wishing to appeal the Hearing's Officer's decision on the zone change must file an appeal of that decision. III. FINDINGS OF FACT: 1. LOCATION: The subject property is located near Horse Ridge and is approximately one mile from the mouth of Dry Canyon and approximately 18 miles east of Bend. The property is surrounded by BIM property and is accessed by a mile long gravelled road from Highway 20. The subject property is identified on Deschutes County Assessor's Map #19-14 as Tax Lot 0200. 2. ZONING AND COMPREHENSIVE PLAN DESIGNATION: The property encompasses 440 ares in two separate zone classifica- tions. The northern portion of the site encompassing 200 acres is zoned and designated on the comprehensive plan map for Surface Mining (SM). The southern portion, encompassing 240 acres, is zoned EFU, Exclusive Farm Use (Horse Ridge Subzone) and is designated Agriculture on the plan map. This part of the property is also within a Surface Mining Impact Area (SMIA) Combining Zone due its location adjacent to the SM zone property. The entire property is located within a Wildlife Area (WA) Combining Zone. 3. SITE DESCRIPTION: The property encompasses 440 acres located north of Highway 20. The entire property is surrounded by land managed by BLM. Surface mining operations occur on the northern portion of the property zoned SM under both DOGAMI (Oregon Department of Geology and Mineral Industries) and County permits. A majority of this generally level area has been cleared of native vegetation, sage brush and juniper, and earthen berms have been constructed with overburden material along the western and northern boundaries of this area. Some surface mining activity has occurred on a portion of the southern 240 acres. This area is elevated slightly above the remainder of the property and in- cludes a higher density of juniper. Mining of hard basalt and crushing of this material is proposed in this PA-95-3/ZC-95-3 Page 2 0147-0620 area. An existing dwelling, a caretaker's ranch house, is located near the central eastern boundary on this portion of the property. 4. SURROUNDING PROPERTY: The subject property is surrounded by BIM property. The area known as the Badlands is to the northwest, Dry Canyon and the Horse Ridge Natural Area are located southwest. None of these geographic areas of interest are contiguous to the subject property. 5. REQUEST: The applicant is requesting that the County place the remainder of the parcel, the southern 240 acres, on the County's inventory for sites with significant mineral resources and amend the plan map designation from Agriculture to Surface Mining. A zone change from EFU to SM is also requested. The applicant has submitted a burden of proof statement, revised on March 15, 1995, in support of this application. This statement includes several appendices relevant to the plan amendment and zone change requests, including: 1. Resource Evaluation Report 2. Resource Evaluation Report, aggregate test results and ODOT pit certifications 7. ESEE findings and Decision for Site No. 404 8. Amended ESEE Findings and Decision The applicant has also submitted two additional land use applications for site plan review (SP -95-22) and a conditional use permit (CU -95-29) for expansion of surface mining activity, including crushing of rock material, on the southern 240 acres. In addition, these applications are a revision to the mining plan previously approved by the County for the northern 200 acre portion of the property. These two applications are being processed administratively by the Planning Division and are not the subject of this staff report. 6. AGENCY COMMIMTS: The Planning Division solicited comments from affected agencies and departments. Their responses are as follows: Deschutes County Public Works: "There is no direct access from this project to a county road or across county land, therefore, Public Works has no conditions to place on access to the site. The BLM is to approve any changes in hauling on the haul road across BIM land. ODOT is to approve any changes in the access to Highway 20. DOGAMI is to approve a reclama- tion plan for the completion of the project when all recoverable aggregate materials have been removed from the site. The oregon Fish and Wildlife Commission is to PA-95-3/ZC-95-3 Page 3 0147-0621 determine if any conditions are to be placed on the project to mitigate any effects on wildlife resources. The DEQ is to approve an operations plan and an environ- mental impact study, if required, to control any adverse environmental effects from the mining operations on site. Deschutes County Environmental Health: "Any outbuildings or offices requiring toilet facilities would require a septic site evaluation and septic system." Property Address Coordinator: The address of record for this property is 26300 Highway 20. Watermaster, District 11: A water right was obtained for surface mining (General Construction) and will expire September 23, 1995. The following agencies had not commented at the time the staff report was prepared: Oregon Department of Fish and Wildlife (ODFW), Department of Geology and Mineral Industries (DOGAMI), Highway Division, ODOT, and BIM. 7. PUBLIC CONRENTS: No letters or comments were submitted from the public regarding these applications. IV. REOUIRED FINDINGS AND CONCLUSIONS: 1. Comprehensive Plan Inventory Listing and Plan Amendment The goal of the Surface Mining chapter of the comprehensive plan is: "To protect and utilize appropriately, within the frame- work established by Statewide Land Use Planning Goal 5 and its implementing administrative rules, the mineral and aggregate resources of Deschutes County, while minimizing the adverse impacts of mineral and aggregate extraction and processing upon the resource impact area." Staff Finding: Statewide Planning Goal 5 and its implementing rule, OAR Chapter 660, Division 16, require local governments to identify aggregate resources through an inventory of resource sites throughout the county and to determine the significance of a mineral resource site by evaluating the location, quantity and PA-95-3/ZC-95-3 Page 4 014"7~0622 quality of a particular site. This application is being reviewed within the framework established by Statewide Land use Planning Goal 5 and its implementing admini- strative rules. The following plan policies, from the Surface Mining section of the Resource Management section of the Comprehensive Plan are applicable to review of this application: 6. Land use decisions of the County shall be based upon balanced consideration of the location, availability and value of mineral and aggregate resources, and conflicting resources and uses as designated in the comprehensive plan. Staff Finding: The County's decision regarding this application will be based upon a balanced consideration of the location, availability and value of the mineral and aggregate resource and conflicting resources and uses designated in the comprehensive plan. The plan identifies this area for deer winter range use and that use has been considered in this review. 8. Sufficient SM (Surface Mining) zoning shall be maintained by the County to satisfy, at a minimum, the demand for mineral and aggregate resources of th County as reflected by the data contained in the comprehensive plan. The County shall not deny SM zoning for any mineral and aggregate resource site for the sole reason that the demand of the Count for that resource has been satisfied by the SM zoning of other sites. Staff Finding: The geotechnical reports prepared by Mark V. Herbert & Associates for the applicant (Burden of Proof, Appendices 1 & 2) indicate that the 240 -acre portion of the property contains three types of mineral resources: topsoil and fill, gravel and cobbles, and hard basaltic rock. The quantities of material estimated to be present in these categories in cubic yards are 620,000, 485,000 and between 800,000 to 2,000,000 respectively. Although other sites exist in the County for these resources this site is already providing mineral and aggregate resources to the community. It is anticipated that utilization of the resources from this area will continue to occur and will fluctuate with market demand, as is the case at other sites designated for surface mining. 10. A mineral and aggregate resource site not on the current inventory shall be placed on the inventory and zoned SM when the following conditions are met: PA-95-3/ZC-95-3 Page 5 014'7-0623 (a) A report is provided verifying the location, type, quantity and quality of the resource; and Staff Finding: The northern 200 acres of the property are included in the County's inventory of mineral and aggregate resources (Ordinance No. 90-025) as a site presently available for resource extraction. The southern portion encompassing 240 acres is not included on the County inventory. The applicant has submitted two reports by Mark V. Herbert & Associates (April 1993 and January 1994), laboratory test results from Century West Engineering (October 1993 and Deber 1994) and ODOT specification reports (January 199 The information submitted by the applicant indicates that significant resource material is present on the property of sufficient quality to meet highway or general construction standards. The location of the different types of materials in the southern portion of the property is indicated on a site map and table submitted with the report prepared by Herbert & Associ- ates in 1994. The report estimates the following amounts of material (in 1,000 cubic yard estimates for volume) within the 240 -acre area: Area Material Acres Volume Area 1 Hard Rock 27 800-2,000 Area 2 Gravel/cobble 75 73 Reject/drain rock 412 Topsoil/fill 363 Area 3 Topsoil/fill 128 620 The conclusions in the report are drawn from laboratory analysis and 10 backhoe test pits examined on the site. The report concludes that the quality of the hard rock is good, all the other types of resource material are considered to be of fair quality. (b) The Goal 5 conflict identification and resolu- tion (ESEE) process results in a determination that the resource is of sufficient importance relative to conflicting resources and uses, if any, to require protection. Staff Finding: The applicant submitted an ESEE Findings and Decision (Appendix 9) to identify and resolve conflicts with surface mining. Planning staff has revised this document into a Conflict Analysis and ESEE PA-95-3/ZC-95-3 Page 6 4__� 014'7-0624 Findings and Decision for Site No. 404, attached as Exhibit A to this staff report and incorporated herein by this reference, for possible adoption by the Board of County Commissioners, as required by OAR 660-16-000. Both documents conclude that the use of the property as deer winter range is a conflicting Goal 5 resource. The recommended program to meet Goal 5 at this site, therefore, includes closure of the site for blasting, mining and rock crushing activities, during winter deer range use, December 1 through April 30, in order to prevent conflicts between deer and mining. 11. The County shall identify and protect sites for the storage, extraction and processing of mineral and aggregate resources within the framework of Goal 5 and its implementing administrative rules. Staff Finding: The rezoning and plan designation process presently being conducted for this property by the county identifies this site for extraction, process- ing and storage of mineral and aggregate resources within the framework of Goal 5 and its implementing administrative rules. 2. Land Use Planning Goals Goal 5 and Implementing Administrative Rules Staff Finding: The County's Conflict Analysis and ESEE Findings and Decision document for Site No. 404, Exhibit A attached, identifies Goal 5 resources existing on the subject property, determines the quality of the resources, identifies conflicting use, analyzes the conflicts between those uses and recommends a program to achieve Goal 5, as required by Goal 5 an its implement- ing administrative rules. Other Goals Staff Finding: Deschutes County addressed compliance with Land Use Goals, other than Goal 5, at the time that it adopted its surface mining inventory in 1990 (Ordi- nance No. 90-029). Those findings are general, but are appropriate for applying to the present rezoning/plan designation request. 3. Rezoning Standards Deschutes County Code, Section 18.136.030: The applicant for a quasi-judicial rezoning must establish that the public interest is best served by rezoning the property. Factors to be demonstrated are: PA-95-3/ZC-95-3 Page 7 0147-0625 A. That the change conforms with the Comprehensive Plan, and the change is consistent with the Plan's introductory statement and goals. Staff Finding: The applicant's proposal to change the designation of the southern 240 acres of the property on the comprehensive plan maps from Agriculture to Surface Mining is consistent with the goal of the Surface Mining chapter of the comprehensive plan to identify and protect mineral and aggregate resources, if the analysis of conflicting uses results in a conclusion that such resource should be protected or protected but limited to minimize conflicts with other uses. The proposed zone change to Surface Mining will be consistent with the proposed surface mining comprehensive plan designation, once the plan map has been amended by the Board of County Commissioners. B. That the change in classification for the subject property is consistent with the purpose and intent of the proposed zone classification. Staff Finding: The purpose and intent of the proposed rezoning to SM is to implement the goals and policies of the comprehensive plan, allow development and use of identified deposits of mineral and aggregate resources consistent with Statewide Planning Goal 5, protect health and safety of the public and residents adjoining properties and conflicting natural resources, to provide for reclamation and protection of land and water re- sources and to provide for cooperation between private parties and governmental entities in order to achieve the purposes of the zone, comprehensive plan and state and federal agencies. The proposed zone change, from EFU to SM, is consistent with the purpose and intent of the SM zone to allow development and use of identified deposits of mineral and aggregate resources consistent with Statewide Plann- ing Goal 5. The restrictions imposed by the SM zone upon mining operations, through site plan review and approval are designed to assure compliance with state and federal regulations. The health and safety of the public and residents of adjoining properties will be protected by State of Oregon air quality regulations and county site plan review. Conflicting resources are identified and balanced against the value of the mineral and aggregate resource in the attached Conflict Analysis and ESEE Findings and Decision document. Limitations on the use of the site for resource extraction are recommended to protect conflicting resources. Reclamation is required by state law. PA-95-3/ZC-95-3 Page 8 014"7-0625 C. That changing the zoning will presently serve the public health, safety and welfare considering the following f actors : a. The availability and efficiency of providing necessary public services and facilities. Staff Finding: This site is served by a graded access road from Highway 20. The applicant has improved this roadway in the past two years and plans to continue to provide maintenance to the access roadway. Water is available from wells located on site. The applicant is constructing ponds on site to assist in meeting his needs for water. Electricity for mining operations is available from several generators on site. If the applicant's site plan requires on-site sewage disposal, the applicant will be required to obtain a septic feasibility evaluation as a condition of site plan review. b. The impacts on surrounding land use will be consistent with the specific goals and policies contained within the Comprehensive Plan. Staff Finding: Surface mining is an activity that impacts surrounding lands. DCC 18.55.020 provides that a SMIA zone shall apply to all property within one-half mile of the boundary of a surface mining zone and that the extent and location of the SMIA zone shall be designated at the time the adjacent surface mining zone is designated. The proposed rezoning will result in an expansion of the SMIA boundary presently surrounding the northern 200 acres of this site. The SMIA zone limits the use of adjoining property for noise or dust sensitive uses or structures, effectively requiring adjoining owners to provide setback areas for the mining operation. Farm use is exempted from the provisions of the SMIA zone. The imposition of a SMIA zone on adjoining properties will not prevent their use for mining or agricultural uses or other uses allowed in the EFU zone. Adjoining land is under the management of the BLM and does not show evidence of any recent use. Approval of this rezoning application will have minimal impact on surrounding land. D. That there has been a change in circumstances since the property was last zoned, or a mistake was made in the zoning of the property in question. At the time the property was last zoned in 1990 (and prior to that in 1988) no geotechnical information existed demonstrating that mineral and aggregate re- PA-95-3/ZC-95-3 Page 9 014'7~0644; . sources exist on the southern 240 -acre portion of the property. The applicant has obtained the services of Mark V. Herbert & Associates to determine the location, quantity and quality of these resources on this portion of the property. Mr. Herbert has examined the property, sampled the mineral and aggregate deposits and concluded that approximately 2.2 to 4 million cubic yards of hard rock, gravel/cobble, reject/drainage rock and top- soil/fill are present on the southern 240 acres of the property.(The wide range in this estimate is due to uncertainty regarding the amount of hard rock present because the overall thickness of this deposit is not certain from the borings examined.) This change in circumstances warrants reconsideration of the County's decision to zone the subject property EFU. 4. OAR 660-12-060, Plan and Land Use Regulation Amendment 660-12-060 (1) Amendments to functional plans, acknowledged comprehensive plans, and land use regulations which significantly affect a transportation facility shall assure that allowed land uses are consistent with the identified function, capacity, and level of service of the facility. This shall be accomplished by either: a. Limiting allowed land uses to be consistent with the planned function, capacity and level of service of the transportation facility; b. Amending the TSP to provide transportation facilities adequate to support the proposed land uses consistent with the requirements of this division; or C. Altering land use designations, densities, or design requirements to reduce demand for automobile travel and meet travel needs through other modes. (2) A plan or land use regulation amendment significantly affects a trsnaportation facility if it: a. Changes the functional classification of an existing or planned transportation facility; b. Changes standards implementing a functional classification system; C. Allows types or levels of land uses which would result in levels of travel or access which are inconsistent with the functional classification of a transportation facility; or PA-95-3/ZC-95-3 Page 10 0147-0628 d. Would reduce the level of service of the facility below the minimum acceptable level identified in the TSP. (3) Determinations under section (1) and (2) of this rule shall be coordinated with affected transportation facility and service providers and other affected local governments. Staff Finding: The applicant's mine is the only property adjoining Highway 20 that will make significant use of the road. All other adjoining parcels are vacant at this time. The volume of traffic generated by the proposed use is estimated at 12 round trip truck trips per hour during maximum production, during mining operations. This moderate level of traffic should not change the functional classification of the road or change standards implementing a functional classification system. The level of land use on the subject property is such that it will not result in levels of travel or access which are inconsistent with the functional classisifaction of the facility nor will it reduce the level of service of the facility below the minimum acceptable level identified in the TSP. ODOT, the entity responsible for the roadway, was provided notice of the proposed activity, and did not comment on the application. S. Title 22 of the County Code, Procedures Ordinance Chapter 22 of the County Code sets forth the procedures for processing applications. This application has been processed in accordance with the requirements set forth in the County Code with respect to notice, preparation of a staff report and record keeping. 6. Implementing Ordinances All zone changes and comprehensive plan amendments must be adopted by the Board of County Commissioners by ordinance. Such ordinances will be prepared by the Planning Division and Legal Counsel if the Hearings Officer recommends approval of the proposed plan amendment to the Board of County Commissioners and approves the proposed zone change. PA-95-3/ZC-95-3 Page 11 014'x-0629 CONCLUSION AND RECOMMMMATION: Based upon the findings above, it is recommended that the Hearing's Officer recommend approval of the applicant's request to amend the Comprehensive Plan to list this site on the county's inventory of mineral and aggregate resources and to designate the site for Surface Mining on the plan map, and approve the proposed zone change of the subject property from Exclusive Farm Use to Surface Mining. DBL:slr PA-95-3/ZC-95-3 Page 12