2011-2981-Minutes for Meeting July 13,2011 Recorded 8/15/2011DESCHUTES COUNTY OFFICIAL
NANCY BLANKENSHIP, COUNTY
COMMISSIONERS' JOURNAL
1111111
2011 IIIII
RECOR P1
CLERKDS w 2011-2981
08/15/201108:34:13 AM
Do not remove this page from original document.
Deschutes County Clerk
Certificate Page
Deschutes County Board of Commissioners
1300 NW Wall St., Suite 200, Bend, OR 97701-1960
(541) 388-6570 - Fax (541) 385-3202 - www.deschutes.ory-
MINUTES OF WORK SESSION
DESCHUTES COUNTY BOARD OF COMMISSIONERS
WEDNESDAY, JULY 139 2011
Present were Commissioners Tammy Baney, Alan Unger and Anthony DeBone.
Also present were Dave Kanner, County Administrator; Erik Kropp, Deputy
County Administrator; and, for a portion of the meeting, SheriffLarry Blanton;
Laurie Craghead, County Counsel; Tom Anderson, Cyndi Smidt and Nick Lelack,
Community Development; and six other citizens including Hillary Borrud of The
Bulletin.
Chair Baney opened the meeting at 1:32 p.m.
1. Discussion of Russell Appeal of a Lot of Record Verification.
Cyndi Smidt gave a brief overview of the appeal, which involves property
outside of Sisters. She explained that to build on a lot, it has to have been
formed legally. A lot of record verification addresses this situation. An
Assessor's tax lot does not making a lot legal for building purposes, even if
there are two different legal descriptions. That is the case in this situation. The
original land was 480 acres, which over time had portions conveyed. Two were
conveyed together.
Commissioner Unger asked if you could still change the size with a lot line
adjustment. Laurie Craghead said tax lot numbers are for the Assessor's
convenience only. Generally, they follow the deeds even if a partition is not
necessarily legal. There may also be a lot at the owner's convenience might be
split into different tax lots, especially in industrial areas or something that has
joint ownership. A property owner could own four lots but want just one tax
bill, and can ask that these be combined into one tax lot for that reason.
Ms. Smidt said planning staff issued a denial; the Hearings Officer confirmed
this. The attorney appealed this to the Board for review.
Minutes of Board of Commissioners' Work Session Wednesday, July 13, 2011
Page 1 of 6 Pages
Chair Baney asked why the applicant wishes the Board to hear this de novo.
Ms. Smidt said that this allows for additional information that might be out
there. It gives flexibility. Chair Baney asked if there is the possibility of more
information being available. Ms. Craghead said they are basing this on the
original deed that showed two separate legal descriptions. They were deeded to
the same people at the same time. They claim the intent was for two separate
lots. They have never been separated, however. There is case law from LUBA
that shows some that were deeded separately at some point.
Chair Baney stated that at the time there was not a lot of land use planning
being done at the time. Ms. Craghead said this is a discrete law and does not
allow for this kind of flexibility. The original deed did not separate them until
2006.
Dave Kanner stated a tax lot is a fiction created by the Assessor, with one being
conveyed in 2006. He asked how that could be legal. Ms. Craghead stated it
was not legally conveyed. Ms. Smidt stated some BLM land deeds that were
submitted and recorded were not buildable. Ms. Craghead said that under the
law, the owner of the second lot really does not own it. The language at the
time was taken directly from statute. Ms. Smidt said she submitted ORS from
the 1960's to the 1980's.
Ms. Craghead said it is a matter of law. The original deed never separated the
parcels. The fee to hear it will not change if the Board feels this is not
necessary. That definition of the ORS was in place in the late 1960's.
Commissioners Unger DeBone would like to learn more about this and give it
some consideration.
Chair Baney said that during that time, there was a lot going on regarding land
use and it is hard to know what was meant by the documents. Perhaps someone
sat on the land for decades and now finds out he or she cannot do what they had
hoped. She does not see fault if there is a way to get to a resolution.
If looking at it on paper, some might think these were separate parcels. They
were even surveyed in that manner.
Minutes of Board of Commissioners' Work Session Wednesday, July 13, 2011
Page 2 of 6 Pages
Chair Baney stated that she feels this merits more review. Ms. Craghead said
that it is possible none of the lots are legal since State statutes may have not
been followed at the time.
This will be addressed on the July 27 business meeting.
Nick Lelack noted that this is a rare occurrence within cities when subdivisions
were developed and there is clarity as to separate ownership.
2. Update regarding Event Venue Text Amendment.
Nick Lelack said that last month discussion took place regarding commercial
events through the private parks provision. SB 960 passed the legislature and
HB 3280, concerning wineries, also passed. Both have now been signed into
law by the Governor.
He met with the Planning Commission and talked about these issues, and their
comments were gathered.
There are three general options to move forward today. A matrix has been
developed to help define the major points. (A copy is attached for reference)
SB 1055 allowed events at wineries with virtually no restrictions. The new bills
replace that over the course of several years.
SB 960 is a limited use or conditional use. It is discretionary as to whether the
County adopts this language. SB 960 allows counties to be more restrictive as
well. Across the Board, there is support for SB 960 and the others. They were
split on the private parks with events. Chair Baney wanted to review the two
tracks in particular; the ones that the State agreed on. Ms, Craghead said this
merits clarification. Commissioner Unger agreed that all should be consistent.
They still need to get to a private park solution as well. Therefore, this means
all three need to be addressed.
They want to avoid having to draft ordinances for each, but instead find one that
works well for all of the situations. Commissioner Unger feels there needs to
be more oversight.
Minutes of Board of Commissioners' Work Session Wednesday, July 13, 2011
Page 3 of 6 Pages
Chair Baney stated she would like to see something that shows what is law,
what can be combined, and what is liked and not liked by the Planning
Commission over which there is some County control. Mr. Lelack will meet
with the Planning Commission to address this, and probably a public hearing
could be held in the fall. Ms. Craghead stated that there would be proposed text
amendment when it comes time for hearings.
Commissioner DeBone asked if home occupations would be a part of this. Ms.
Craghead said that has to do with businesses held within a dwelling, not
outside. Chair Baney added that a home occupation is handled very differently.
Whether it is private park or not, this will help determine sidebars. Impacts to
neighbors and other things have to be considered.
Mr. Lelack said it appears that all is going well now at the State level. He has
been told that all eyes will be on Deschutes County as the first one out of the
gate on this issue.
3. Update of Commissioners' Meetings and Schedules.
Commissioner DeBone and Dave Kanner plan to use public transportation to
attend the NACo conference on July 14 through 19.
Commissioner DeBone will attend and co-host an Economic Development
Summit on July 20 at the County. The group is trying to get all the different
entities together to exchange ideas. He will try to start to lead on portions of
this effort if it makes sense.
There is also an economic forecast meeting at Brasada Ranch on July 22.
4. Other Items.
Sheriff Blanton gave an overview of upgrading interagency connectivity and
communications. The State wants to put a new tower on Awbrey Butte
replacing a current one. It will be much taller. Some agencies have been doing
due diligence. The need is there, but some residents are not supportive.
Minutes of Board of Commissioners' Work Session Wednesday, July 13, 2011
Page 4 of 6 Pages
There was a group formed by the previous Governor to improve
communications infrastructure some years ago. Funding was identified by the
legislature, which was on again and off again. The Oregon Police
Superintendent had this for a while, and it now falls under ODOT.
The local residents expressed concerns, and he feels additional due diligence
needs to be completed. The State did not do a very good job with its
presentation, and no further hearings are scheduled at this point. There might
have been some issues with proper notification as well.
The County wants more transparency. Some people do not trust what they hear
anymore. The agencies may have to work on other options if possible, and are
not asking for land use permits at this point.
Commissioner DeBone said he wants to find out more before offering
comments or support. Sheriff Blanton said he would keep the Board informed.
The Board considered who would be on Road Department task force.
Discussion occurred regarding the best makeup for the group and which would
be the most helpful, without the appearance of a potential conflict of interest.
Areas of interest need to be defined.
Chair Baney wants to know who might be on the committee at this point, and
come up with some way to explain to them what their task is. The charge is for
them to make a recommendation to the Board on how to sustain road operations
in the future. This should include maintenance and preservation as well as
needed capital improvements.
The Board discussed how to structure Dave Kanner's evaluation. They would
like department directors' input about relationships and cooperation, and to
make suggestions on other ways of doing things if warranted. At this point, the
Commissioners are not ready, so this will likely be delayed until the first part of
August.
Minutes of Board of Commissioners' Work Session Wednesday, July 13, 2011
Page 5 of 6 Pages
The meeting adjourned at 3:00 p.m., at which time the Board went into
executive session under ORS 192.660(2)(h), pending or threatened litigation;
and ORS 192.660(2)(d), labor negotiations.
After the conclusion of the executive session, the Board took action.
UNGER: Move County Administrator communicate with attorney Dave
Frohnmeyer regarding changes to a letter he drafted and will
submit.
DEBONE: Second.
VOTE: UNGER: Yes.
DEBONE: Yes.
BANEY: Chair votes yes.
DATED this M A/ Day of (iLat'4t 2011 for the
Deschutes County Board of Commissioners.
Tammy Bane, Chair
ATTEST:
fa~a~- ZWO,4,---
Recording Secretary
Anthony DeBone, Vice Chair
ala4lt- Ult--,--
Alan Unger, Commissioner
Minutes of Board of Commissioners' Work Session
Page 6 of 6 Pages
Wednesday, July 13, 2011
Deschutes County Board of Commissioners
1300 NW Wall St., Suite 200, Bend, OR 97701-1960
(541) 388-6570 - Fax (541) 385-3202 - www.deschutes.org
WORK SESSION AGENDA
DESCHUTES COUNTY BOARD OF COMMISSIONERS
1:30 P.M., WEDNESDAY, JULY 139 2011
1. Discussion of Russell Appeal of a Lot of Record Verification - Cyndi Smidt
2. Update regarding Event Venue Text Amendment - Nick Lelack & Planning
Staff
3. Update of Commissioners' Meetings and Schedules
4. Other Items
Executive Session, under ORS 192.660(2)(h), pending or threatened litigation;
and ORS 192.660(2)(d), labor negotiations
PLEASE NOTE: At any time during this meeting, an executive session could be called to address issues relating to ORS 192.660(2) (e), real
property negotiations; ORS 192.660(2) (h), litigation; ORS 192.660(2)(d), labor negotiations; or ORS 192.660(2) (b), personnel issues.
Meeting dates, times and discussion items are subject to change. All meetings are conducted in the Board of Commissioners' meeting rooms at
1300 NW Wall St., Bend, unless otherwise indicated. Ifyou have questions regarding a meeting, please call 388-6572.
Deschutes County meeting locations are wheelchair accessible.
Deschutes County provides reasonable accommodations for persons with disabilities.
For deaf, hearing impaired or speech disabled, dial 7-1-1 to access the state transfer relay service for TTY.
Please call (541) 388-6571 regarding alternative formats or for further information.
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Community Development Department
Planning Division Building Safety Division Environmental Soils Division
117 NW Lafayette Avenue Bend Oregon 97701-1925
(541)388-6575 FAX (541)385-1764
http://www.co.deschutes.or.us/cdd/
MEMORANDUM
To: Board of County Commissioners
From: Nick Lelack, Planning Director
Paul Blikstad, Senior Planner
Date: July 13, 2011
Re: Private Park/Commercial Event Venues Text Amendment, SB 960, HB 3280 Work
Session
BACKGROUND/SUMMARY
On June 15, the Board of Commissioners reviewed a draft private park/commercial event venue
text amendment (TA) for the Exclusive Farm Use (EFU) Zone, discussed Senate Bill (SB) 960
(commercial events incidental to farm use), and directed staff to gain Planning Commission
input on the draft TA. This memorandum provides updates on SB 960, recently passed House
Bill (HB) 3280 (wineries), summarizes the Planning Commission's discussion at their meeting
on June 23, 2011, and provides options for moving forward. Please find attached a table
summarizing the differences among the draft text amendment, recently adopted bills, and draft
standards that might be applicable to all rural events under each of these measures for
discussion purposes.
SB 960 & HB 3280
The Legislature has just approved two bills that allow commercial events in the EFU Zone, SB
960 and FIB 3280. As of the date of this memorandum, the Governor has not signed either bill,
but appears to support both measures. SB 960 allows agri-tourism and other commercial
activities that are incidental or subordinate to a farm use as a limited use permit (the approval is
tied to a property owner rather than running with the land), and HB 3280 allows events at
wineries up to 25 days per calendar year as a permitted use. Both bills will likely have limited
impact in Deschutes County, but may provide opportunities for some farmers, or winery
operators.
PLANNING COMMISSION INPUT / COMMENTS
On June 23, at the Board's request, the Planning Commission discussed the draft private
park/commercial events TA. The Commission also discussed SB 960, and the possibility of
Quality Services Performed with Pride
incorporating HB 3280 (if adopted) into the TA. Please find below a summary of the
Commission's discussion. It is important to note that four (4) Planning Commissioners were in
attendance and three (3) were absent. Commissioners generally conducted the discussion by
addressing each topic in the attached matrix (except for the HB 3280 and draft standards in the
last column which have just been added). Several topics overlapped during the discussion.
Please find below an overall summary of the Planning Commission's input on the draft
amendment and SB 960, followed by their comments on each topic area.
Overall Summarv of Planning Commission Comments
• The Commissioners appeared to all support the following:
o Implement SB 960 via a text amendment.
o Establish a trial period or initial review period to ensure the event venue operator is
complying with adopted standards and conditions of approval. All Commissioners
expressed concerns over the costs of the review/approval process.
o Evaluate each event venue based on the site/property/surrounding characteristics.
However, Commissioners also expressed support for creating clear and objective
standards/criteria.
o Attempt to establish common standards in code for events among various types of
events (e.g., private park, SB 960, wineries).
o Consider creating a scale of the number of events proposed with different code
requirements (e.g., similar to SIB 960).
• The Commissioners were not in agreement on the following:
o Whether a private park/commercial event venue text amendment should even be
proposed. Some Commissioners express support for the private park/commercial event
venue TA while others oppose it. Some Commissioners support just moving forward
with SIB 960 at this time.
o Minimum lot size. Commissioner Rainey believes that some minimum lot size should be
established.
o Maximum number of events per calendar year. A couple of Commissioners expressed
concerns that all of the events would be concentrated into a couple of months and be
conducted outdoors. Other Commissioners in support of 20 events per calendar year
suggested limiting the number of events per weekend or per month.
• Commissioners reviewed but did not provide any/many comments on the
permanent/temporary structures (other than allowing events inside permanent structures
would limit off-site impacts), setbacks, duration of events, amplification, and the time of
events or setup/takedown.
Type of Use
• Commissioner Klyce stated that if a conditional use permit (CUP) expires after four (4)
years, the process will not work because it is too much money. The review process
provided in SB 960 is a better approach.
Commissioner Powell indicated he was in favor of the use being tied to the applicant (limited
use permit) rather than the property (conditional use permit). He wondered if the County
could consider a trial period for an initial permit to run, for example, 6-12 months to see if the
applicant met all the conditions, in which case it would be extended for a certain number of
years. That would provide an opportunity to get feedback about impacts, etc. Also, should
someone who wants to have one event a year (such as a pumpkin patch), or an indoor
event such as a birthday party, be subjected to the same rigorous requirements as someone
who wants to have open air events? (Staff comment: other options are available for
commercial activities in a conjunction with a farm use for the pumpkin patch).
• Chair Irvine wanted to indicate to the Board that he was concerned about costs for property
owners and extensive bureaucracy in the process.
• Chair Irvine and Commissioner Powell expressed support for a spectrum of events from a
single event to more with associated requirements based on the number of events
proposed.
Land Use
Commissioner Powell wondered what other things are being looked at which could occur in
private parks such as soccer fields. The term "private park" could encompass many uses.
What about forest lands? This could expand beyond the current vision. Commissioner
Powell asked if we should shift gears and eliminate the private park definition and use
something else, since it isn't defined. Commissioner Powell expressed at the meeting as
well as in the attached written comments his support for allowing events through the SB 960
process, and eliminating or delaying the private parks/commercial event venue text
amendment process. As stated on the attachment, at the meeting, and subsequent emails,
he believes there is a problem in allowing rural events unrelated to farm use. He asked
what the County's responsibility is to protecting rural property owners' peace and quiet?
Commissioner Powell asked about honoring adjacent land uses such as farming with events
next door - increasing traffic, noise, lights, etc. Much of Oregon law has been an attempt to
balance uses. What is our responsibility here?
Commissioner Klyce responded, stating that there are more protections built in to the TA
than may be realized. He felt that SB 960 limits the number of events so there is a
compromise with the private park/commercial event venue TA. He said, since farming is a
commercial activity already permitted on EFU lands, people need to be prepared to have
some of their tranquility infringed upon. Permitting events would be a way to hold acreages
intact instead of breaking them up for residential use, also.
Lot Size
• Commissioner Rainey felt there should be a minimum lot size. He agreed with the
comments below that other site-specific impacts need to be considered, but that a minimum
lot size should be established.
• Commissioner Klyce said that there were many other considerations as well, and he was
more inclined to look at impacts and for the approval process to be site-specific. Nick
suggested distance from the neighboring property was what mattered, as well as what was
between the properties. Commissioner Powell and Chair Irvine agreed that the impacts
were the most important.
Number of Events / Duration of Events
• Commissioner Rainey considered the possibility (see table in packet) of 20 events per year.
That potentially could be summer months, maybe 4-5 good months, and there could be an
event every week. If he was a neighbor he would feel this was too much. He would impose
some sort of limit such as no more than two events in one month.
Commissioner Klyce suggested maybe two events in one weekend, having alternate
weekends off, could also work. We have heard a lot of testimony over the last couple of
years about how farming in this County is not viable, and we need to enable owners to keep
their properties intact. One of the problems we had in dealing with this was trying to
address every possible scenario which was not possible. He would prefer to keep the text
general and allow a hearings officer a certain amount of latitude to determine impacts on a
specific site.
• Commissioner Powell suggested that events could be weighted based on impacts, rather
than a specific number. If they have a larger impact, fewer events would be approved.
Smaller events, events held indoors, etc., may allow an increased number of events.
• The Commissioners discussed duration of events, permanent structures, whether owners
should be required to live on the property if they host events and if multiple properties have
to be contiguous.
Commissioner Powell spoke about tying the use to the land owner to reduce costs for both
the owner and the County, unless there are code violations or other problems.
Commissioner Klyce agreed with the caveat that the complaints be limited to those who
actually suffer harm, not someone who just drives by and observes. Commissioner Powell
said that this would involve looking at the validity of the complaints. You would have to be
able to evaluate the complaints to determine whether they are from someone next door or
two miles away.
NEXT STEP OPTIONS
Please find below three general options for moving forward with text amendment(s) to address
commercial events in the EFU Zone.
Option 1: Separate Text Amendments & Processes
This option would consist of initiating three (3) separate text amendments related to commercial
events in the EFU zone. The text amendments may be initiated simultaneously or separately
based on the Board's direction. Each text amendment would be developed independently of the
others. The Board has the discretion to develop local standards to address events under SB
960 and HB 3280, but is not required to do so.
The most expeditious, flexible and permissive process to allow commercial events in the EFU
zone would be to adopt SB 960 and HB 3280 into County Code as adopted by the Legislature,
and proceed with the draft private park/commercial event venue text amendment as previously
presented/discussed with minor revisions.
Specifically, this option would consist of the following general steps:
1. Proceed with developing the private parks text amendment based on Board direction and
Planning Commission input. Initiate a 45-day notice for the first public hearing before the
Board with Planning Commission review.
2. Determine whether to initiate a text amendment to implement SB 960; decide whether any
local standards to address agri-tourism and other commercial events or activities should
also be proposed; and decide when to initiate this text amendment. Public hearings on this
text amendment would occur before the Planning Commission and Board.
3. Determine whether to initiate a text amendment to adopt HB 3280; decide whether to
propose regulations to protect the public health and safety; and decide when to initiate this
text amendment. Public hearings on this text amendment would occur before the Planning
Commission and Board.
Staff Comments: This approach would likely lead to a decision on the private parks/commercial
event venue text amendment in the shortest time. It would likely result in different standards for
different event venues.
Option 2: Coordinated / Integrated Text Amendments
This option would consist of initiating three (3) separate text amendments related to commercial
events in the EFU zone, but the amendments would be initiated simultaneously and similar
standards to address event venue impacts, as applicable and allowed by law, would be
proposed.
This approach may consist of one of the following approaches:
1. The Board provides direction to staff on the standards to be proposed in all three text
amendments. This direction may be provided at this work session or at a future work
session. The last column in the attached table provides a draft of potential standards to be
considered for all 3 text amendments for discussion purposes. or
2. The Board directs staff to work with the Planning Commission to develop standards at its
July 28 and August 11 meetings; conduct a Board work session in early September to
review the draft text amendments; and aim for a 45-day public hearing notice in late
September for fall public hearings.
Staff Comments: This approach would likely lead to some consistency among the different
types of commercial event standards where allowable/applicable, but take longer to develop.
Option 3: Initiate SB 960 & HB 3280 Text Amendments
This option would consist of initiating two (2) text amendments to implement SB 960 and HB
3280 now. The County would then initiate a private park/commercial event venue text
amendment in the future as more is learned about the implementation of these new laws.
Some past/potential Deschutes County event venue operators may qualify for up to 6 events
under SB 960, and each event may be up to 72 hours in duration. It is not likely any or many
event venue operators would be approved under SB 960's standards for 7-18 events.
Staff Comments: This approach would likely be the least contentious and fastest approach
among all three options. However, it would not likely allow rural commercial events on lands
zoned EFU without income producing farming operations (farm use), thereby precluding some
previous/potential property owners from proposing commercial event venues.
BOARD DIRECTION
Staff seeks Board direction on how/when to move forward with commercial event venue text
amendments.
PL-~01A r 0--DAJkYMsSi0nWZ-- J mss C'~ 4'~'-, ate
2v11
TAL 2310
1. Eliminate tethering to "private parks" - what is the purpose of events ?
Problem of creating multiple commercial ventures outside of urban areas.
2. Include all event venues under similar rules - including wineries
3. Do not exempt parts of Mass Gatherings Code relating to inspections, health
and safety and traffic control - or specify those provisions in this code for
more than structures
4. Require considerations for emergency access
S. Permit "trial" period (e.g. 6-12 mos) then reconsider validity for 4 years
6. Any permit is specific to the applicant and does not run with the land
7. Utilize projected number of attendees as guide for requirements / fees
8. Adjacent land use as a consideration - e.g. residential impacts as well as
farming/forest practices
9. Modify number of events or tie days to events 1=1 as proposed (weekend = 2
events)
10. Consider impacts from outdoor noise/light - amplified or not - versus an
indoor or contained events without significant outside noise/light - as a
factor in limiting the number of approved events
11. Consider size of event as factor in number and fees
12. Definition of "private park" ? None in Comp Plan Update. Only reference is:
"Public park" means an area of natural or ornamental quality for outdoor
recreation that provides the resource base for the following activities:
picnicking, boating, fishing swimming, camping and hiking or nature oriented
recreation such as viewing and studying nature and wildlife habitat, and may
include play areas and accessory facilities that support the activities listed
above.
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