HomeMy WebLinkAboutPlanning April 9 20021
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DISCLAIMER: This document contains the Whatcom County Council or Committee
minutes, as approved. However, unless an attested signature page is attached, they
are not the final approved minutes.
WHATCOM COUNTY COUNCIL
Planning and Development Committee
April 9, 2002
The meeting was called to order at 3:05 p.m. by Committee Chair Dan
McShane in the Council Chambers, 311 Grand Avenue, Bellingham, Washington,
Present: Absent:
Seth Fleetwood None
Laurie Caskey- Schreiber
Also Present:
L. Ward Nelson
OTHER BUSINESS
McShane stated they will talk about a first quarter comparison of building
permits. The number of permits is up.
Hal Hart, Planning and Development Services Director, stated the value of
commercial permits this year is up to $17 million in the first quarter. That is about
equal to the value of new homes that are coming into the county. They are seeing
a lot of activity out of the gate this year. The Planning Department permits
anytime there is land disturbance. Subcomponents of that would be critical areas
reviews, inspections, and mitigations. The shoreline information is aggregated.
There is one person on staff for State Environmental Protection Act (SEPA) review.
The one bright sector in the national and local economy now is housing.
People are still investing in the county. He will provide this update to the
councilmembers every quarter.
Nelson asked if this reflects interest rates two or three months ago. Interest
rates have dropped down more. He asked if that influences new construction. Hart
stated lower interest rates wouldn't hurt new construction.
Nelson asked how many commercial projects are included. Hart stated he
would find out that information.
COMMITTEE DISCUSSION AND RECOMMENDATION TO COUNCIL
1. RESOLUTION INITIATING A ZONING TEXT AMENDMENT TO INCLUDE
BEST AVAILABLE CONTROL TECHNOLOGY FOR NOISE AND ODOR
EMISSIONS AS AN ADDITIONAL CONDITIONAL USE CRITERIA
(AB2002 -165)
Planning and Development Committee, 4/9/2002, Page 1
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DISCLAIMER: This document contains the Whatcom County Council or Committee
minutes, as approved. However, unless an attested signature page is attached, they
are not the final approved minutes.
Caskey- Schreiber stated she proposed this ordinance. She now proposes a
ninth criterion for a conditional use permit (CUP) that would lower the threshold
slightly and encourage any kind of business or operation to adhere to the best
available technology industry standards to mitigate noise. The criterion would
assure residents that they will not be disturbed. This is a good direction to take,
given the complaints against Recomp, for businesses to know that they have to
implement best available control technology at the startup phase to avoid
complaints down the road. Putting the condition in the conditional use permit
process is the way to get it going from the beginning.
Nelson asked how to identify the best available control technology.
Caskey- Schreiber stated they have to look at the industry standards. There
is a mushroom composting facility elsewhere that has employed the best
technology. The residents don't even know it's going on.
McShane stated it is a term that is used frequently. It is a requirement to
use the best technology over time, with the recognition that technologies change
over time.
Nelson asked how to review that if someone came in for a permit.
Roland Middleton, Land Use Division Manager, stated that for stormwater
standards, the best available control technologies are specified. There are State
laws that talk about best available control technologies. The concern is that they
scope this with the issue they have at hand. He has been to that mushroom
farming facility that does not emit an odor. However, with an auto repair business
for example, he would have to know what technology the business has to achieve.
Caskey- Schreiber stated that is why she included the clause that, if it would
not impact the neighboring area, then best available control technology isn't
needed. Middleton stated he gets a lot of complaints about people working on their
cars. Sometimes it becomes a business and those people are required to get a
conditional use permit. Car repair is one industry that impacts the neighborhood.
He's not sure to what standard he would hold the business owner to, in terms of
odor and noise emissions. They need to be more specific for him to be able to
enforce it. Several industries do not have a standard.
Fleetwood asked what level of odor or noise disturbance triggers the
requirement.
Caskey- Schreiber stated one measure is if it adversely affects the property
value.
Roy asked if the phrase "best available" addresses the scenario of a
mechanic working in a garage. If there is no technology available, that would be
the answer. Middleton stated it doesn't meet the intent of what they want to add
Planning and Development Committee, 4/9/2002, Page 2
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DISCLAIMER: This document contains the Whatcom County Council or Committee
minutes, as approved. However, unless an attested signature page is attached, they
are not the final approved minutes.
as criteria. Few industries have established standards. Composting does have a
standard. In addition, the language gives a sense of false hope to residents who
ask why those standards haven't been applied. Give the Planning Commissioners
some direction if this goes to them.
Nelson asked how this differs from number six in the ordinance.
Caskey- Schreiber stated it lowers the threshold slightly. It encourages the
businesses to use the best available control technology.
Middleton stated Recomp was outright permitted by the City of Ferndale. Its
environmental impact statement (EIS) was about four pages long. That is one of
the problems with them. Through the process, he will look at projects, such as
composting. These will be the specific criteria that carry the most weight,
especially during the SEPA review and public comment processes. Then the
Hearing Examiner will make a finding that the people have taken care of all of those
issues, including fumes, odor, and noise. The burden of proof is up to the applicant
to show that they to meet the criteria. The SEPA process will determine if there is a
likelihood of significant impacts.
Fleetwood asked what triggers the requirement.
Caskey- Schreiber stated Recomp is an example. There is a ring of neighbors
who have been fighting this operation. They can't sell their properties right now
because the odor is so bad. The County and the City of Ferndale are trying to shut
them down, because of the problem. That is what she is hoping this ninth criterion
would address. By using the best available control technology, they can mitigate
that kind of disturbance from happening from the beginning.
Fleetwood asked how they qualify the problem at Recomp into criteria.
Middleton stated he would first ask that the Council tell him what it means. If it
can't, he would have to make a decision. He has to make a decision based on what
the code says. He would do research on the best available control technology and
then require that of the person asking for the permit. If there were no best
available control technology, he would look at what a reasonable person would
consider as an impact. Someone who lives in the middle of an agricultural zone is a
different situation than an industry moving into a rural zone and impacting the
entire region.
Fleetwood asked how they would get a sample of what an odor would be in
connection with an industry that is not yet built. Middleton stated they don't. If
the industry can't show a similar technology or use in some other area, then he
would have to go to the people of the industry to make a determination. There is
usually a third party review through the SEPA process, or he asks the applicant to
provide him with information that proves the industry won't have an impact.
Planning and Development Committee, 4/9/2002, Page 3
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DISCLAIMER: This document contains the Whatcom County Council or Committee
minutes, as approved. However, unless an attested signature page is attached, they
are not the final approved minutes.
Roy stated she liked the concept. Noise is also a huge concern in the
community. It would be reassuring to know that the best available technology will
be used.
Nelson asked if the conditional use process applies to permitted uses in a
particular zone. Middleton stated permitted uses don't go to the Hearing Examiner
unless it is a major project, for which it comes to the Council. Small industrial
businesses do not go through a conditional use process for permitted uses.
McShane stated it might still go through a SEPA process. He asked if the
SEPA process would take some of these things into account anyway. Middleton
stated it would.
Fleetwood stated it wouldn't necessarily require mitigation by using best
available control technology. Middleton stated that is correct. The proposed
criterion would better define how one is to meet criterion six. Perhaps it may be
better to send the Council's intent to the Planning Commission to work on the
language. The intention is to address noise and odor emissions by ensuring that
the best available control technologies are implemented for the project.
McShane stated they could amend criterion six. Saying that a person will use
best available control technologies is strong language. It means that the County
administration is stuck with it. There could be a case where the best available
control technologies are not that important. Middleton stated they would let the
Hearing Examiner decide that. If the language says that the applicant will use best
available control technologies, it makes administration easier. They need to define
what the best available control technologies are.
McShane stated that if the language requires best available control
technologies, the Hearing Examiner has to decide whether or not best available
control technologies are being used. Middleton stated that is correct.
McShane asked if there is a way to ask the Hearing Examiner to consider the
use of best available control technologies instead of requiring it. Amending
criterion six with the language from the proposed criterion nine may make it easier
for someone to get a permit. Middleton stated he'd have to think about that. A
rock crusher, for example, requires a CUP. The Hearing Examiner may say that the
rock crusher needs to be located in a certain area of the pit, and the owner must
build berms and baffles. The staff will measure noise levels from the property lines,
which have to be under a certain decibel before allowing the permit. That is typical.
In this industry, it is also probably the best available control technology. However,
it's not stated anywhere that that is the best available control technology.
Caskey- Schreiber moved to recommend approval to the full Council. She
would like to send it to the Planning Commission to see what will come back to the
Council.
Planning and Development Committee, 4/9/2002, Page 4
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DISCLAIMER: This document contains the Whatcom County Council or Committee
minutes, as approved. However, unless an attested signature page is attached, they
are not the final approved minutes.
Fleetwood asked what kind of burden that this will add to the Planning
Department staff. Middleton stated he didn't know. The Planning Division's work
program looks very busy.
McShane asked if the noise and odor issues of a mushroom composting
facility would be addressed through SEPA review and the conditional use criteria
that exist, and if staff would not hear complaints. Middleton stated the more
direction he receives from the legislative body, the better off the staff is. He holds
to the code specifically, no matter what it is. He could permit a facility in a week
and a half with no control technologies. The better and more specific the law is
written, the more likely they will end up with a result of what they wanted in the
first place. If they have a composting facility today that requires a CUP, he would
require the applicants to show how they are going to take care of their odor
emissions. A lot of it has to do with how the compost material is handled. They
need to put the burden of proof on the applicant by asking if there will be impacts
under SEPA. If it's exempt from SEPA or if the applicant has shown that it isn't
likely that there will be significant impacts, it doesn't mean there aren't going to be
some impacts that need to be addressed in the staff report by the Hearing
Examiner. Regarding a threshold of legality versus a use's detriment to the
neighborhood, being detrimental to the neighborhood is a higher standard than an
actual quantified standard. However, they need both. At some point, staff
measures noise as a quantity. Odor is different. It can be very subjective. At that
point, he would look at the information from the Northwest Air Pollution Authority
( NWAPA). NWAPA would take the lead on telling the staff on whether or not the
control technology is the best available and will handle the odor.
McShane stated he would like to see what NWAPA's regulations are on
mushroom composting. Middleton stated he knows from this discussion what the
committee's intentions are. Generic terms are a concern for him, which is why he
asked what the committee means by the term "best available control technologies."
He will voice that intent to the Planning Commission. One of his major functions is
to assist the public through the process. He needs to be able to tell the public what
the terms mean.
Caskey- Schreiber asked how this differs from SEPA. She asked how the staff
will know what threshold to set through SEPA and how to correct a problem after
project development, even if the project meets the threshold. Middleton stated
that is a problem. With SEPA, they do the best they can up front. He takes the
lead from NWAPA. If NWAPA says that a project meets the standards and it's not
likely to have an impact, then County staff will proceed. County staff doesn't have
the expertise. That is what NWAPA is for.
Caskey- Schreiber stated they are less concerned with odorous pollutants
than they are with hazardous pollutants. Middleton agreed.
McShane stated he would like to see what NWAPA does on something like
this, and get an answer from them.
Planning and Development Committee, 4/9/2002, Page 5
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DISCLAIMER: This document contains the Whatcom County Council or Committee
minutes, as approved. However, unless an attested signature page is attached, they
are not the final approved minutes.
Caskey- Schreiber stated she spoke with NWAPA. They can only enforce what
is in place. Middleton stated that if a CUP is approved and the applicant says there
will be no problem, and the County receives many complaints and verifies those
complaints, then the County could take the issue to the Hearing Examiner with a
request to revoke the permit.
Caskey- Schreiber stated that is the process that the County is currently in.
Middleton stated that is the way they have to operate.
Fleetwood stated they have to abate nuisances before they become a
problem. He asked if criterion six is essentially a nuisance provision. Middleton
stated it is.
Fleetwood asked if adding criterion nine does anything to improve upon
criterion six. Middleton stated it does. The addition of best available control
technologies, especially with a composting use, is very beneficial.
(Clerk's Note: End of tape one, side A.)
Middleton continued to state that there may be some industries that don't
have control technology. Regarding criteria six and nine, he wouldn't recommend
one over the other. He wouldn't recommend taking one out. They could modify
criterion six to include the language from criterion nine.
McShane stated they could use criterion nine, and create a list of types of
industries to which criterion nine would apply. Middleton stated they could do that,
or they could define the types of industries. He could work with the Planning
Commission on that. Both criteria need to be there. Give an applicant a minimum
standard to which he or she needs to achieve.
Caskey- Schreiber restated her motion to recommend approval to the full
Council. She moved to amend the motion, "The Best Available Control Technology,
according to industry standards, will be utilized...." The Planning Commission can
define the types of industries to which this would be applicable.
Fleetwood stated there are cases where best available control technology
isn't necessary. Under this criterion, it would be required. He offered a friendly
amendment that it be applicable where necessary. Middleton stated hopefully that
would be taken care of through best available control technology. If there is a
noisy manufacturing machine, it is sometimes required to be in a building. If it
were outside, the entire neighborhood would hear it. He would have to look at how
a level of appropriateness is defined. That would be part of the list that the
Planning Commission can create.
McShane stated a direction for the Planning Commission would be to look at
the types of industries that this would apply to. He supported sending the
Planning and Development Committee, 4/9/2002, Page 6
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DISCLAIMER: This document contains the Whatcom County Council or Committee
minutes, as approved. However, unless an attested signature page is attached, they
are not the final approved minutes.
resolution to the Planning Commission, with the Planning Commission considering
the types of industry this would apply to.
Caskey- Schreiber agreed with sending it to the Planning Commission to
determine the types of industry to which this would apply.
Middleton stated the Hearing Examiner is given criteria to determine whether
something fits in a neighborhood. Staff is trying to implement what the Council
wants. Be as specific as possible so staff can do the best job possible.
Caskey- Schreiber stated she could work with Mr. Middleton on this, and
discuss it again in two weeks. She withdrew her motion and said she would redraft
the language in cooperation with Mr. Middleton.
2. REQUEST TO AMEND WHATCOM COUNTY CODE, TITLE 20, TO EXEMPT
PARCELS WITHIN THE DRAYTON HARBOR STORMWATER SPECIAL
DISTRICT FROM ON -SITE STORMWATER DETENTION AND
INFILTRATION REQUIREMENTS (AB2002 -174)
Amy Pederson, Planner I, stated this proposal originated in December 2000,
when reviewing the proposed impervious surface thresholds that were to be added
to the stormwater special district. At that time, the Engineering Division requested
from the Planning and Development Committee that the rural, one unit per five
acres (R5A), rural, one unit per ten acres (R10A), and the agricultural zones be
exempt from the stormwater special district requirements in the Drayton Harbor
watershed. The Planning and Development Committee came up with alternative
language that exempted, all parcels in the R5A, R10A, and agricultural zones that
are not already platted into lots less than one acre in size. That language left out
anything between five and one acre.
Because this change requires a public hearing, they decided to go forward
with the impervious surface thresholds and to wait until the new year to initiate this
particular change. The County Water Team suggested an alternative
recommendation that also went to the Planning Commission, which held a public
hearing in January. The Planning Commission recommended denial because the
Engineering Division was supposed to work with the Technical Advisory Committee
to develop stormwater standards for single - family residences for onsite stormwater
detention and infiltration treatment systems. At that time, the TAC was working on
them and said they would be done in five months. The Planning Commission
wanted to wait and see the stormwater standards. The draft standards will come
forward at next water resources work session. Staff recommends holding this
discussion until they see those standards.
Fleetwood asked if this would exempt properties that have up to five acres
and that are undeveloped. He also asked if these requirements would be triggered
when those owners apply to convert those properties to some use. Pederson stated
it applies to remodels also. It applies to anything between one acre and five acres
Planning and Development Committee, 4/9/2002, Page 7
DISCLAIMER: This document contains the Whatcom County Council or Committee
minutes, as approved. However, unless an attested signature page is attached, they
are not the final approved minutes.
1 as it is being proposed currently. The original Planning and Development
2 Committee recommendation was to exempt anything between one acre and five
3 acres. The smaller lots would still be subject to the stormwater requirements.
4
5 McShane stated the proposed amendments went to the Planning
6 Commission, which voted against the amendments. The recommendation from the
7 Planning Commission is to not do this. If the Council chooses to vote on it, it can
8 vote to uphold the Planning Commission, and then it won't happen, or the Council
9 would have to schedule a public hearing to overturn the Planning Commission.
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11 Geoff Menzies, Shellfish Protection District Chair, stated anytime they can get
12 a special designation in Drayton Harbor, they try to hold onto it. The proposal is to
13 exempt Drayton Harbor from the detention and infiltration requirements that come
14 with a special stormwater district. That is a concern of the advisory committee.
15 The only methods for controlling fecal coliform are through detention and
16 infiltration. A bioswale doesn't work for fecal coliform control. It doesn't do
17 anything. When the Water Team met, the Shellfish Protection District was not
18 included in the discussion. If they can hold onto the designation, they would like to
19 do that. The issue is not having any guidelines in place. He understands that. This
20 area is zoned urban residential, four units per acre (UR -4) pending the availability
21 of sewer. They are talking about an area that can go from an agricultural use to a
22 higher density. Leave what's there on the books, and get some policies in place.
23 With the knowledge that policies and guidelines will be in place in a few months,
24 leave it there, revisit those, and make sure they apply and make sense for the
25 Drayton Harbor watershed. One recommendation was added to the findings. Land
26 conversion is a significant source of pollution in Drayton Harbor. Therefore, the
27 recommendation was to add language, 'Adopt development standards which will
28 require erosion control and stormwater detention /control /treatment on all sites,
29 including single family residences."
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31 Fleetwood asked if the stormwater special district area is contiguous to the
32 Drayton Harbor watershed. Pederson stated it is. She submitted a map of the
33 area. Parcels exceeding five acres are not subject to the district.
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35 Caskey- Schreiber asked if they are going to have the guidelines in a month.
36 Pederson stated the draft will come forward at the next water resources work
37 session.
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39 Caskey- Schreiber asked the implications of waiting until they are done.
40 Pederson stated they originally wanted to determine whether detention and
41 infiltration is really needed in those particular areas. There are different
42 characteristics between Lake Whatcom and Lake Samish. They looked at the
43 guidelines developed to determine if they are appropriate for Drayton Harbor. At
44 the time, they weren't looking at Drayton Harbor, but at areas like Lake Samish and
45 Lake Whatcom.
46
Planning and Development Committee, 4/9/2002, Page 8
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DISCLAIMER: This document contains the Whatcom County Council or Committee
minutes, as approved. However, unless an attested signature page is attached, they
are not the final approved minutes.
McShane stated he would like to hold this in committee so they can get the
standards and discuss all the stormwater districts. Pederson stated they have to
consider Lake Whatcom, Drayton Harbor, and Lake Samish. Lake Samish is not a
stormwater special district right now, but there is a contingency in the code that
says Lake Samish will become a stormwater special district as soon as the
standards are updated and revised. The options for action now are to hold it in
committee, or recommend the Planning Commission recommendation and do the
Drayton Harbor analysis later.
McShane stated there are some issues he wants to address, such as the
issue with driveways and the overlay districts. Pederson stated the stormwater
special district, the water resource protection overlay district, and water resource
special management area need to get sorted out through the moratorium process
that is in place.
McShane stated they can talk about low impact development, and how to
avoid the need to do any stormwater work. Pederson stated some of those basic
concepts are worked into the stormwater standards.
McShane stated he would like to see those concepts in the standards. He
preferred to hold this discussion in committee to see what the standards are, how
they are going to apply, and make sure that they maintain efforts to recover
Drayton Harbor.
Menzies asked if the draft standards are being crafted specifically for Lake
Whatcom, or if they would be the basis for Drayton Harbor and Lake Samish.
Pederson stated the standards are based largely on the new State Department of
Ecology (DOE) stormwater manual and the King County stormwater manual. Staff
asked that the standards be somewhat general so people can apply them to their
sites. A complicated site will require engineering and special onsite detention and
treatment.
McShane stated he recalled that a single - family home being built could be
required to have an engineer- designed stormwater infiltration or detention system.
They didn't have at that time a list of things an owner could do without having to
hire an engineer.
Menzies stated he believed that someone in the Drayton Harbor watershed
asking for a permit would be given a set of general guidelines so he or she would
know what they need to do to be in compliance with the stormwater special district.
Pederson stated staff is giving people some of the specifications out of the draft
standards. There are model best management practices (BMP's) that people can
use, but haven't necessarily been reviewed for a particular area.
Caskey- Schreiber asked if they could create low- impact development
guidelines, and ask the developers to adhere to them.
Planning and Development Committee, 4/9/2002, Page 9
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DISCLAIMER: This document contains the Whatcom County Council or Committee
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are not the final approved minutes.
Hal Hart, Planning and Development Services Director, stated the system
they might be using so they don't necessarily have to have an engineer every time
would be a suite of different design possibilities that could be applied, without hiring
an engineer. He is discussing this topic with staff at DOE. Keep the costs down,
but keep environmental protection going. It's going to take a site -by -site analysis
because there are so many variables across the landscape.
McShane stated he would like to keep this in committee.
Roland Middleton, Land Use Division Manager, stated the question was what
they are doing now. They are doing the best they can. They put as much
information as possible out there. He uses some handouts for certain things.
However, developers would be sent back and forth between his department and the
Engineering Division. The issue really is site specific, but they can't do that for 600
to 700 building permits.
Menzies noted that the Whatcom County Parks Department brochure
advertises clam digging as something to do at Semiahmoo Park. However, that is
not allowed because the State Department of Health recommends that there not be
any shellfish harvesting.
OTHER BUSINESS
Hal Hart, Planning and Development Services Director, stated he wants to do
four 30- minute discussion sessions this spring to provide information on various
Planning Department tasks and responsibilities. He wants the sessions to be about
the Critical Areas Ordinance (CAO), the State Environmental Protection Act (SEPA),
zoning, and shorelines.
(Clerk's Note: End of tape one, side B.)
The committee concurred.
McShane stated he would also like to hear about the appeal process.
Caskey- Schreiber stated she wanted information on Open Space.
Hart stated a question was asked earlier today about commercial permits.
The reason the number of commercial permits is up is because of the refinery.
When the refinery does upgrades, it has a big impact on the amount of commercial
permitting. Also, last year, the primary reason the numbers of permits in the
commercial category was up was because people were making changes to their
commercial signs. There was not a lot of other commercial activity last year.
ADJOURN
The meeting adjourned at 4:40 p.m.
Planning and Development Committee, 4/9/2002, Page 10
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DISCLAIMER: This document contains the Whatcom County Council or Committee
minutes, as approved. However, unless an attested signature page is attached, they
are not the final approved minutes.
Jill Nixon, Minutes Transcription
ATTEST:
Dana Brown - Davis, Council Clerk
WHATCOM COUNTY COUNCIL
WHATCOM COUNTY, WASHINGTON
Dan McShane, Committee Chair
Planning and Development Committee, 4/9/2002, Page 11