Court Opinion

ID: 9710691
Source: CourtListenerOpinion
Date Created: 2023-08-26 04:15:21.01829+00
Date Added: 2024-06-11T18:22:59.004702
License: Public Domain

MINGE, Judge,
concurring specially.
I join in the opinion of the court, and concur to add comments regarding the potential cumulative effect of the proposed livestock facility.
The law provides that: “Where there is potential for significant environmental effects resulting from any major governmental action, the action shall be preceded by an environmental impact statement (EIS) prepared by the responsible governmental unit.” Minn.Stat. § 116D.04, subd. 2a (2004); see also Minn. R. 4410.1700, subp. 1 (2003). In determining the effects of governmental action, the law requires that an environmental assessment worksheet (EAW) be prepared for certain types of activity. Minn.Stat. § 116D.04, subd. 2a(a) (2004). The Environment Quality Board (EQB) has determined that an EAW is required for certain feedlot proposals including all with a capacity exceeding 1,000 animal units. Minn. R. 4410.4300, subp. 29, item A (2003). A determination of environmental effects and the EAW must include an evaluation of the “cumulative potential effects of related or anticipated future projects.” Minn. R. 4410.1700, subp. 7, item B (2003). This effect is defined as one which “results from incremental effects of the project in addition to other past, present and reasonably foreseeable future projects regardless of what person undertakes the project.” Minn. R. 4410.0200, subp. 11 (2003).
Mark Finstuen proposed to expand an existing 35-head cattle feeding operation by constructing two hog confinement buildings in which he planned to place *5842,400 sows (960 animal units). We have upheld the district court determination that the physical capacity of the two proposed buildings is over 1,000 animal units. There is evidence that they could house as many as 1,440 animal units. Dodge County considered the impact of Finstuen’s proposed feedlot based on its having 995 animal units and found that “Finstuen had no plans to expand at this site.” The county did not define whether this conclusion meant that there was no plan to construct additional buildings or no plan to further utilize the proposed buildings to house an additional 480 animal units, nor did the county determine whether the capacity of 480 additional animal units represent a cumulative potential impact or effect. If this physical capacity is considered a part of the potential cumulative effect, the EAW should have recognized that entire capacity in determining whether this project has a significant environmental effect.
It is tempting to ignore the capacity of a facility and only look at the number of animal units proposed to be housed in the buildings under a permit application. However, as the opinion of this court explains, physical capacity is a key concept in the statutes. Furthermore, ignoring the physical capacity is at variance with plain meaning of the phrase “potential cumulative impact” and disregards the foreseeable economic pressures to utilize buildings once constructed. This is the time to assess the impact. The record is silent on why the buildings would not be used at maximum capacity and whether there are alternative uses for the buildings. If their highest and'best economic use is as a hog facility, the evaluation of the impact of already constructed buildings should not be deferred until the force of economic necessity weighs heavily for exceptions and variances.
From the record, it appears that if the potential cumulative effect includes the full physical capacity of the proposed buildings, several matters need further analysis to determine whether the project would have a significant environmental effect and whether an EIS is needed. One is the farmland available for spreading manure from the facility. Dodge County found that 1,200 acres were needed to handle the manure and that that acreage had been identified. At full capacity, 50% more animal units would be in the facility and 1,800 acres of land would apparently be needed. The Pollution Control Agency (PCA) commented some fields have steep slopes and that Finstuen’s plan to spread manure after fall harvest delays absorption of nutrients until the next growing season. The significance of these comments on needed or appropriate acreage for manure application is unclear. However, the EAW should analyze the acreage needed to properly handle the potential cumulative effect of these considerations and, given the reported extensive Karst formations in the area, whether suitable acreage is available for manure application without creating a significant environmental effect.
Another example of the importance of fully assessing the potential cumulative effect is groundwater quality. The record indicates that water from private wells serving the nearby church and many residents is not potable. Only water from deeper wells that reach lower aquifers is potable. The EAW assumes that continued application of historic levels of fertilizer will not create a potential for significant environmental impact. It does not appear that the EAW considered the risk of yet further degradation of the water table including the risk to deeper aquifers from continued application of fertilizer at historic approved levels and whether the potential cumulative impact of the facility proposed by Finstuen will establish a demand for manure application that will contribute to the current groundwater problem. This risk and potential impact is important in *585assessing whether there is a significant environmental effect from the proposed facility.
The potential cumulative effect of odor from a facility operating at capacity and other matters may similarly be important. This court is not the appropriate body to determine the potential cumulative environmental effects. The responsible governmental unit should make these determinations.
We have concluded that the PCA has jurisdiction to determine the need for an EIS and to issue permits for feedlots with a capacity greater than 1,000 animal units. The PCA is the responsible governmental unit. Presumably, the PCA had the duty to prepare or at least approve the adequacy of the EAW. In this case the EAW and environmental analysis were handled and determined by Dodge County. The parties have not argued and we do not reach the question of the status of the EAW or the environment analysis based on its authorship.