MINERAL RESOURCES ELEMENT

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1 2016 MINERAL RESOURCES ELEMENT NATURAL RESOURCES PLAN MARION COUNTY GROWTH SERVICES

2 Table of Contents Overview... 2 Existing Condition... 3 Desired Future Condition... 8 Position Statement... 9 Goals, Objectives and Policies

3 Overview Marion County is home to the first commercial mines in Florida, which were established for phosphate extraction near Dunnellon in the late 1890s. This rock phosphate is the purest variety and was dredged from the Withlacoochee River. In the early 1900 s, mines began to move toward southwest Florida (Polk County) for pebble phosphate which was less pure, but easier to mine. Currently, the primary mined materials in Marion County are limestone, clay and sand. In 2005, Florida ranked 3 rd in the nation in production and use of these construction materials, and limestone in Marion County is considered a high-quality and prolific source (FLAI, 2007). With a decline in construction activities beginning in 2007, demand for these materials decreased, but as we see a return to pre-recession levels of construction, Marion County can expect additional mining pressures. In terms of liquid mineral resources (oil and gas), the US Bureau of Land Management conducted a study in 2008 that concluded that Marion County does not have reasonable oil and gas reserves for exploration, development and production over the next 10 years. This was based upon exploratory wells drilled in the Ocala National Forest that failed to produce calculable oil quantities. Figure 1. Phosphorus extraction along the Withlacoochee River in Dunnellon, FL. The County s Comprehensive Plan requires the County to create a focused strategy for the regulation of mining and resource extraction activity in the rural area outside of the Urban Growth Boundary. Local regulations are found in the Marion County Land Development Code and contain a requirement to obtain a Special Use Permit as well as, additional requirements for geologic testing for new mines in designated Aquifer Vulnerability areas. The incompatibility of mining operations with other land uses often makes them difficult to permit and many local governments struggle with balancing the need for locally sourced construction materials and environmental and social effects of mining operations. For this reason, in the early 2000 s Florida s Legislature contemplated taking jurisdiction over mineral resources statewide. It is important for the County to establish areas where mining may be feasible in order to plan for mineral extraction for economic development over the long term. The County should conduct a review of geologic and historic mining information in and around Marion County, develop projections for future mineral demands through 2050 and evaluate current and proposed mines to establish a focused mining strategy, per the Marion County Comprehensive Plan. County staff should have a sufficient level of knowledge about mining best management practices in 2

4 order to develop policies that will minimize environmental, quality of life, and transportation impacts to the surrounding community. Existing Condition Marion County exports 447,289 tons of clay, concrete, glass or stone and a total of 1.5 million tons of non-metallic minerals annually (FDOT, 2013). This compares to over 90 million tons of constructiongrade limerock, statewide. Most of the limerock mined in Marion County comes from the Ocala Platform geological unit, which is also the location of the upper Floridan Aquifer, that supplies groundwater for natural systems and drinking water. Prior to 1992, mining was allowed by right in all agricultural zoning classifications in Marion County. Since 1992, a special use permit has been required for new mines, but mines that were being operated within three years prior to June 11, 1992 have been allowed to operate without a special use permit, even if they have not been continuously active. Mine applicants and zoning staff have found it difficult to verify mines that were active within 3 years prior to June 11, This is challenging when a mine operator or potential land purchaser requests a determination about whether or not a mining operation will be allowed to resume without a special use permit after a period of inactivity, or if there is a complaint of potentially unauthorized mining. In short, the status of historic mines and their entitlements are largely unknown. For example, according to FDEP records there are currently 24 permitted and noticed mines in Marion County (Table 1). Marion County Zoning Department recognizes 19 active mines plus 16 historic, nonactive mines. However, land use maps from 2010 indicate over 65 extractive areas, including those used for limerock or dolomite, sand and gravel, clay, and rock quarries, as well as, abandoned mining lands. Table 1. FDEP Permitted or noticed mines in Marion County (DEP, 2015). SITE ID SITE NAME MID-FLORIDA MINING CO. - MID-FLORIDA MINE FRANKLIN INDUSTRIAL MINERALS-LOWELL MINE DYKES, JOHN R. - MAGNOLIA BLUFF STEVEN COUNTS, INC. - MCKATHAN MINE MARION NORTHSIDE STONE, LLC - MARION NORTHSIDE STONE MINE DYKES, JOHN R. - MICHIGAN CITY MINE MJ STAVOLA INDUSTRIES - ZUBER MINE MINING BEGAN MARKET RESOURCE Fullers Earth PERMIT AGENCY SJRWMD DEP Permit 1930 February 1985 Sand CATEGORY Mining Notice 4/10/1976 Sand/Clay Mining Notice Pre

5 SITE ID SITE NAME MINING BEGAN MARKET RESOURCE PERMIT AGENCY CATEGORY COUNTS CONSTRUCTION NORTH MINE MARION NORTHSIDE STONE, LLC - MARION NORTHSIDE STONE MINE PAGLIA ASSOCIATES, INC. - NORTHSIDE SAND PIT Sand SJRWMD Mining Notice STANDARD SAND & SILICA CO - LYNNE MNE Jul-68 Sand BMMR DEP Permit COMMERCIAL INDUSTRIAL CORP PIT COUNTS CONSTRUCTION COMPANY, INC- COUNTS RAINBOW MINE STEVEN COUNTS INC - STEVENSON MINE TRIPLE T CONSTRUCTION PRODUCTS-THE O'NEAL PIT Pre DIAMOND BACK MINING COMPANY, INC - PANSY BRITT Pre 1964 LIMEROCK MINE WOOD TRUCKING, INC. - MARGIE WOOD CLASS III LF 2/24/1986 Sand SJRWMD Mining Notice (ERP) ROBERT BAUER, INC. - RBI SHORES SAND PIT Mar-98 Sand SJRWMD Mining Notice STEVEN COUNTS, INC. - FINCH LIMEROCK MINE Pre C&K INVESTMENTS - C&K SAND MINE 2006 Sand SJRWMD Mining Notice D.A.B. CONSTRUCTORS, INC. Sand Mining Notice RAINEY CONSTRUCTION COMPANY - 42 MINE Pre FLORIDA ROCK INDUSTRIES, INC. - WEIRSDALE PLANT Sep-90 Sand BMMR DEP Permit FLORIDA ROCK INDUSTRIES, INC. - MARION SAND PLANT Sand BMMR DEP Permit Three state agencies have jurisdiction over mining activities: FDEP, Water Management Districts and The State Fire Marshal. Environmental issues related to mine activity are covered under Florida s Environmental Resource Permits, which are administered by its water management districts. The FDEP s Bureau of Mine Reclamation oversees reclamation activities and the State Fire Marshall is solely responsible for use of explosives at active mines. Environmental and reclamation permits are often issued simultaneously because state law now requires a reclamation plan before activities can begin. This policy was implemented in 1975, though mines that were active prior to that year are not required to carry out reclamation. 4

6 The Marion County Comprehensive Plan includes a Future Land Use Map that identifies areas within the County that may be suitable for commercial extraction of mineral materials (Figure 2). This FLUM is strictly based upon a 1988 map, created by the Florida Geological Survey as part of a statewide effort. The level of detail used to determine the extent of materials in the County may be too generalized for the purpose of policy development. For example, the areas identified as peat and clay on the FGS map reflect historic mining operations, and do not take into account other areas of the County where those resources are available, but no mines exist. Policy states that the County shall protect and provide for the extraction of commercially valuable mineral resources. Additionally, Policy requires the county to create a focused strategy for the regulation of mining activities outside of the urban growth boundary. The importance of developing such a strategy becomes apparent when comparing the FGS/FLUM Commercially Viable Minerals map to the Marion County Aquifer Vulnerability map (Figure 3). Much of the Commercially Viable Minerals areas also overlie the aquifer areas identified as Most and More Vulnerable. Also, a large area within the Farmland Preservation Area is identified as having limited potential, though one of the County s most prolific mines is located in that region. If sufficient sources can be obtained elsewhere in the County, it may be beneficial designate areas where mining should be limited. The Land Development Code requires that a Special Use Permit is obtained for all new mines, however no restrictions are placed on the zoning classifications that would allow such use. Requirements above state standards are only placed on mines that are within MCAVA Most or More Vulnerable zones. These include: enhanced geotechnical investigations prior to mine approval; identification of potable wells within 500ft of the site boundaries; directing surface drainage away from the mined area and keeping hazardous materials storage outside of mined area. A reclamation plan is required to include only clean fill and enhanced buffering for water bodies created by mine activities. The buffer must be protected through an easement to the county and no permanent structures or fertilizer use is allowed within the easement. Other best management practices for mining activities may exist and a review of current operational requirements should be conducted in order to ensure that these practices are implemented locally, where feasible. 5

7 Figure 2. Economically Valuable Mineral Resources in Marion County. 6

8 Figure 3. Marion County Aquifer Vulnerability Assessment. Threats and Obstacles There are significant uncertainties about the availability of mineral resources based on current production, future demand and potential for mining in Marion County. Limited oversight and coordination between agencies has resulted in knowledge gaps that make it difficult to determine entitlements for existing or historic mines, particularly those that may have not continually been in operation. The main environmental concerns related to extraction activities include potential destruction of important habitat and groundwater contamination. Social concerns relate to excessive noise and vibrations from blasting activities, and damage to roadway infrastructure from transport of the materials. Mines are considered incompatible with many land uses and permitting them has become increasingly difficult due to public opposition based on these factors. However, mineral extraction in Florida is a necessary component of economic viability for the supply of construction materials and phosphorus fertilizer for food production. Striking a balance between the need for extracted materials and detrimental environmental and social impacts has proven difficult for local governments statewide. In response, the Florida Legislature has contemplated taking on this task by making extractive minerals a resource of the state. Local control over mine placement, boundaries and special operating conditions will be additionally limited if the state imposes statewide governance. Limerock is a major roadway component, and transportation costs for delivering the material to sites is a significant portion of road building project budgets. In general, 80km (50mi) is considered the 7

9 transportation radius for road building materials. As development continues to increase in the area, and roadway expansions are considered both locally and statewide, the availability of limerock in close proximity to projects will be necessary. Adequate supplies of limerock are vital to expansion and maintenance of our transportation infrastructure. Sand that is mined in Marion County is typically used as fill dirt for local construction projects. At this time, demand is heavily based on new construction activity and is expected to follow ongoing development trends. However, sand for beach re-nourishment projects is an increasing use in coastal areas of Florida, and the potential for inland sands to be used has not been fully evaluated. A 1992 report issued by the Florida Department of Natural Resources designated 65% of west Florida beaches as "critical erosion areas." Beach re-nourishment projects are supported through the state funded, Beach Management Funding Assistance Program and are actively being pursued along the west coast. Sands for these projects are typically imported from nearby surrounding coastal areas, and must meet certain criteria. However, as coastal sources become depleted, inland sources may be sought in order to meet the needs of these ongoing projects. Phosphate rock is primarily used as fertilizer, but is also used as a detergent additive, and in food and beverage products (Beavers, 2013). Global phosphate reserves are expected to become depleted in many areas as population increases. At this time, Florida provides more than 65% of US production of phosphorus, and the US is the leading producer in the world. China and Morocco also have reserves, however Florida is expected to remain a major producer for several more decades (al Rawashde and Maxwell, 2011). As phosphorus becomes limited, Marion County s rock phosphate source may become more appealing for extraction. Peat extraction potential in Marion County has not been evaluated, and may become an economic interest as fertilizer prices increase and soil amendments become more valuable. There are areas within the County that may impacted by the increased need for this resource. Liquid mineral resources (oil and gas) were investigated in the Ocala National Forest in the 1970s. In 2008, the Bureau of Land Management concluded that Marion County does not have reasonable reserves for exploration, development and production over the next 10 years. However, advances in production technology may make exploration and development feasible in the future. Desired Future Condition Marion County will have sufficient permitted mines to meet development demands without causing unacceptable environmental and social impact. Marion County s soils and water will be protected from extensive mining that would negatively affect its natural resources. Citizens will observe minimal impacts to their quality of life due to mining activities. This will be achieved through a focused strategy that is based on localized geologic and land use data. Mining will be allowed in appropriate land use and zoning classifications, and siting will continue to go through the SUP process. A mine reclamation plan will be required prior to SUP approval and a phased implementation and restoration plan may be required. 8

10 As they emerge, new technologies will be implemented to protect water quality and habitat and to reduce the noise and vibration burden to neighboring properties. Position Statement Marion County s mineral resources are vital to its economic viability. A focused strategy will be developed to assure that access to these resources is permitted, while minimizing the social and environmental impact of mining activities within Marion County. Goals, Objectives and Policies The following goals, objectives and policy actions have been identified for implementation under this Mineral Resources Plan. Approximate timeframes are shown in Table 2. Goal 1. Maintain the County s quality of life end economic vitality through the management and conservation of natural resources. (Excerpt from Comprehensive Plan Conservation Element Goal 1). Objective: Create focused strategies for the regulation of mining and resource extraction inside and outside of the urban growth boundary. Policy: Coordinate with existing mines to verify entitlements and compliance with local regulations. Policy: Refine FGS Commercially Viable Minerals map using local data. Policy: Conduct mineral need and supply assessment through Goal 2. Protect the County s unique assets, character and quality of life through the implementation of land use policies that allow for mixed land uses, promote conservation of natural resources and protect private property rights. (Modified from FLUM Goal 1). Objective: Refine Comprehensive Plan and LDC language to incorporate strategies that ensure sufficient natural resource protection, without being duplicative of state and federal regulations. Policy: Review current mining practices and strategies implemented by local governments that minimize environmental and social effects of mining activities. 9

11 Table 2. Approximate timeframes for Mineral Resources Element policy implementation. Goal Objective Policy Timeframe Maintain the County s Create focused strategies Coordinate with existing Year 1 quality of life end economic vitality through the management and conservation of natural resources. (Excerpt from for the regulation of mining and resource extraction inside and outside of the urban growth boundary. mines to verify entitlements and compliance with local regulations. Refine FGS Commercially Year 2 Comprehensive Plan Conservation Element Goal 1) Viable Minerals map using local data. Conduct mineral need and supply assessment through Year 2 Protect the County s unique assets, character and quality of life through the implementation of land use policies that allow for mixed land uses, promote conservation of natural resources and protect private property rights. (modified from FLUM Goal 1) Refine Comprehensive Plan and LDC language to incorporate strategies that ensure sufficient natural resource protection, without being duplicative of state and federal regulations Review current mining practices and strategies implemented by similar local governments that minimize environmental and social effects of mining activities. Year