ORS 197.825
Jurisdiction of board

  • limitations
  • effect on circuit court jurisdiction

(1)

Except as provided in ORS 197.320 (Power of commission to order compliance with goals and plans) and subsections (2) and (3) of this section, the Land Use Board of Appeals shall have exclusive jurisdiction to review any land use decision or limited land use decision of a local government, special district or a state agency in the manner provided in ORS 197.830 (Review procedures) to 197.845 (Stay of decision being reviewed).

(2)

The jurisdiction of the board:

(a)

Is limited to those cases in which the petitioner has exhausted all remedies available by right before petitioning the board for review;

(b)

Is subject to the provisions of ORS 197.850 (Judicial review of board order) relating to judicial review by the Court of Appeals;

(c)

Does not include a local government decision that is:

(A)

Submitted to the Department of Land Conservation and Development for acknowledgment under ORS 197.251 (Compliance acknowledgment), 197.626 (Submission of land use decisions that expand urban growth boundary or designate urban or rural reserves) or 197.628 (Periodic review) to 197.651 (Appeal to Court of Appeals for judicial review of final order of Land Conservation and Development Commission) or a matter arising out of a local government decision submitted to the department for acknowledgment, unless the Director of the Department of Land Conservation and Development, in the director’s sole discretion, transfers the matter to the board; or

(B)

Subject to the review authority of the department under ORS 197.430 (Enforcement powers), 197.445 (Destination resort criteria), 197.450 (Siting without taking goal exception) or 197.455 (Siting of destination resorts) or a matter related to a local government decision subject to the review authority of the department under ORS 197.430 (Enforcement powers), 197.445 (Destination resort criteria), 197.450 (Siting without taking goal exception) or 197.455 (Siting of destination resorts);

(d)

Does not include those land use decisions of a state agency over which the Court of Appeals has jurisdiction for initial judicial review under ORS 183.400 (Judicial determination of validity of rule), 183.482 (Jurisdiction for review of contested cases) or other statutory provisions;

(e)

Does not include any rules, programs, decisions, determinations or activities carried out under ORS 527.610 (Short title) to 527.770 (Good faith compliance with best management practices not violation of water quality standards), 527.990 (Criminal penalties) (1) and 527.992 (Civil penalties);

(f)

Is subject to ORS 196.115 (Appeal from decision of Columbia River Gorge Commission or county) for any county land use decision that may be reviewed by the Columbia River Gorge Commission pursuant to sections 10(c) or 15(a)(2) of the Columbia River Gorge National Scenic Area Act, P.L. 99-663; and

(g)

Does not include review of expedited land divisions under ORS 197.360 (“Expedited land division” defined).

(3)

Notwithstanding subsection (1) of this section, the circuit courts of this state retain jurisdiction:

(a)

To grant declaratory, injunctive or mandatory relief in proceedings arising from decisions described in ORS 197.015 (Definitions for ORS chapters 195, 196, 197 and ORS 197A.300 to 197A.325) (10)(b) or proceedings brought to enforce the provisions of an adopted comprehensive plan or land use regulations; and

(b)

To enforce orders of the board in appropriate proceedings brought by the board or a party to the board proceeding resulting in the order. [1983 c.827 §30; 1987 c.729 §14; 1987 c.856 §9; 1987 c.919 §4; 1989 c.761 §11; 1991 c.817 §4; 1995 c.595 §26; 1999 c.348 §16; 2005 c.22 §146; 2005 c.245 §1; 2005 c.829 §10; 2007 c.354 §30]

Source: Section 197.825 — Jurisdiction of board; limitations; effect on circuit court jurisdiction, https://www.­oregonlegislature.­gov/bills_laws/ors/ors197.­html.

Notes of Decisions

Where right to ask for review is unconditionally granted by county, although county Board of Commissioners may elect not to hear appeal, there is remedy available by right which must be exhausted before LUBA has jurisdiction under this section. Lyke v. Lane County, 70 Or App 82, 688 P2d 411 (1984)

Lane County ordinance purporting to permit petitioner to elect whether or not to use local appeal right before appealing to LUBA conflicts with this section. Lyke v. Lane County, 70 Or App 82, 688 P2d 411 (1984)

Voter rejection of annexation proposal was not land use decision appealable to court of appeals; if annexation were appealable, it would be on action by governing body rather than election. Heritage Enterprises v. City of Corvallis, 71 Or App 581, 693 P2d 651 (1984), aff’d 300 Or 168, 708 P2d 601 (1985)

Where defendant’s actions are taken in compliance with land use decision by local government, subject matter of action is within LUBA’s exclusive jurisdiction. Wright v. KECH-TV, 71 Or App 662, 694 P2d 545 (1984), aff’d 300 Or 139, 707 P2d 1232 (1985)

Exhaustion of remedies requirement is merely exception to and limitation on general grant of jurisdiction and does not extend LUBA jurisdiction to review anything that is not land use decision. Heritage Enterprises v. City of Corvallis, 300 Or 168, 708 P2d 601 (1985)

Discretionary rehearing was not one of “remedies available by right” required to be exhausted before seeking LUBA review of local government action. Portland Audubon Society v. Clackamas County, 77 Or App 277, 712 P2d 839 (1986)

Petitioner’s failure to adequately pursue county procedures in appealing small-tract plan amendment from planning commission to governing body did not constitute failure to exhaust local remedies or preclude obtaining LUBA’s review of amendment. Colwell v. Washington Co., 79 Or App 82, 718 P2d 747 (1986), Sup Ct review denied

Although circuit court could not give mandamus relief under this section to compel county to rescind partition approval because county had no mandatory duty to rescind as distinct from enforcing its land use regulations in other ways, subject matter was within court’s jurisdiction as well as or instead of LUBA’s. Doughton v. Douglas County, 90 Or App 49, 750 P2d 1174 (1988)

County’s purported decision not to revoke partition approval did not divest circuit court of jurisdiction under this section where petitioner alleged that there was ongoing pattern of non-enforcement, of which refusal to revoke approval was merely incident. Doughton v. Douglas County, 90 Or App 49, 750 P2d 1174 (1988)

Mandamus remedy of [former] ORS 215.428 is not available once local governing body has issued land use decision even if decision is issued after 120 day deadline; once land use decision is issued, LUBA has exclusive jurisdiction to review that decision pursuant to this section. Simon v. Bd. of Co. Comm. of Marion Co., 91 Or App 487, 755 P2d 741 (1988)

Where opposed action takes form of or is permitted by land use decision, exclusive avenue of review is to LUBA, then to Court of Appeals and this section does not establish circuit court jurisdiction to render second decision on same subject in guise of enforcement. City of Oregon City v. Mill-Maple Properties, Inc., 98 Or App 238, 779 P2d 172 (1989)

Where Metro’s recommendation for freeway corridor in its Regional Transportation Plan was contingent on subsequent decisions aimed at determining or achieving compliance with statewide land use planning goals, it was not final appealable land use decision. Sensible Transportation v. Metro Service Dist., 100 Or App 564, 787 P2d 498 (1990), Sup Ct review denied

Circuit court had no jurisdiction to review county’s determination whether conditional use permit had expired where determination was land use decision, based upon substantial progress of development. Sauvie Island Agricultural v. GGS (Hawaii), Inc., 107 Or App 1, 810 P2d 856 (1991)

Under this statute and ORS 197.015, circuit court authority ends and exclusive land use decisional process begins where granting or denial of permit involves exercise of judgment or interpretation of ordinance, rather than mere ministerial application of ordinance that requires no interpretation or judgment. Campbell v. Bd. of County Commissioners, 107 Or App 611, 813 P2d 1074 (1991)

Local government’s decision to bring enforcement proceeding under this section is not reviewable by LUBA because it is not land use decision. Wygant v. Curry County, 110 Or App 189, 821 P2d 1109 (1991)

Although damages for inverse condemnation are available only through judicial action, inverse condemnation issues can be raised either before LUBA or in judicial forum. Springer v. City of Bend, 111 Or App 136, 826 P2d 1, Sup Ct review denied; Nelson v. City of Lake Oswego, 126 Or App 416, 869 P2d 350 (1994)

Landowner is not required to exhaust all available local appeals where scope of what local regulation permits or prohibits can be determined from particular decision appealed, distinguishing Fifth Avenue Corp. v. Washington County, 282 Or 591, 581 P2d 50 (1978). Nelson v. City of Lake Oswego, 126 Or App 416, 869 P2d 350 (1994)

Circuit court authority to decide land use issues is dependent on nature of proceeding, not nature of issue. Clackamas County v. Marson, 128 Or App 18, 874 P2d 110 (1994), Sup Ct review denied

In marginal cases where enactment could fairly be characterized either as land use regulation or other type of regulation, Land Use Board of Appeals and courts have concurrent jurisdiction to hear challenge. Scappoose Sand and Gravel, Inc. v. Columbia County, 161 Or App 325, 984 P2d 876 (1999), Sup Ct review denied

Where hearing process was terminated before adjudication on merits, person who did not file own appeal but appeared at hearing satisfied exhaustion of remedies requirement for appealing resulting decision. Dead Indian Memorial Road Neighbors v. Jackson County, 188 Or App 503, 72 P3d 648 (2003)

Party may not raise issue before Land Use Board of Appeals if party could have specified issue as ground for appeal before local body, but did not do so. Miles v. City of Florence, 190 Or App 500, 79 P3d 382 (2003), Sup Ct review denied

Law Review Citations

68 OLR 987 (1989)

197.005
Legislative findings
197.010
Policy
197.012
Compact urban development
197.013
Implementation and enforcement are of statewide concern
197.015
Definitions for ORS chapters 195, 196, 197 and ORS 197A.300 to 197A.325
197.020
Land use decision considerations
197.022
Policy regarding ORS 215.433 and 227.184
197.030
Land Conservation and Development Commission
197.035
Officers
197.040
Duties of commission
197.045
Powers of commission
197.047
Notice to local governments and property owners of changes to commission rules or certain statutes
197.050
Interstate agreements and compacts
197.060
Biennial report
197.065
Biennial report analyzing uses of certain land
197.070
Public inspection of assessments prepared by commission
197.075
Department of Land Conservation and Development
197.085
Director
197.090
Duties and authority of director
197.095
Land Conservation and Development Account
197.158
Policy-neutral review and audit of statewide land use program
197.160
State Citizen Involvement Advisory Committee
197.165
Local Officials Advisory Committee
197.173
Findings regarding coordination between state agencies and local governments
197.175
Cities’ and counties’ planning responsibilities
197.178
Development applications
197.180
State agency planning responsibilities
197.183
Local government to notify Department of Aviation of applications received for certain water impoundments
197.186
Removal from buildable lands inventory of land subject to open space tax assessment
197.195
Limited land use decision
197.200
Refinement plan
197.225
Preparation
197.230
Considerations
197.235
Public hearings
197.240
Commission action
197.245
Commission amendment of initial goals
197.250
Compliance with goals required
197.251
Compliance acknowledgment
197.253
Participation in local proceedings required for submitting comments and objections
197.254
Bar to contesting acknowledgment, appealing or seeking amendment
197.256
Acknowledgment deadline for newly incorporated cities
197.265
State compensation for costs of defending compliance actions
197.270
Copies of comprehensive plan and land use regulations
197.274
Review of Metro regional framework plan
197.277
Oregon Forest Practices Act
197.279
Approved wetland conservation plans comply with goals
197.283
Commission to assure protection of ground water resources
197.286
Definitions for ORS 197.286 to 197.314 and 197.475 to 197.490
197.290
Housing production strategy
197.291
Review of housing production strategy
197.293
Identification of cities with unmet housing needs
197.296
Analysis of housing capacity and needed housing by Metro, cities outside of Metro and smaller cities
197.297
Analysis of housing capacity and needed housing in Metro cities
197.298
Priority of land to be included within urban growth boundary
197.299
Metro accommodation of needed housing and school lands
197.301
Metro report of performance measures
197.302
Metro determination of buildable land supply
197.303
“Needed housing” defined
197.304
Lane County accommodation of needed housing
197.307
Needed housing policy
197.308
Affordable housing allowed outright
197.309
Local requirements to develop affordable housing
197.311
Final action on affordable housing application
197.312
Limitation on city and county prohibitions
197.313
Interpretation of ORS 197.312
197.314
Required siting of manufactured homes
197.319
Procedures prior to request of an enforcement order
197.320
Power of commission to order compliance with goals and plans
197.324
Proceedings prior to order of compliance with goals
197.328
Procedures to consider order to comply with goals
197.335
Order for compliance with goals
197.340
Weight given to goals in planning practice
197.350
Burden of persuasion or proof in appeal to board or commission
197.353
Measure 37 timelines
197.360
“Expedited land division” defined
197.365
Application
197.370
Failure of local government to timely act on application
197.375
Appeal of local government to referee
197.380
Application fees
197.390
Activities on federal land
197.395
Application for permit
197.405
Designation of areas of critical state concern
197.410
Use and activities regulated
197.416
Metolius Area of Critical State Concern
197.430
Enforcement powers
197.431
Expansion of speedway destination site
197.432
Definitions for ORS 197.431 to 197.434
197.433
Development of major motor speedway
197.434
Traffic impacts of speedway destination
197.435
Definitions for ORS 197.435 to 197.467
197.440
Legislative findings
197.445
Destination resort criteria
197.450
Siting without taking goal exception
197.455
Siting of destination resorts
197.460
Compatibility with adjacent land uses
197.462
Use of land excluded from destination resort
197.465
Comprehensive plan implementing measures
197.467
Conservation easement to protect resource site
197.475
Policy
197.480
Planning for parks
197.485
Prohibition on restrictions of manufactured dwelling
197.488
Replacement of park destroyed by natural disaster
197.490
Restriction on establishment of park
197.492
Definitions for ORS 197.492 and 197.493
197.493
Placement and occupancy of recreational vehicle
197.505
Definitions for ORS 197.505 to 197.540
197.510
Legislative findings
197.520
Manner of declaring moratorium
197.522
Local government to approve subdivision, partition or construction
197.524
Local government to adopt moratorium or public facilities strategy following pattern or practice of delaying or stopping issuance of permits
197.530
Correction program
197.540
Review by Land Use Board of Appeals
197.610
Submission of proposed comprehensive plan or land use regulation changes to Department of Land Conservation and Development
197.612
Comprehensive plan or land use regulation changes to conform plan or regulations to new requirement in statute, goal or rule
197.615
Submission of adopted comprehensive plan or land use regulation changes to Department of Land Conservation and Development
197.620
Appeal of certain comprehensive plan or land use regulation decision-making
197.625
Acknowledgment of comprehensive plan or land use regulation changes
197.626
Submission of land use decisions that expand urban growth boundary or designate urban or rural reserves
197.627
Meaning of “compliance with the goals” for certain purposes
197.628
Periodic review
197.629
Schedule for periodic review
197.631
Commission to amend regulations to facilitate periodic review
197.633
Two phases of periodic review
197.636
Procedures and actions for failure to meet periodic review deadlines
197.637
Department of Land Conservation and Development may request review by Housing and Community Services Department of certain local housing measures
197.638
Department of Land Conservation and Development may request review by Oregon Business Development Department of local inventory and analysis of industrial and commercial land
197.639
State assistance teams
197.644
Modification of work program
197.646
Implementation of new requirement in goal, rule or statute
197.649
Fees for notice
197.650
Appeal to Court of Appeals
197.651
Appeal to Court of Appeals for judicial review of final order of Land Conservation and Development Commission
197.652
Regional problem-solving process
197.654
Regional problem-solving goals, actions and agreements
197.656
Commission approval of comprehensive plans not in compliance with goals
197.658
Modifying local work plan
197.659
Commission approval of certain changes in comprehensive plans or land use regulations
197.660
Definitions
197.663
Legislative findings
197.665
Locations of residential homes
197.667
Location of residential facility
197.670
Zoning requirements and prohibitions for residential homes and residential facilities
197.677
Policy
197.680
Legislative findings
197.685
Location of farmworker housing
197.707
Legislative intent
197.712
Commission duties
197.713
Industrial development on industrial lands outside urban growth boundaries
197.714
Cooperation of county and city concerning industrial development
197.716
Industrial and employment uses in listed counties
197.717
Technical assistance by state agencies
197.719
Industrial use of abandoned or diminished mill sites
197.722
Definitions for ORS 197.722 to 197.728
197.723
Designation of regionally significant industrial areas
197.724
Review of application for land use permit within regionally significant industrial area
197.726
Jurisdiction on appeal
197.727
Fee for review
197.728
Rules
197.732
Goal exceptions
197.734
Exceptions to certain statewide planning goal criteria
197.736
Commission implementation of ORS 197.340 and 197.732
197.746
Transitional housing accommodations
197.748
Conversion of hotel or motel to emergency shelter or affordable housing
197.752
Lands available for urban development
197.754
Land identified for urban services
197.756
Farm use assessment in area identified for urban services
197.758
Development of middle housing
197.761
Development of residential platted lot
197.764
Application to remove property from within urban growth boundary
197.766
Laws applicable to certain local decisions regarding urban growth boundary
197.768
Local government or special district adoption of public facilities strategy
197.770
Firearms training facilities
197.772
Consent for designation as historic property
197.782
Emergency shelters developed under temporary authorization
197.791
Inventory of local government surplus real property
197.794
Notice to railroad company upon certain applications for land use decision, limited land use decision or expedited land use decision
197.796
Applicant for certain land use decisions may accept and appeal condition imposed on application
197.797
Local quasi-judicial land use hearings
197.798
Rules regulating transportation improvements by city or county
197.805
Policy on review of land use decisions
197.810
Land Use Board of Appeals
197.815
Office location
197.820
Duty to conduct review proceedings
197.825
Jurisdiction of board
197.828
Board review of limited land use decision
197.829
Board to affirm certain local government interpretations
197.830
Review procedures
197.831
Appellate review of clear and objective approval standards, conditions and procedures for needed housing
197.832
Board Publications Account
197.835
Scope of review
197.840
Exceptions to deadline for final decision
197.843
Attorney fees for applicant developing affordable housing
197.845
Stay of decision being reviewed
197.850
Judicial review of board order
197.855
Deadline for final court order
197.860
Stay of proceedings to allow mediation
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