Delayed Item—County Special Review 337 – 4204 Old Blue Creek Road – Campground Special Review and concurrent Variance from 10-Acre to 5-Acre Minimum.  A Special Review request pursuant to Section 27-1002.C, Table 27-1000.1 of the Yellowstone County Zoning Regulations to allow a campground in the Agriculture 10 Acres and Over (A) zoning district, along with associated variance from Table 27-900.1 requiring ten-acre minimum to allow five-acre minimum area per dwelling unit. The proposal consists of a small-scale, owner-operated overnight lodging development on Tract 1A of Amended Tract 1, COS 256, S21, T01 S, R26 E, containing approximately 54.7 acres.  A pre-application neighborhood meeting was held on August 25, 2026, at the subject property. The applicant subsequently revised the site layout to address recommendations concerning roadway approaches and internal circulation. Tax ID: D01962

In conjunction with Special Review 337, the applicant is requesting a variance from Table 27-900.1 of the Zoning Regulations to reduce the minimum lot area requirement from ten acres to five acres per dwelling unit. The proposed development consists of nine camping cabins and one single-family dwelling, for a total of ten dwelling units. Two accessory buildings are also proposed, including a cabin containing office and laundry facilities and a shop building intended for storage and maintenance associated with campground operations.

The subject property encompasses approximately 54.7 acres and is subject to a maximum building lot coverage of 15%, allowing approximately 357,410 square feet (8.2 acres) of building coverage. The preliminary site plan identifies approximately 17,700 square feet of proposed building coverage, representing less than 1% of the total property area and substantially below the maximum permitted coverage. The relatively limited building footprint allows for substantial open space and supports the preservation of the property's rural character. While the requested variance would reduce the minimum lot area requirement per dwelling unit, the proposed development would remain well within the applicable maximum lot coverage standard.

The Planning Division recommends conditional approval of County Special Review 337 allowing a campground in the Agriculture 10 Acres and Over (A) zoning district and the concurrent variance to reduce the minimum lot area from 10 acres to 5 acres, based on the findings of the applicable special review and variance decision criteria and subject to the conditions of approval contained in this report.

OWNERS: Todd J. Teyler and Amani A. Teyler
LEGAL DESCRIPTION: Tract 1-A, Amended Tract 1, C.O.S. 256, S21, T01 S, R26 E
ADDRESS: 4204 Old Blue Creek Road
CURRENT ZONING: Agriculture 10 Acres and Over (A)
EXISTING LAND USE: Undeveloped/agricultural
PROPOSED LAND USE: Campground/overnight lodging consisting of nine cabins, office, future residence, and shop
SIZE OF PARCEL: Approximately 54.7 acres

This application includes a Special Review for a campground and a variance from the minimum lot size requirement. Pursuant to Criterion 9 of the Special Review criteria, both applications require recommendations from the Yellowstone County Consolidated Zoning Commission, with final decisions made by the Yellowstone County Commissioners. This process has been verified with the Yellowstone County Legal Department.

See attachments.

NORTH: Zoning: Residential Manufactured Home (RMH) & Agriculture (A) 
 Land Use: Residential single-family, manufactured homes, & undeveloped ag land
SOUTH: Zoning: Agriculture (A)
Land Use: Bureau of Land Management open space
EAST: Zoning: Agriculture (A) 
Land Use: Bureau of Land Management open space
WEST: Zoning: Agriculture  (A) 
Land Use: Undeveloped agricultural land

The subject property consists of approximately 54.7 acres located at 4204 Old Blue Creek Road adjacent to the Yellowstone River and is zoned Agriculture 10 Acres and Over (A). The applicant is requesting Special Review approval for a small-scale campground consisting of nine overnight lodging cabins. Seven cabins along with an accessory cabin containing the office and laundry are proposed north of Old Blue Creek Road near the Yellowstone River, with two cabins proposed south of the road. A future residence and shop are also proposed on the south side of the property. The project is proposed to develop in phases as applicable permits are obtained and improvements are completed. The preliminary site plan distributes the cabins in proximity to Old Blue Creek Road and provides areas for parking, internal circulation, utilities, wastewater treatment, and supporting improvements. The applicant states that the size of the property provides sufficient area for the proposed development while retaining substantial open space and separation between improvements. Preliminary feasibility work identified no significant planning or engineering constraints that would prevent the project from proceeding, and preliminary soil investigations indicate that onsite wastewater treatment is feasible. 

In conjunction with Special Review 337, the applicant is requesting a variance from Table 27-900.1 of the Zoning Regulations to reduce the minimum lot area requirement from ten acres to five acres per dwelling unit. The proposed development includes nine camping cabins and one single-family dwelling, for a total of ten dwelling units. Additionally, two accessory buildings are proposed, consisting of a cabin accommodating office and laundry facilities and a shop building designated for storage and maintenance operations associated with the development. The requested variance is intended to accommodate the proposed development at a reduced minimum lot area per dwelling unit. The requested variance provides flexibility for the proposed development configuration while retaining the agricultural zoning and the overall rural character of the property.

The special review and variance are intended to operate together. Approval of the Special Review would authorize the campground use as conditioned, while approval of the variance would provide relief only from the identified minimum lot area requirement. Neither approval authorizes additional cabins or relief from other applicable zoning requirements unless specifically stated. 

STAKEHOLDERS
In accordance with applicable public notice requirements and the City-County Planning Division's adopted procedures, staff provided notice of the proposed Special Review and Variance to property owners within 300 feet of the subject property. Notice was also posted on the subject property on September 14, 2026, in a location visible from the public right-of-way, and legal notices were published in the local newspaper on September 11 and September 18, 2026.

The Consolidated Yellowstone County Zoning Commission held a public hearing on October 8, 2026, and voted 3-0 to grant the applicant’s request to defer consideration of the application to the November 12, 2026, meeting.

As of the date of this staff report, no public comments have been received regarding the proposed Special Review or Variance.

SUMMARY

SPECIAL REVIEW FINDINGS
Special Review applications are evaluated under the nine decision criteria contained in Section 27-1622.D of the Yellowstone County Zoning Regulations. The Consolidated Yellowstone County Zoning Commission may recommend approval or conditional approval, and the Board of County Commissioners may approve or conditionally approve the request only upon finding that the applicable criteria are satisfied.

1. The special review use is consistent with the County's growth policy and applicable neighborhood plans, if any.
The proposed development consists of overnight lodging cabins dispersed primarily along the northern portion adjacent to the Yellowstone River. The property is divided by Old Blue Creek Road, with the Yellowstone River forming a significant natural feature along its northern boundary.

The proposed campground is generally consistent with the objectives of the Growth Policy by supporting recreational tourism and compatible rural development while preserving the natural character of the surrounding area. The development would provide overnight lodging for visitors seeking recreational opportunities along the Yellowstone River, including fishing, boating, wildlife viewing, and other outdoor activities, while contributing to the local tourism economy.

Land Use Element

• New developments that are sensitive to and compatible with the character of adjacent City neighborhoods and County townsites.

Open Space and Recreation Element

• Recreation facilities that serve the diverse recreational needs of Billings and Yellowstone County.
• Protect and increase the availability of public access to natural areas and trails along the River.

 2. The establishment, maintenance, or operation of the special review use will not be detrimental to or endanger public health, safety, morals, comfort, or general welfare.
The proposed development is limited to nine overnight lodging cabins on approximately 54.7 acres. The size of the property provides an adequate area for separation between the cabins and surrounding properties. Following the pre-application neighborhood meeting, the applicant revised the site layout to address recommendations regarding roadway access and internal circulation. Future development will also be required to comply with applicable access, sanitation, wastewater, and water supply regulations. A condition of approval has been included requiring the installation of a dry hydrant for fire protection. Additionally, the zoning regulations require that the campground be screened from adjoining properties by a solid fence not exceeding six feet in height. This fencing will be required along the western property boundary. A condition of approval establishing quiet hours and use of cutoff shields for any outdoor lighting have also been added to minimize potential impacts on surrounding properties. Collectively, these conditions of approval and regulatory requirements help protect public health, safety, comfort, and general welfare while minimizing potential impacts on neighboring properties.

3. The site for the proposed use is adequate in size and topography to accommodate the use while meeting the other requirements of the Zoning Code.
Section 27-1005.I.2 states that the campground shall be a minimum of 2 acres inclusive of rights-of-ways, easements or dedications to accommodate the use.  The subject property is approximately 54.7 acres, with the area for the campground, inclusive of rights-of-way and easements, approximately 4.3 acres. The campground area meets the Zoning Code requirements associated with the proposed use. However, the applicant is requesting nine camping cabins and one single-family dwelling as the primary use. The Agriculture Zoning District allows for multiple primary use structures as long as the acreage requirements are met individually for each structure. Therefore, the applicant is requesting a variance from the minimum lot size requirement from 10 acres to 5 acres. The proposed development is contingent upon concurrent approval of the requested variance to reduce the minimum lot area requirement from ten acres to five acres per dwelling unit, allowing for a total of ten dwelling units.

4. The special review use will not be injurious to the use and enjoyment of other property in the immediate vicinity, nor substantially diminish or impair property values within the neighborhood.
The surrounding area contains agricultural, residential, and recreational uses. The proposed cabins will be screened from the adjacent properties with a fence and located in proximity to Old Blue Creek Road. Additionally, the campground is required to follow quiet hours. The development is intended to retain substantial open space and maintain the rural character of the property. The limited number of cabins, size of the property, and ability to establish appropriate setbacks, buffering, access, and operational requirements provide reasonable measures to limit impacts on neighboring properties. 

5. The special review use will not impede the normal and orderly development and improvement of surrounding property for uses permitted in the district.
The proposed development is contained within the approximately 54.7-acre subject property and does not require development or improvements on adjoining private property.  The proposed development is not expected to interfere with the use or future development of surrounding properties.  

6. Conditions necessary to protect public health, safety, and general welfare can be established.
Planning staff recommends ten conditions of approval, which are listed collectively within the variance review criteria. These conditions of approval include meeting road and driveway standards, providing a dry hydrant, obtaining DEQ approval, observing quiet hours, using full cutoff shields for outdoor lighting. These conditions of approval protect public health, safety and general welfare adequately address potential impacts associated with the project.

7. Adequate utilities, access roads, drainage, and/or necessary facilities have been or are being provided.
The preliminary site plan identifies internal access drives, parking areas, a shared well, septic systems, and associated drainfield areas intended to serve the proposed development. All proposed water supply, wastewater treatment, drainage, access, and other necessary infrastructure and facilities shall be subject to applicable County and regulatory agency review, approval, and permitting requirements prior to development.

8. Adequate measures have been or will be taken to provide ingress and egress to minimize traffic congestion in public streets.
Access to the subject property is provided by Old Blue Creek Road, which is established as a right-of-way easement extending through the central portion of the parcel. The preliminary site plan identifies internal circulation routes and designated parking areas intended to accommodate traffic generated by the proposed development. Final access locations and any necessary roadway improvements shall be subject to the applicable requirements of the Yellowstone County Road Policy and review and approval by Yellowstone County Public Works. Given the limited scale of the proposed development and the ability to provide adequate access and internal circulation, staff finds that appropriate measures have been or can be implemented to ensure safe and efficient ingress and egress while minimizing potential traffic impacts on Old Blue Creek Road.

9. The special review use shall, in all other respects, conform to the applicable regulations of the district in which it is located, except as such regulations may, in each instance, be modified by the County Commission.
The subject property is zoned Agriculture 10 Acres and Over (A). Pursuant to Section 27-1002.C, Table 27-1000.1 of the Yellowstone County Zoning Regulations, a campground is permitted within the Agriculture zoning district upon approval through the Special Review process. In conjunction with Special Review 337, the applicant is requesting a variance from Table 27-900.1 to reduce the minimum lot area requirement from ten acres to five acres per dwelling unit to accommodate nine camping cabins and one single-family dwelling. The Special Review can be approved while denying the variance request, but it would require the applicant to modify their site plan to accommodate one single family home and four campsites. Should the variance be approved, the development shall comply with all applicable zoning and development standards, except for the specific relief granted through the special review and variance, along with conditions established through the approval process. The required Master Site Plan review will provide further evaluation of the proposed development for compliance with applicable regulations, including site layout, access, parking, infrastructure, and appropriate buffering or screening to minimize potential impacts on adjacent properties. Additional conditions or improvements may be required through this review to address site-specific considerations and ensure compatibility with surrounding land uses. Any future expansion or modification beyond the scope of these approvals shall be subject to applicable review and approval requirements.

VARIANCE FINDINGS
The concurrent variance is evaluated under Section 27-1626(D) of the Yellowstone County Zoning Regulations.

1. That special conditions and circumstances exist which are peculiar to the land, the lot or something inherent in the land which causes hardship, and which are not applicable to other lands in the same district.
The subject property contains approximately 54.7 acres with unique physical characteristics that constrain the location and arrangement of development. The property is divided by Old Blue Creek Road, with the Yellowstone River forming a significant natural feature along the northern portion of the site. The property's varying topography, proximity to the river, and associated floodplain limitations restrict the areas suitable for building construction and development. Consequently, although the parcel contains substantial acreage, not all portions of the property are equally suitable or available for the placement of structures, access improvements, utilities, and wastewater treatment facilities. The proposed campground is designed as a coordinated development with nine cabins dispersed throughout the property along with one single family dwelling. Reducing the minimum lot area from 10 acres to 5 acres provides flexibility to accommodate the proposed configuration while retaining substantial open space and separation between improvements. 

2. That a literal interpretation of the provisions of this Zoning Code would deprive the applicant of rights commonly enjoyed by other tracts in the same district.
The campground use may be considered in the Agriculture zoning district through the Special Review process. The applicant is therefore not requesting authorization for a prohibited use but is requesting dimensional relief necessary to accommodate the proposed development. Strict application of the 10-acre minimum would limit the proposed configuration of the campground. The property contains approximately 54.7 acres providing sufficient area for cabins, access, parking, utilities, setbacks, and open space. There have been several properties granted a variance for minimum lot size from the Board of Adjustments (governing board for variances prior to formation of the Consolidated County Zoning Commission) as seen in the included Zoning History. 

3. That granting the variance requested will not confer on the applicant any special privilege that is denied by this Zoning Code to other land in the same district.
The requested variance is specifically limited to reducing the minimum lot area from 10 acres to 5 acres for the development associated with Special Review 337. It does not authorize additional uses or relief from other applicable zoning standards. Other properties within the Agriculture zoning district seeking comparable relief would remain subject to the same variance process and would be required to demonstrate compliance with the applicable decision criteria. The Board of Adjustments have approved other lot size variances in the past as seen in the included Zoning History. 

4. That the granting of the variance will be in harmony with the general purpose and intent of this Zoning Code and with the growth policies.
The requested variance does not alter the underlying Agriculture zoning designation or authorize a use otherwise prohibited within the district. The proposed campground remains subject to Special Review approval and associated conditions to ensure compatibility with surrounding properties. The development consists of nine overnight lodging cabins and one single-family dwelling on approximately 54.7 acres, with a site design intended to preserve substantial open space and maintain the property's rural character. The applicant intends to establish a small-scale campground that complements the recreational character of the Yellowstone River corridor. The proposal appears generally consistent with the Yellowstone County Growth Policy's objectives of preserving rural character, maintaining open space, supporting recreational opportunities, and accommodating compatible development. The subsequent Master Site Plan review will further evaluate site-specific considerations and may establish additional requirements for access, infrastructure, landscaping, and buffering to minimize potential impacts on adjacent properties.

RECOMMENDED CONDITIONS OF APPROVAL
Planning staff recommends the following conditions apply collectively to Special Review 337 and the associated variance:

1. Approval of Special Review 337 authorizes the establishment and operation of a campground on the property located at 4204 Old Blue Creek Road, legally described as Tract 1-A, Amended Tract 1, Certificate of Survey No. 256, S21, T1S, R26E, together with the associated variance from the minimum lot area requirement of ten acres per dwelling unit to five acres per dwelling unit, as established in Table 27-900.1 of Section 27-901 of the Yellowstone County Zoning Regulations. This approval shall be strictly limited to a maximum of twelve (12) buildings, consisting of nine (9) camping cabins, one (1) single-family dwelling, one (1) accessory building containing office and laundry facilities, and one (1) accessory shop building for storage and maintenance. Development shall substantially conform to the site plan submitted with the application, subject to any modifications or additional requirements imposed through the Master Site Plan review process. No additional variances, deviations, or exceptions from the Yellowstone County Zoning Regulations are authorized or implied by this approval.
2. Any expansion, additional buildings, change in use, or substantial modification to the approved site layout shall require further review and approval by the appropriate authority prior to implementation as applicable under the Yellowstone County Zoning Regulations and Yellowstone County Buildings for Lease or Rent Regulations.
3. Prior to development of the site, the applicant/developer shall apply for and receive approval of a Master Site Plan and Zoning Compliance permit and shall comply with the design standards within the Yellowstone County Zoning Regulations and the Yellowstone County Road Manual. 
4. All required approvals for water, wastewater and stormwater shall be obtained from Montana Department of Environmental Quality. 
5. A 30,000-gallon dry hydrant shall be provided for fire suppression. Dry hydrant connection and installation shall be approved by Blue Creek Volunteer Fire Department. Proof of installation shall be provided to the Planning Division and Yellowstone County Department of Emergency Services prior to operation of the campsite.
6. All access, driveway, and roadway improvements shall comply with the Yellowstone County Road Policy and receive approval from Yellowstone County Public Works. Design of internal and external driveways and roads shall meet the standards within the Yellowstone County Buildings for Lease or Rent regulations. 
7. Landscaping shall comply with applicable Yellowstone County requirements, including required solid fencing, landscaping buffer and tree plantings along the west property line to provide buffering from adjacent property.
8. Any signs associated with the approved use shall be subject to separate review and permitting in accordance with the Yellowstone County Zoning Regulations.
9. All exterior lighting shall be contained on the site through the use of full-cutoff fixtures, shielding, or other appropriate measures to prevent light from spilling onto adjacent properties.
10. The campground shall observe quiet hours between 10:00 p.m. and 7:00 a.m. During quiet hours, noise shall not be audible beyond the boundaries of the campground.
11. The campground operator shall designate a responsible individual to serve as the primary point of contact for complaints or concerns related to campground operations, including noise disturbances and compliance with the conditions of approval. The name, address, and telephone number of the designated contact person shall be provided to Yellowstone County Code Enforcement, County Planning, and the Board of County Commissioners. The operator shall ensure that this contact information remains current and promptly notify the respective County offices of any changes.
12. The approval of this special review, the associated variance, and all conditions of approval shall run with the land and shall apply to current and subsequent property owners, operators, managers, leaseholders, heirs, successors, and assigns.