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• COLORADO
April 25, 2012
Mr. Tom Parko, Planning Manager
Weld County Department of Planning Services
1555 N 17th Ave
Greeley, Colorado 80631
Subject: Weld County referral —Use by Special Review(USR12-0005)- Musket
Corporation/Windsor Renewal 1, LLC
Dear Tom,
The Windsor Town Board reviewed the Windsor Planning Commission's recommendation
regarding the abovementioned proposal at their regular meeting of April 23, 2012. The
Town Board concurs with the Planning Commission's recommendation. However,
additional information from the Town Manager, Town Attomey and applicant was
presented to the Town Board regarding discussions that may potentially lead to resolution
of some of the issues raised in this recommendation. Based upon this potential, the Town
and applicant will continue to discuss and will apprise Weld County of any progress that
may be made.
• The Town previously provided referral responses to Weld County regarding SPR12-0001
(amended Kodak's site plan), RECX12-0013 (created 10-acre parcel) and SPR12-0003
(loop rail extension) and,although those applications may have been viewed simply as
precursors to the present USR, each of those referrals raised their own separate issues
that require further consideration. Therefore, the comments contained herein pertain to
the cumulative impacts of the subject USR application and the aforementioned
applications.
The subject property is located within the Town's Growth Management Area(GMA)and is
contiguous to the Town's corporate limits. The subject USR proposes direct access to Town
of Windsor streets and further proposes that the Town of Windsor provide sanitary sewer
service.
Use by Special Review Questionnaire Response#2, Goal 2 states,"Conceptual discussions
of annexation into the Town of Windsor have occurred." The applicant has not discussed
annexation with the Town.
Water and Sewer Utilities:
The referral materials indicate that water is proposed to be provided by the City of Greeley.
The referral materials state in Use by Special Review Questionnaire Response#5,
"...sanitary sewer service will be provided by the Town of Windsor utilizing existing
infrastructure owned by Kodak...". The applicant has not submitted a request for sanitary
• sewer service to the Town.
301 Walnut Street •Windsor,Colorado•80550• phone 970-674-2400 •fax 970-874-2456
www.windsorgov.com
EXHIBIT
2012-1360
However,Windsor currently provides sanitary sewer service to all of the surrounding former •
Kodak buildings, including the adjacent Carestream facilities and buildings now owned by the
applicant's parent company(the Broe Group), and the proposed facility is also located within
the Town of Windsor's sewer service area as depicted in the North Front Range Water
Quality Planning Association's Areawide Water Quality Management Plan (208 Plan). The
applicant needs to clarify how sewage from the proposed site will be treated (both domestic
and industrial)and provide documentation of any necessary agreements and/or approvals
for treatment of sewage.
Traffic Impacts:
The referral materials do not address rail traffic impacts.
The Traffic Impact Analysis contains some apparent conflicts with the submittal package
and inaccuracies specifically as follows:
(1) Figure 2 (page 3) of the report does not depict the truck route access to the public
street network so the proposed direction of travel to and from the site is unclear.
All of the trip generation and text in the report indicate that traffic is coming from
the west and exiting to the west on Eastman Park Drive. The truck haul routes
need to be clearly identified and documented.
(2) Page 4 of the report states the posted speed limit on Eastman Park Drive is 35
mph. However, the actual posted speed is 45 mph.
(3) Page 15 of the report states that the Town of Windsor Comprehensive Plan •
indicates that the future width of SH 257, Crossroads Blvd., and Eastman Park
Drive will be four(4)through lanes. However, Eastman Park Drive is planned to
be two (2)through lanes rather than four(4).
The Traffic Impact Analysis indicates that Musket will generate approximately 212 daily trips
(page 7). According to the CDOT Access Code 2.3(4) (e), "Unless specifically noted, all
criteria in the Code are based on automobile operations and performance. To allow for the
Impact of larger trucks, buses and recreational vehicles, 'passenger car equivalents"shall be
determined. A passenger car equivalent of 3 for each bus and all trucks and combinations of
40 feet in length ()clanger, or a passenger car equivalent of 2 for each vehicle or combination
at or over 20 feet in length but less than 40 feet shall be used for these purposes." However,
the traffic study does not count each truck as 3 passenger car equivalents when analyzing
the traffic. Therefore the study appears to account for only one third of the passenger car
equivalents.
The traffic study indicates that SH 257, SH 14 and US 34 will be utilized as haul routes, as
those are the designated hazardous materials hauling routes in the area(page 9). The
analysis also indicates that 80 percent of truck trips will be to the north(page 8). The Town
understands that, based upon clarification from Felsburg, Holt and Ullevig who prepared the
analysis,truck traffic related to this USR will travel east of SH 257 on SH 392 and not west
through downtown Windsor. These haul routes need to be clarified and memorialized in the
Traffic Impact Analysis, as well as in development agreements which provide for penalties for
non-compliance up to and including revocation of project approval.
•
• The Town of Windsor is opposed to truck traffic associated with the proposed USR12-
0005 accessing Eastman Park Drive via Litho Plate Drive. The original Kodak plant site
was not designed with Litho Plate Drive serving truck traffic. The oil trucks should use
Kodak Drive,which has direct access to SH 257, and has historically been the designated
truck route for the Kodak plant. Left turn lanes, acceleration and deceleration lanes
already exist at the intersection of SH 257 and Kodak Drive. Eastman Park Drive already
carries significant truck traffic from businesses such as Metal Container Corporation,
TMSI, Owens-Illinois, Hexcel, Vestas and Front Range Energy that have no alternative
way to get to SH 257 and future development in Great Western Industrial Park will also
need to use Eastman Park Drive.
Master Drainage Plan:
The Town has serious concerns about the Impact of the rail on the future construction of a
large drainage channel identified in the Town's Drainage Master Plan. As stated in the
referral materials, the loop railroad is located in the John Law Floodplain. The drainage
channel generally follows the John Law Floodplain.
Question#14 in the Weld County questionnaire requests an explanation of how the
development proposal is compatible with future development of the area as projected by
the Comprehensive Plan or Master Plan of affected municipalities. The Town of
Windsor's Comprehensive Plan specifically includes the following policy: "Require all
developments to design and construct drainage facilities in accordance with Windsor's
Storm Drainage Master Plan." The Town of Windsor adopted the Storm Drainage Master
Plan in 2003.
•
In 2007, at the request of the Great Western Development Company(a Broe Company,
as is Windsor Renewal 1, LLC),the planned location of the drainage master channel was
moved to a location along the corridor between Kodak and the Great Western Industrial
Park. The master drainage channel was then taken through hydraulic modeling and final
design at this location at a cost to the Town of$148,000 (attached is an overall plan of the
channel). Adding three rail crossings over the channel alignment will greatly add to
redesign and construction costs.
Broe owned the land at the time they proposed the channel relocation (see attached
minutes of September 12, 2007 Water and Sewer Board meeting) and they remain the
current owner of the property. However, the design of the proposed loop railroad
completely ignores the master drainage channel design and location. Any approval of the
loop railroad needs to be contingent on addressing design conflicts with the Drainage
Master Plan channel design. Additionally, approval should be contingent upon an
agreement requiring the railroad to absorb all costs associated with design, railroad
review/permitting and construction of any future rail crossings when the channel is
constructed.
Due to the fact that(a)the Town of Windsor has already invested $148,000 in the design of a
planned drainage channel in a location that was mutually agreed upon between the applicant
and the Town, and (b)the applicant's change in plans associated with the proposed loop rail
will cause the drainage channel to require redesign,the applicant shall:
•
(1) Address all design conflicts with the Town of Windsor Drainage Master Plan channel •
design solely at applicant's expense.
(2) Agree to either(a)absorb all costs associated with design and construction of any
proposed, existing or future rail crossings of the currently designed channel once it is
constructed; or(b)to propose an alternative channel alignment acceptable to the
Town and provide final design drawings and associated floodplain study for
alternative alignment
(3) Agree to waive all fees that the railroad would typically charge the Town for review,
permitting and construction of any future channel crossings.
Containment:
(1) The truck off-loading area will require concrete secondary containment capable of
containing 110% of the contents of the largest vessel.
(2) The pump area will require concrete secondary containment capable of containing
110% of the contents of the largest vessel. The pump area could use High
Density Polyethylene (HDPE) liner as long as there are berms capable of
containing a spill and a sump that diverts a spill to the tank storage area.
(3) The tank area will require concrete secondary containment capable of containing
110% of the contents of the largest vessel.
(4) All other tanks and off-loading areas must have containment walls to capture
110% of any potential spillage in those areas.
(5) The existing wall around the 2 existing tanks must be high enough to not only
contain 110%of the volume stored in those tanks but the wall needs also to be at
least 2 feet higher than the 100 year flood elevation.
(6) Musket needs to address any areas where spillage of petroleum can occur so that •
water runoff cannot be allowed to go into the sanitary sewer which flows to
Windsor's wastewater treatment plant because petroleum will destroy the
microorganisms in the treatment process and therefore render the plant
inoperable.
(7) The northern tank that is proposed for oil storage is apparently damaged and
contains a crack that will need to be repaired and Inspected by the appropriate
authorities.
(8) The applicant shall address all concerns of Windsor-Severance Fire Rescue.
Weld County Code:
The Weld County Code encourages annexation of such properties and utilization of urban
services such as in the below examples:
Section 22-2-40. Urban development Goals and Policies states:
A. UD.Goal 1. Concentrate urban development within exieting municipalities,
an approved Intergovernmental Agreement urban growth area, the Regional
Urbanization Areas, County Urban Growth Boundary Areas, Urban Development
Nodes or where urban infrastructure Is currently available or reasonably
obtainable.
C. UD.Goal 3. Until Intergovernmental Agreements are in place with a particular
municipality, define a standard County Urban Growth Boundary as a one-
quarter-mile perimeter around the municipal limits that are currently •
• physically served by central sewer(whether by the municipality or other
recognized agencies).
1. UD.Policy 3.1. In the absence of an Intergovernmental Agreement urban growth
area, the County recognizes a County Urban Growth Boundary.
3. UD.Policy 3.3. Inside the County Urban Growth Boundary. urban-type uses
and services are planned and supported, and annexation is encouraged.
The surrounding Kodak, Carestream and former Kodak facilities are all currently served
with Town of Windsor sanitary sewer.
Summary:
The Town of Windsor,Weld County and Great Western Development Company have
worked together with great success to attract companies such as Owens-Illinois, Front
Range Energy and Vestas to the Great Western Industrial Park. The Town annexed the
Great Western 2"d, 3'd and 4'h Annexations,which encompasses the subject property, in
early 2007 and since that time the Town and Great Western Development Company have
incrementally installed infrastructure to serve the needs of each respective user. Now that
portions of the Kodak property are being proposed for redevelopment, those projects
should be incorporated into the Great Western Industrial Park so that they may be
reviewed comprehensively rather than in a piecemeal fashion in terms of the cumulative
needs and impacts of the entire industrial park.
Therefore, based upon the referral materials and the aforementioned information, the
• Windsor Town Board and Planning Commission recommend that Weld County deny the
proposed USR and refer the applicants to the Town of Windsor for annexation. The Town
will keep Weld County apprised should on-going discussions between the Town and the
applicant result in resolution of any of the aforementioned issues.
Thank you for the opportunity to review this proposal. Please let me know if you have any
questions.
Sincerely,
Scott Ballstadt, AICP
Chief Planner
Enclosures: 9/12/07 Windsor Water and Sewer Board minutes; Law Basin
Master Drainage Channel Plan; and PowerPoint slides
pc: John Vazquez, Mayor
Gale Schick, Chairman, Planning Commission
Kelly Arnold, Town Manager
Joseph Plummer, AICP, Director of Planning
Clay Drake,Windsor Renewal 1, LLC, property owner
Bruce Bowden, Musket Corporation, applicant
•
ATTORNEYS&COUNSELORS AT LAW
633 SEVENTEENTH STREET,SUITE 3000
DENVER,COLORADO 80202
TELEPHONE:(303)297-2900
FAX:(303)298-0940
W W W.SHERMANHOW ARD.COM
Joan Blaik
Direct Dial Number: (303)299-8073
E-mail: JBlaik@ShermanHoward.com
May 2, 2012
Via E-Mail
Mr. Tom Parko, Planner
Weld County Department of Planning Services
1555 North 17th Avenue
Greeley CO 80631
Re: Case#USR 12-0005
Windsor Renewal I LLC
Windsor Transloading Facility
Dear Mr. Parko:
• We represent Carestream Health, Inc. ("Carestream"), which owns property adjacent to
the site of the proposed Windsor Transloading Facility (the "Facility"). For the reasons set forth
below, Carestream does not believe that Windsor Renewal I LLC ("WR"), which filed the
Application on February 3, 2012 as authorized agent for Musket Corporation ("Musket"), has
met its burden of proving that it has met the standards and conditions contained in Sections 23-
2-220(A) and 23-2-230(B), Weld County Code (the "Code"), as well as the standards and
conditions of Sections 23-2-240 and 23-2-250 of the Code. The Application does not clearly
identify how the Applicant intends to comply with the requirements of the Code for the Use by
Special Review process. Moreover, many of the statements made in the Application and the
Map of the Windsor Transloading Facility which is part of the Application and based on which
Weld County is performing its analysis are unclear, inaccurate or incomplete.
The lack of complete information and inaccuracies in the Application make it very
difficult to evaluate the adequacy of the utilities and access roads on which the Facility will rely,
to address the shared use of those facilities by neighboring private parties, or to evaluate the
impact of the Facility on the operations of neighboring property owners. For example, as
described below, Eastman Kodak Company ("Kodak") and Carestream are parties to multiple
easement agreements and a services agreement designed to facilitate the provision of a complex
private integrated system of water, sewer, fire protection and other utilities (some of which the
Applicant intends to use) and which are not designed for use by an unknown number of
potential occupants of the "Industrial Park." Carestream, Kodak and parties developing
property within the property recently acquired by WR, including Musket, each need an
• opportunity to gain an adequate understanding of the impacts new uses will have on these
BUS_RE\4333499.1 EXHIBIT
5/�S/IY
052_ 12--coos
Sherman & Howard L.L.C.
Mr.Tom Parko, Planner
Weld County Department of Planning Services
May 2, 2012
Page 2
systems, ensure the systems have the capacity to handle the growing demand, and allocate
related responsibilities among the parties.
However, Carestream has not been approached either by Musket or WR to discuss the
plans for the Facility and, although it has been negotiating with Great Western Railway (an
affiliate of WR) with respect to the use of Carestream's rail tracks to the south of the proposed
Facility and specifically to service the Facility as well as other customers of Great Western
Railway, none of the information and plans contained in the Application was provided to it by
either WR or Great Western Railway. Carestream requests that Musket be required to add
additional detail to its Application in compliance with the requirements of Weld County Code
Sec. 23-2-260 and to permit the opportunity for adequate evaluation of the Application's
satisfaction of the requirements for its approval. Carestream also requests that, as contemplated
in Section 23-2-210(B(4) of the Code, Musket and WR be encouraged to communicate with
Carestream and Kodak regarding the systems of private utilities and roads which Musket and
WR propose to use.
BACKGROUND •
In 1968 Kodak announced that it had acquired property in unincorporated Weld County
and over a period of decades developed a manufacturing campus (the "Kodak Campus")
serviced by a private integrated system of utilities, roads and railroads designed specifically to
serve the manufacturing uses to which Kodak put the property. A map showing the Kodak
Campus,part of which was acquired by Carestream in 2007 and 2010, as well as the remaining
property owned by Kodak is attached as Exhibit A. In 2007 Kodak sold its medical imaging
business to Carestream and, with it, those facilities on the Kodak Campus used in connection
with that business on two parcels of land (the "North Parcel" and the "South Parcel") located to
the west of the property where the proposed Facility is to be located. In 2010 Carestream
acquired additional property from Kodak located to the south of the South Parcel and south of
the proposed location of the Facility. As part of the 2007 and 2010 transactions, Kodak and
Carestream entered into multiple easement agreements (the "Easement Agreements") and a
Services Agreement dated April 30, 2007 which was superseded and replaced in 2010 by a
Restated Services Agreement (the "Services Agreement"), pursuant to which they provide
services to each other in order to facilitate their respective manufacturing processes. The
Easement Agreements and the Services Agreement are designed to support the provision of
utilities and road and rail services to the Kodak Campus. In December 2012 WR acquired all of
the remaining property owned by Kodak with the exception of a parcel located between the
North Parcel and the South Parcel where Kodak continues its manufacturing process (the "WR
Property").
•
BUS_RE\4333499.1
• Sherman & Howard L.L.C.
Mr.Tom Parko,Planner
Weld County Department of Planning Services
May 2,2012
Page 3
The Services Agreement sets forth Kodak's and Carestream's rights and obligations in
providing various services to each other. Only Kodak and Carestream are parties to the Services
Agreement which does not contemplate providing services to any third parties. Neither the
utilities, roads and rail services in place on the Kodak Campus and made the subject of the
Services Agreement nor the Easement Agreements were designed or intended to serve the future
redevelopment of the Kodak Campus as part of a completely different "Industrial Park" with
different uses and demands. In order to facilitate the development of the WR property and the
Facility as part of a larger "Industrial Park" the utilities and transportation infrastructure needs
to be evaluated and WR and Carestream need to work out new agreements that provide for the
growth and expansion of industry in the area without compromising existing systems of limited
capacity.
OBJECTIONS
We have the following objections to the Applicant's Questionnaire Response filed with
• the Application.
• The Applicant must show that adequate water will be available to the site. Item 5
of the Application states that water will be provided by the Greeley Water District. Page
1 of the Map shows the location of"proposed water service" which appears to connect
with "existing water per Kodak Sketch (labeled service water)" also shown on the Map.
The water supply to the Kodak Campus is the subject of a Water Agreement dated May
11, 1978 between Kodak and the City of Greeley, as amended by an Amendment to
Water Agreement dated October 3, 1995, and an Assignment and Amendment to Water
Agreement dated April 30, 2007 among Kodak, Carestream and the City of Greeley (the
"Greeley Water Agreement"). In 2007 Kodak assigned to Carestream a portion of
Kodak's right to receive treated water under the Greeley Water Agreement and Greeley
agreed to provide water to Kodak and Carestream in consideration of the provision of
raw water to Greeley by Kodak and Carestream. Pursuant to the Greeley Water
Agreement, Kodak is presently obligated to pay Greeley for treated water charges
relating to the Kodak and Carestream property and Carestream is required to pay Kodak
for treated water charges as provided in the Services Agreement. The Application does
not disclose what water the Applicant intends to use and we note that the Applicant has
no right to use the treated water provided to Carestream under the Greeley Water
Agreement.
• The Applicant must show that adequate sewer service will be available to the site.
Item 5 of the Application states that sanitary sewer service will be provided by "the
• Town of Windsor utilizing existing infrastructure owned by Kodak". Only parts of the
BUS_RE14333499.1
Sherman & Howard L.L.c. •
Mr.Tom Parko,Planner
Weld County Department of Planning Services
May 2,2012
Page 4
sanitary sewer system are owned by Kodak. The remainder is owned by Carestream and
Carestream's and Kodak's rights and obligations for the provision of the sanitary sewer
service are governed by the Services Agreement. Page 1 of the Map appears to depict a
proposed sanitary sewer line. Carestream does not know whether the Applicant intends
to connect a new sewer line to the existing sanitary sewer system and has not yet
determined whether connection of a new sewer line to the sanitary sewer system is
permitted under the Kodak/Carestream agreements or will overwhelm the existing
sanitary sewer system.
• The Applicant must show that adequate fire protection measures are available on
the site. Item 5 of the Application appears to state that Windsor Fire Protection District
will provide fire protection service, but it does not tell us how the Fire Protection District
will provide this service or where it will obtain water for fire protection. Fire protection
water service is provided by Kodak to Carestream in accordance with the terms of the
Services Agreement and the Applicant has no right to use the water owned by
Carestream under the Greeley Water Agreement. •
• Uses must comply with storm water management standards. Item 8 of the
Application states that the development of the site will use the existing storm water
facilities. Kodak and Carestream are parties to an Amended and Restated Easement
Agreement (Reciprocal Storm Sewer Easements) which permits each of them to use the
other's property for the flow of storm water over their property. The Storm Water
Easement Agreement requires each party to comply with all laws and regulations, all
applicable requirements of the Colorado Discharge Permit System-Stormwater Permit,
and the requirements of the Kodak Colorado Division Storm Water Management Plan.
The Application does not discuss the implications of these requirements. Moreover,
there is nothing in the Application to assure Carestream that the Applicant has
considered any of the issues related to storm water discharge over Carestream's
property,that the Applicant has an adequate spill prevention and containment plan or the
fact that the Poudre River may be contaminated if there is an oil spill at the Facility. The
Application says only that the development of the site will use the existing storm water
facilities and not impede the historical flow routes.
There are a number of statements made in the Application that are inaccurate or
misleading. For example:
(1) Page 1 of the Map submitted with the Application mistakenly represents that the
two cooling towers on the Carestream property are abandoned and that the building to the east
•
BUS_RE'4333499.I
Sherman & Howard L.L.C.
Mr.Tom Parko, Planner
Weld County Department of Planning Services
May 2, 2012
Page 5
of the towers is not in use. The towers and building are integral components of Carestream's
power plant operation which serves its manufacturing activities on the South Parcel.
(2) Applicant also states that adequate roadway and rail infrastructure has been
established to serve the existing and new uses within the "Industrial Park". Carestream and
Great Western Railway (an affiliate of WR) are presently negotiating a license for Great
Western Railway to use Carestream's railroad tracks to accommodate the proposed rail traffic
contemplated by the Application, but that license is not yet in place. We would also point out
that Applicant has not specified which roads the 7,800 gallon tanker trucks will use to deliver
the crude oil. Only certain roads within the former Kodak Campus are intended and designed to
support heavy loads. In 2007 Kodak granted Carestream easements on roads throughout the
former Kodak Campus. These easement agreements include obligations for maintenance and
repair of the roads which could be significantly increased by heavy tanker trucks using the
roads. Carestream is also concerned that tanker trucks making 14 round trips spread out
throughout the day (Application, paragraph 5) will adversely affect Carestream's ability to cross
from the parcel immediately south of the Facility to its manufacturing plant.
In conclusion, the Application is lacking the necessary detail for the County to analyze
its compliance with the Code or for Carestream to determine what effect the Facility will have
on Carestream's operations on its property. The activity contemplated by Applicant at the new
Facility is not designed to fit within the complex system of easement and other agreements
between Kodak and Carestream which were intended to serve their manufacturing processes on
the former Kodak Campus.
V ruly yours,
Blaik
JB/vlh
cc: Julie Lewis,Carestream Health, Inc.
Mark Caton, Carestream Health, Inc.
Chris Schmachtenberger, Carestream Health,Inc.
Alex Yeros,Windsor Renewal I LLC
Bruce Bowden,Musket Corporation
•
DUS_RE\4333499.1
EXHIBIT A
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