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Home My WebLink About961122.tiff RESOLUTION RE: RECOGNITION OF WELD COUNTY OPEN SPACE PLAN WHEREAS, the Board of County Commissioners of Weld County, Colorado, pursuant to Colorado statute and the Weld County Home Rule Charter, is vested with the authority of administering the affairs of Weld County, Colorado, and WHEREAS,Weld County, Colorado, has contracted with EDAW, Inc., for an open space study for Weld County, which study has been presented to the County, and WHEREAS, after study and review, the Board wishes to recognize the Weld County Open Space Plan at this time for informational purposes, and WHEREAS, the effect of such recognition is to allow the Planning Commission and the Board of County Commissioners to consider the information found in the Open Space Plan when considering land-use issues, and WHEREAS, certain portions of the Open Space Plan will be considered for incorporation into the Weld County Comprehensive Plan Ordinance No. 147 as an amendment to said document following appropriate notice and hearings. NOW, THEREFORE, BE IT RESOLVED by the Board of County Commissioners of Weld County, Colorado, that the Weld County Open Space Plan be, and hereby is, recognized as an informational document. The above and foregoing Resolution was, on motion duly made and seconded, adopted by the following vote on the 24th day of June, A.D., 1996. BOARD OF COUNTY COMMISSIONERS WELD COUNTY, COLORAD (t/a,:u( __IA S /WI dam_ A Barbara J. Kirkmeyer, Chsair $jg61 i0 • ty Clerk to the Board ©U10 L k_Y11.�.�C Georges. Baxter, Pro-Tem e � Deputy Clerkly. the Board )c,h4.L Dale K. Hall APP D AS TO FORM: Constance L. Harbert (X' /O11 W. H. Webster (i-r+> 961122 �C ; n.) el9 5 EMW, /tic PL0073 N! 'v 1 "s av.f 5 ;a5"•W�,j, t�kxyd 'e .pr:, • • n- T; ' •1.. • •.�F • • WELD COUNTY OPEN SPACE PLAN Prepared for Weld County by EDAW, Inc. June 1, 1996 WELD COUNTY OPEN SPACE PLAN Prepared for: Weld County by EDAW, Inc. June 1, 1996 TABLE OF CONTENTS Page CHAPTER 1 - INTRODUCTION CHAPTER 2 - EXISTING CONDITIONS Setting 2-1 Physical Features 2-1 Natural Features 2-3 Land Use 2-4 Historic Resources 2-7 CHAPTER 3 - PLANNING FRAMEWORK Population Trends 3-1 Existing Plans 3-2 Weld County Comprehensive Plan 3-2 Community Plans 3-3 Brighton 3-4 • Broomfield 3-4 Dacono 3-4 Eaton 3-4 Erie 3-4 Evans 3-5 Firestone 3-5 Fort Lupton 3-5 Frederick 3-6 Greeley 3-6 Johnstown 3-6 LaSalle 3-6 Lochbuie 3-6 Longmont 3-6 Mead 3-7 Milliken 3-7 Northglenn 3-7 Platteville 3-7 Thornton 3-7 Severence 3-7 Windsor 3-7 Regional Plans 3-8 Growth/Preservation Policies Plan for Southern Weld and Northern Adams County- 1991 3-8 Northern Colorado Regional Planning Study- 1995 3-8 St. Vram River Greenway Master Plan - 1993 3-10 I-1 CHAPTER 4 - OPEN SPACE OPPORTUNITIES Introduction 4-1 Types of Open Space 4-1 Regional Preserves 4-2 Natural Areas 4-2 Special Resource Areas 4-4 Community Buffers 4-4 Major Reservoirs 4-4 Regional Trails 4-4 Priority Open Space Opportunities 4-4 Community Buffers 4-5 Natural Areas 4-6 Regional Trails 4-6 Major Reservoirs 4-7 High Priority Projects 4-7 Implementation 4-8 Specific Recommendations 4-8 Other Implementation Considerations 4-11 ui ition 4-11 Funding Sources 4-12 - Great Outdoors Colorado 4-13 - Intermodal Surface Transportation Enhancement Act 4-16 - National Recreational Trails Program (Symms Bill) 4-16 - Colorado State Trail Grants 4-16 - Fishing For Fun 4-16 - Colorado Historical Society 4-16 - Donations 4-17 Taxation and Fees 4-17 - Impact Fees 4-17 - Sales and Use Tax 4-17 - Use Value Tax 4-18 Regulatory Tools 4-18 - Intergovernmental Agreements 4-18 - Dedication Requirements 4-19 - Clustered Development 4-19 - Design Guidelines 4-19 - Transfer of Development Rights 4-19 - Zoning 4-20 - Right-to-Farm Ordinance 4-20 Voluntary Participation 4-20 - Agricultural Districts 4-20 - Colorado Heritage Areas Partnerships 4-20 - Colorado Natural Areas Program 4-21 - Partners for Wildlife 4-21 - Land Trusts 4-21 - Donation or Sale of Conservation Easements 4-22 CHAPTER 5 - SOURCES USED I-2 LIST OF MAPS Map 1 Landscape Character/Landforms/Landmarks Map 2 Sand and Gravel Resources and Subsidence Hazards Map 3 Wildlife Resources Map 4 Planning Influences Map 5 Farmland of National Importance Map 6 Public Lands Map 7 Historic Resources Map 8 Priority Open Space Opportunities (in map pocket at end of report) Map 9 Priority Open Space Opportunities - Southwest Weld I-3 CHAPTER 1 INTRODUCTION CHAPTER I INTRODUCTION „e« v., , Weld County has reached a critical point in its development. In a county with a strong agricultural tradition and economy,reliance on farming is diminishing and the population is becoming increasingly urbanized. Agriculture has not only provided a way of life in Weld County,it has also created a landscape that is distinctly rural and open. It is just this landscape that draws many of the new residents to the County. Ironically, the arrival of these new residents often heralds the end of local agricultural operations, as improvements are built on productive crop land or new residents find they cannot co-exist with a farm next door. As the County contemplates a future that includes a population increase of approximately 30,000 residents by the year 2010,the need to address protection of some of Weld County's special qualities becomes increasingly urgent. The Weld County Open Space Plan is part of that process. In 1995,the Weld County Commissioners agreed to prepare the County's first open space plan with support from a grant from the Great Outdoors Colorado Trust Fund. In addition, seven municipalities in the southwest Weld area (Frederick, Firestone, Erie,Dacono, Longmont,Broomfield and Thornton) contributed funding toward the preparation of this plan.•r r r 1-I The plan was prepared with the cooperation of many groups and individuals. A Technical Advisory Committee,comprised of representatives from the Colorado Division of Parks and Outdoor Recreation, Colorado Division of Wildlife,Weld County Public Works and Planning Departments,the National Conservation Resource Service (formerly the Soil Conservation Service), and the Weld County Extension Service,furnished technical input. Several meetings were also held with the Southern Weld I-25 Corridor Group,focusing on open space needs in this urbanizing portion of the County. In addition,each of the incorporated towns were contacted, and two public meetings were held to provide a forum for citizens to discuss open space and identify those areas of local and County-wide importance. Presentations on the plan were also given to the Scenic Byways Commission and Weld County Agricultural Council. Open space protection can serve a variety of purposes. Open space can be used to prevent communities from growing together or to keep agricultural land in production. Other reasons to protect open space include preserving significant landscapes, scenic views and important wildlife habitat. Perhaps most importantly,open space contributes to the well-being of County residents and helps to maintain a quality of life that long-time residents have come to appreciate and expect, and new residents are drawn to. The intent of this plan is to provide a framework to guide Weld County in protecting important scenic, cultural and environmental resources. It generally identifies areas that represent high priorities for some form of protection and offers a series of options for protecting these places,ranging from outright purchase to donation of the land or conservation easements. Identifying potential open space lands does not limit the use of private lands or change in any way the zoning or land use designations already in place. It merely indicates those areas where available funding and other efforts will be focused in order to make the best use of limited resources. 1-2 CHAPTER 2 EXISTING CONDITIONS CHAPTER 2 EXISTING CONDITIONS Setting Weld County is located in north central Colorado and includes more than 4,000 square miles,making it the third largest county in the state. The County is bounded by Larimer and Boulder Counties to the west,Adams County to the south, Morgan and Logan Counties to the east, and the states of Wyoming and Nebraska to the north. The Denver Metropolitan area extends to within a few miles of Weld County's southern border. Elevation ranges from approximately 6,300 feet above sea level along the Chalk Bluffs in the northwest corner of the County to approximately 4,380 feet where Pawnee Creek enters Logan County. Interstate 25 (1-25) is the major north-south travel route and provides much of the access to the County from the west. U.S. Highway 85 runs the length of the County via Fort Lupton and Greeley, connecting to Cheyenne, Wyoming. U.S. Highway 34, Colorado Highway 14 and I-76 are the major east-west routes of travel. Urbanization is concentrated in the southwest portion of the County in towns along I-25 and in Greeley and Windsor. The landscape throughout the remainder of the County is defined by plains grassland used for dreland farming,grazing and wildlife habitat. Physical Features Weld County is in the physiographic region of the Great Plains. It can be generally described as flat to rolling with only subtle variations in topography. Notable exceptions are the Chalk Bluffs and the bluffs along some of the major drainages. The Chalk Bluffs, a sandstone escarpment with associated badlands,run east-west and form a nearly continuous break in the high plains of the northern portion of the County(Map 1,Landscape Character/Landforms/Landmarks included at the end of this chapter). The remainder of the County is rolling plains that drain into the South Platte River via a number of ephemeral, seasonal and perennially flowing streams. Some of those important drainages include: the Big and Little Thompson Rivers, St. Vrain Creek, Cache la Poudre River, Boulder Creek, Lone Tree Creek, Crow Creek,Pawnee Creek, and Kiowa Creek. The river bottoms associated with the major drainages host mature riparian forests and provide significant wildlife movement corridors,cover, food and water The high bluffs along the St. Vrain Creek, the Cache la Poudre River and the Big Thompson River provide the only significant relief in the southwest part of the County. 2-1 if :Fi<J:D .ix Y�O<S ii,{. Ivi:.J. iii� v:...♦e'.;::y...::vn :.:. .:i v: v:f: •::....i.vv( [ > : Although the 100-year floodplain was not mapped for all these drainages, the areas shown on Map 1 as river bottoms generally correspond to the floodplain. Floodplains have limited opportunities for urban development but provide exceptional opportunities for open space,including habitat protection,trail corridors and community buffers,while also serving to accommodate potential flooding hazards. Many reservoirs are located throughout the County,most of which are associated with the extensive irrigation system that has developed in the County. Most of these reservoirs are privately owned and all provide varying amounts and quality of wildlife habitat. Major reservoirs are shown on Map 1, including Riverside,Empire, Milton, Latham,Windsor, Prospect, and Union Reservoirs; and Seeley,Woods, De Remer and Banner Lakes. A few features stand out as major landmarks (Map 1). These are landscape features that have regional significance: the Pawnee Buttes,the Natural Fort on I-25, and Wildcat Mound along the South Platte River. These features have historic interest and also offer opportunities for interpreting natural events. As shown in Map 1, a significant portion of the west-central part of the County is irrigated cropland. Water for these lands is delivered via an extensive and complex system of irrigation ditches and reservoirs. The fields and appurtenant agricultural structures,including ditches,barns, and fence lines,give this portion of the County its agricultural flavor. Map 2, Sand and Gravel Resources and Subsidence Hazards, depicts those areas that may present some limitation to development. Colorado law provides that commercial sand and gravel deposits should not be precluded from recovery by urban development. This map shows those areas that have potential commercial significance and therefore may be mined or, in some cases,have already been mined. These are deposits found within the floodplain,or as stream terrace or valley fill deposits. The post- reclamation use of areas mined for sand and gravel is often some form of open space. Likewise, a portion of the Boulder-Weld coal field is located in the extreme southwest portion of the County. Large areas of this coal field have been mined, leaving behind significant underground caverns with the potential for surface subsidence. While the potential degree of hazard must be assessed on a case-by-case basis, some of these areas are unsuited for development,thus contributing to open space needs. 2-2 Natural Features Using data provided by the Colorado Division of Wildlife(CDOW) and the Colorado Natural Heritage Program,important wildlife resources were mapped. Map 3 delineates those features and areas known to provide significant habitat for one or more species. The map also shows the occurrences of rare and imperiled plants, animals and birds; locations shown are generalized to avoid disturbance of these sites. As a perennial water source and corridor,the major drainages provide riparian habitats important to terrestrial species for food,cover and movement. These drainages also provide important aquatic habitat. The entire South Platte, St. Vrain and Cache la Poudre Rivers and reaches of Box Elder,Kiowa and Pawnee Creeks and Coal Bank Draw,provide exceptional stretches of riparian habitat. In some areas,particularly along the Poudre and South Platte Rivers, riparian habitat occurs adjacent to a series of bluffs that retain natural vegetation and cover, thus creating a larger and more diverse habitat unit. Lone Tree Creek, Crow Creek,the Big and Little Thompson Rivers, and the remainder of Box Elder and Kiov.a Creeks are additional riparian corridors that provide important wildlife habitat. Other significant sources of water and wetland habitats are also shown on Map 3. These areas include habitat surrounding the major reservoirs, which include Riverside,Empire,Milton, Latham, Prospect, Black Hollow and Horse Creek Reservoirs. Other significant wetland/wet meadow habitat areas shown in Map 3 are located along Beebe Draw between Milton and Lower Latham Reservoirs,west of Crow Creek in the Grover vicinity, and along the slough below Black Hollow Reservoir. N w Wig"." 4 dar yam. k ,: 5 Big Thompson River 2-3 Map 3 also generally delineates areas where extensive shortgrass prairie habitat remains. These areas provide habitat for a number of big game and non-game species. Grasslands in these areas are generally dominated by blue grama and buffalograss, and may also include western wheatgrass,red three-awn,needle-and-thread,junegrass,fringed sage,prickly pear and typical shortgrass forbs. The grasslands support a variety of wildlife, including prairie dogs,burrowing owls,killdeer,mountain plover,homed lark,pronghorn antelope,jack rabbits and swift fox. The Chalk Bluffs are shown as the elevated bluff/canyon system on Map 3. The escarpment is marked by occasional sandstone rock outcrops. Typical mixed and shortgrass prairie forb and grass species predominate the flatter areas. Some of these draws and canyons have a shrub overstory consisting of chokecherry and juniper that provides cover and a more diverse habitat for wildlife. The bluffs and cliff faces provide excellent raptor habitat. and shelter and food for a number of mammals and reptiles. In addition to the important habitat areas,Map 3 shows known occurrences of rare or imperiled plants, birds or other animals. This information was supplied by the Colorado Natural Heritage Program, which gathers comprehensive information on rare or imperiled species and significant natural communities. Agency personnel, naturalists,landowners and others submit information regarding sightings of a species or known locations of dens,nests or rookeries to the Heritage Program,which then assigns a ranking to the species relative to its degree of threat. For the purposes of this mapping effort,plant species were mapped that have a precise location or an occurrence within one square mile, and animals and birds were mapped that have places of habitation with the same level of precision. Due to data sensitivity issues,these occurrences are identified by major taxonomic group,i.e. bird,plant or animal. As shown on Map 3,these species are associated with a variety of habitat types that are located throughout Weld County. Land Use Land use in Weld County is dominated by agricultural activities. More than 80%of the land in the County is devoted to agricultural uses,ranging from irrigated cropland to feed lots. Less than 1%of the County is current]} developed for residential, industrial,commercial and other urban uses. Since the founding of Greeley Union Colony in 1870, agriculture has played an important role in creating patterns of use and habitation throughout the County. Suitable soils, favorable topography and an extensive irrigation system have led to the County's ranking as one of the top ten counties in the nation for total cropland and amount of irrigated farmland. Both irrigated and non-irrigated farmland produces a wide variety of crops,including onions, sugar beets,pinto beans, potatoes,corn, alfalfa,wheat,carrots, barley and sorghum. Many of the feed crops are used to support the local livestock industry at feedlots and dairies. • 2-4 The agricultural industry is an important element in the Weld County economy. As stated in the County Comprehensive Plan,the chain of purchases related to agricultural production contributes significantly to the County's economy. In 1992,total production expenses were over$1 billion and revenues generated approximately$133 million more. In 1987, 10%- 20%of the 1987 labor and proprietor income was derived from farming, making Weld County one of the top farm counties in Colorado. However, patterns are changing. Between 1980 and 1990,population in Weld County increased by 6%,from 123,438 to 131,821. At roughly the same time, approximately 30,000 acres of total cropland were lost. Additionally, between 1986 and 1993 the sectors in the economy that experienced growth were in mining,manufacturing, trade,fire, services and government. The County's agricultural economy held stable,however with fewer farms able to generate more than enough revenue to cover expenses. Urbanization is concentrated in the southwest portion of the County in towns along the I-25 corridor and U.S. Highway 85. Greeley is the largest municipality,covering nearly 18,000 acres and supporting a population of over 60,000 residents. Eighty-five percent(85%)of the County's total population is concentrated within less than one-fifth of the County's area, an area extending from the Greeley/Windsor vicinity south to the County Line. City limits are shown on all of the maps. Urban growth boundaries, as defined in the County Comprehensive Plan, are shown on Map 4, Planning Influences. Each of the municipalities are encouraged to establish individual urban growth boundaries,with intergovernmental agreements between towns and the County providing a means of maintaining and respecting those boundaries. In the absence of such agreements,urban growth boundaries are placed one-half mile beyond the existing sanitary sewer lines. As new lines are placed to accommodate new development,the urban growth boundary is adjusted. Most of the prime agricultural land is also found in the urbanizing portion of the County. As shown on Map 5,prime farmland is located roughly between Pierce on the north to Larimer and Boulder Counties on the west, east to Kersey and Crow Creek, and south to the Adams County line. Prime farmland is land that has the best physical and chemical characteristics for producing food,feed,forage,fiber and oilseed crops. This designation includes those lands in Colorado that have adequate and dependable water supply from precipitation or irrigation, a favorable temperature and growing season, acceptable acidity or alkalinity, acceptable salt and sodium content, and few or no rocks. They are permeable to water and air, and are not excessively erodible or saturated with water for long periods of time. 2-5 Approximately 15%of the County is public land. Map 6,Public Lands, illustrates the distribution of these lands. The U.S. Forest Service manages the Pawnee National Grasslands,which includes 193,060 acres or approximately 7.5%of the County's total area. Another 7%of the land in Weld County is state trust lands owned by the State of Colorado. Most of these lands are leased for agricultural use and are not accessible to the public. Other public lands include state wildlife areas managed by the Colorado Division of Wildlife(CDOW), a state park and a few Bureau of Land Management(BLM)parcels. The CDOW areas,which cover approximately 2,000 acres, are concentrated along the South Platte River, but also include Seeley Lake, Empire Reservoir and Banner Lakes state wildlife areas. The County's single state park is Barbour Ponds, a 130-acre area south of Mead on the St. Vrain River. BLM lands are restricted to several small parcels around Riverside Reservoir. The County owns and operates two regional parks: Missile Park and Island Grove. As can be seen on Map 6,most of the public land is located in more remote areas of the County and no large areas are close to population centers in the southwest portion of the County. While most of the County' agricultural land is held in private ownership, two municipalities have acquired large land holdings in order to secure access to water for municipal needs. In 1985,the City of Thornton purchased approximately 18,000 acres of irrigated farmland in Weld County for the purpose of diverting water in the future to meet the needs of the city residents. If and when this occurs,the farmland would be converted to dryland crops or would be developed for housing or some other use. Similarly,in 1991,the City of Greeley purchased water from farmers in the Greeley-Loveland basin. The water was leased back to the farmers,thereby keeping the land in production until City demands require the transfer of water to municipal use. . • Rangeland and the Chalk Bluffs 2-6 Historic Map 7 identifies the locations of sites and trails that have historic Resources significance. The mapping effort did not focus on identifying historic homes or sites within cities,but looked instead at features that provide opportunities for interpreting significant events or elements of the County's early settlement and add interest to a potential trail corridor or open space area. The South Platte River was a logical and popular travel route for Native Americans as well as thousands of explorers,migrants, trappers and traders who settled not only in Colorado but also other parts of the West. In 1820, Major Stephen Harriman Long led an expedition that followed the South Platte all the way to the Rocky Mountains, a route that later became the historic Overland Trail. The trail entered Colorado at Julesburg and proceeded along the South Platte to Greeley where it turned south to Denver. A branch of the Overland Trail followed the Cache la Poudre River upstream from Greeley to Laporte to join the Cherokee Trail to Virginia Dale. Use of the trail increased slowly during the early 1800s. Discovery of gold in California mobilized thousands of travelers intent on seeking their fortune. During a six-week period in the spring/summer of 1849, as many as 27,000 settlers were reported to have passed through points along the route. Between 1850-1852, traffic on the trail increased to 100,000 people annually. As relations with Indians deteriorated in the 1860s,use slowed slightly and declined for good once the railroad reached Denver. In 1859, Jones,Russell& Company purchased the contract for mail _transportation along the Overland Trail. Forts sprang up along the route to serve as trading posts,protection from Indian raids,rest stops for travelers and swing stations for the stage. Citing the need for a permanent fort and trading post in this area(as Bent's Fort was the only such fort on the High Plains at that time), Lieutenant Lancaster Lupton built Fort Lancaster which later became Fort Lupton. This venture was so successful that three more forts were built along the South Platte River in Weld County within the next year. Andrew Sublette and Louis Vasquez commissioned the construction of Fort Vasquez in the Fall of 1836. Fort St. Vrain was first named Fort St. George and was --at 100'by 125' --the third largest fort behind Fort Bart and Fort Laramie. Fort Jackson was built in 1937 but was not used much and fell with disrepair. Of those shown on Map 7,only Fort Vasquez has been reconstructed. Markers note the location and histon of other forts. At the east edge of Hardin, a grove of trees near twin buttes became a popular campground for travelers. 2-7 r�i lY✓� N f � apE�` , South Platte River Crow Creek is significant for a number of reasons. Though less well- known,the Trappers Trail followed Crow Creek and served as a travel route for many Native Americans, trappers,cattle drives and military expeditions heading north. Elbridge Gerry,reportedly the first permanent white settler in Weld County,established a home,trading post and fort at the confluence of Crow Creek and the South Platte River. In 1864,the first of many skirmishes between the Indians and settlers occurred at the mouth of Crow Creek. Seven Cross Hill was a landmark for cattle drives through the north plains. Significant Indian battles also occurred in Weld County. The Natural Fort, near I-25 in the northwest corner of the County,was reportedly the scene of a battle between the Blackfeet and the Crow Indians in 1831. A site located in the northeast corner of the County was the location of a 1864 skirmish between the Cheyennes and troops led by Major Jacob Downing. Inspired by literary figures and leaders, different groups of people moved through Weld County, some settling and building towns. Greeley was one such town and lesser-known Dearfield another. Booker T. Washington s book, "Up From Slavery," provided the impetus for 7 Black American families to establish an all-black farm colony along the South Platte 25 miles east of Greeley. At its height in 1921, approximately 700 residents were successfully dryland farming and raising livestock. The dry years of the Dust Bowl and Depression led to the demise of this town that is now listed in the National Register of Historic Places. 2-8 ::Y: i:..;,:.:a a ew;...:: .:>a;.;va .4:r:.«u 4.i;�.r.. a�xtr..e •v uoy,:rxry o ueu ac..ao Several irrigation ditches are included on Map 7 because of their historic relevance. Most are located close to Windsor and Greeley,which is where most of the first ditches were dug. Prior to 1870, all irrigation ditches were dug by individuals or small partnerships. Such was the case with the Whitney Ditch and the Eaton Ditch,constructed by B.H. Eaton in order to grow wheat to supply the mining camps above Denver. Greeley Ditch Number 3,built in 1870,was the first organized attempt to deliver water to the new residents of Union Colony(Greeley)who paid an initiation fee in exchange for a farm plot, a town lot and water rights. Soon after, Greeley Ditch Number 2, and the-Jones Ditch were constructed. Foreign investors were instrumental in construction of the Loveland and Greeley Canal which diverts water from the Big Thompson River in Loveland for delivery as far as 50 miles away,as well as the Evans Number 2 Ditch near Platteville and the Larimer and Weld Canal north of Windsor. Were it not for these irrigation ditches,Weld County would not have the rich agricultural heritage it now enjoys. 2-9 IT 61 1 -3C# t- +JP R 3N I ' A 4:.,,y= 1" vi ,,, ,.., 47 4u,N at; i „ 1'L 1„_ A; `4.' 151 I4 la4�t .�.. ., lti ��... L-_ F ` _J _.", .." _ G••'• F.f 4i 1 s Fort ,"d_ • s 1 + - a I 1 I 4 , 3 7 .{ { f - WD J Fr ( E -1 ,:1 i2rJ + BUM'S qrI _ 4 _� ( ..._... 1 C L .a 1 ant Vii _ I .. H ._x. .... U OO�SDALH _I_. �17�Ht Tw. I _ w.,i�' ligiallil ( ( lc , I , , 7.; 1 1'7 M11 i-'� 14 1 1i"� T fIJ � , n s ,�M X I I__.'-L. ....... 1 ;u - dd/ai0r"�p rilh '' emu.� �gear/ANIENEM' ''''' M-Z, 4.V' , .,-7:-.0e.2 Itymm! _...7....4,..- i . , ,A ...... , ama4s,t,...,,.;;.,.„, i rAL .. 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Wildlife Resources Important Habitat Areas Occurrence of Rare or Key Riparian Habitat Areas /// Elevated Bluff/Canyon System Sensitive Species and Associated Bluffs / ,/ Plant (Colorado Div. of Wildlife) • Other Riparian Areas and Major Reservoirs and ■ Bird Associated Uplands Wet Meadow Areas A Other Animals Generalized Area of Extensive h •:-.:+.•••• Midgrass / Shortgrass Prairie Sources: Laezv L t**d,Cal. *o 1:81,m48 of Wikilhfs 24ra*n*t Coenattnata..1:35. 1111•84.. 2 ,E€ 33 .,,, r 5.5 q e'.43 R 'a F f^'N 5 hf4V h'fui`,`J F,.,4V,' k, II-W k 5F.5 12 I 2 95 ::. 33 h5 -9 9+ t` " t.I !_. RI , ,ti :::; ,:; 1 . 7?4 9i I'I — I3> 1x;; 14, i"' 1 r I'i, _ Li_ _ .-_...-.. I I - _ yi: N _gym _1,. I _ are br _' $ ' � 't , F ( LORI DALE _ NB - — r..' E J J1/Q - r1' ,) 3i 1-a 1I 2 rz 1 , 9 -, , •; 9 ,_ -1 r o.4,. 4., 1:44,444 F ;w F r, EC RJJ /'•�//,�,r6/ •'i I�" -rr�-i—r- 1'— i 514 1 R, 44 n g • � x . 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R F7Y4 W �5k f.F-E3Y f; � �7 Saw ('SSW P 5f_-45' iT L'a SI k ,j zu n ti 9' �9 C. �1,s �,,� is �. .„,2 < 1.55 S i.t/ ._ t2 1 yf 1 F"3-' �M I r � � � tt i III I CI-1T it5h V � —�- .iIL JN i I , t,„:,,t,„,.. , i„, 1 _ ₹ ---555 err ac Holes'vAV i...,,,,,- •\,�. 11, BBI DALE � X14/l1� \ I t' v �F L ., ft , .te. • 6 Cv �. _t� t vV "4 r" 1 �` � „a R r., r g ,n S 1-?:4,,,..7 V R. y2Taa�.vi rr Il, k ��,r"'' +% yVA "1. ,_,-..,...W Ire'''" V` iti� R,,3 '� �,, ''''''''s y �� 'Li ce. 1., \V - __ ,l__— ,u ‘'Sc;,.,,AZV A b A� ..,,, �\ 140 r, \,',..lii: V i 4 �l. • . 4 a iniorta� a ti 3,- ,,,,,,,.,i,',!._,,,,, -,,,,,a-k%1r , - ,,,,, -, _,,,:,,,. 1 I i 4D Ho'w R.I. / 0 1 2 4 8 16 Miles 3,, s. ter• r.ass s�a, i, sat r' 'w n :_.. r:v $il Weld County Open Space Plan .1 Farmland of National Importance \��\N Prime (Irrigated) Source: error 3-P Comsarvasto.&Ink emd Colorado 3amso 53vivsrsPp L'xg,Prfaores 3P8a a. %4mgv, W15 T i T—— E s. C 4 e 8 ler illill. ii":43:4a ti. - s, Illj „5 T tCPJ __ . ; C Creek r 8A I • _ ,-..,' ...::____. :• . ' ' . „Alt.:, ..,:,....,. VII' .;•„•.;';..I. :::- ' ''''' ,1 C es3 1i i , IZ , , `d313 .4l l>5 '15= !i G ie rani 0 a ar R Jv4a mar .:,`t+ u �:� ^wr r ert �� Frank SWA �K.'ime !l rrmmoolu -. • 0 Emu•..' godak Wareh.hle ,'>.4—..,..,,,,"x ' r Wildlife Area y ,,„i•,,,�� [�ak ^ �iir - - Missile Park '�'—.r i/iiVi %,Or e'r t a sw ,, Grl , �`� %�%1.l^ `: ,.lam I =I . i It ec f 4, �%%1,�� ,iplem � 4 F T A+i 1111[y „Azar; r.P •.�•_ [, —1^• . W.., _ -BLM Land T art y /' ..� i ', Surrounds portions of iv. ≥ a•�e - T-ri Rhrordde A Empire .:! ll Resesan aM� r obli a F ar*Ii L - L`t .. , — A.'� d r �. r R.' 'Ili it ...._ j Mi �,? ® ■ 'i Empire Reservoir SWA '" + ti,,,,,,,, -. -;" C •" ( �a "RO1 GEN ., Ef !4 A '�w , ,: _ �11f /flat '•: 3Ne'GiY 1� Ret 16 1 - 1 N 1 - tY l 3,, 4 x>t .a 3i Hone Conk De. , rL.n.� f �� 0 1 2 4 8 16 Miles °;6 Weld County Open Space Plan ,,,. .• Public Lands Pawnee National Grasslands A State Wildlife Area (SWA) / State Park Bureau of Land Management Land A( County Park State Land — — — Scenic Byway Soya Ices., 81 1care ar Laud Managter,4 4 Nadd'a,.&0[ncrat Managaagzrt Stataza Malts. I;4Ydg84'Mt kale 54Irtc. Otwiey.5taaSng,Pia,86t&.Park.. 1r8 Depute.*Dr Aarkalt4m Pmasxtl Sers4,4- Pawn.,Pdat104al Oa®wsltnd.tahsetdo P140 R 3332 2, 4f 4 123 t l 35 ,• F l.24Y fi' '.14V h 6032 R 4Y. s1 CT Si h 2'` 7 N:� '3 ? r &:: ,� ST 9 J f 104 i "etp143 I47 1.51 Ifit I ) -r • -- 1 4t T 1t1 Natural Fort -`� r-._ ._. .-.... - f - -. ) - I 4 I g. --"y a I,Qt �-•- -1 I R )24 r 12 11 ' T t1 rand- 1 i - r 1 1-3 y IA 1 F$ 3C— ( I J Y1a` _-�-"�Se�'Cn�itMa I3 l ..—, _ d i f u NRw _� II _4 �t� • 7 x_ w z �, 1. CE F.- h mitt 5 I>' 11 , 121 1,1 I_ CP 111. — Pb_r_d[o dart pp- j v F_ �,i/: ►M� i% '! Fort Oerrf Site ra D `pat �j l',c '/f I Cam� a `-" 42 2- -T t Overland Tell s T 4t4 44 _ ._ r % ♦� � � 11 knee Station 4c ' I Rohr` s �R�46 VYaie .. I .. SE I kid riPAa 13. IP I ° rRN 22 223 ao o �, .Fri ■. . t I r "-1 1' 1 i 1i D:! O 1 � Fort rr N �._"" a d._. ....._ ,a f i2I i'; si 1 '_!' ;1 15 11 None l]wt Rea _i ,a -_2332 R 27322732 ,a fie tf2.2 2 GfieN P- 0 t 2 4 g /\Mlles °; Weld County O .1-..,. Open Space Plan Historic Resources A Historic Site •. • .• Overland Trail Historic Irrigation Ditches SOliTnes: USG''S,Men€4.1n P„lSrr5. Fame nanso-Vann C'sraadnr,Ctoloraao- Aga➢@Fwwsetffi Kt&lee 21,2,4 222,42134 sag 1242,2212 5,4132 irka in en.nouinnt.fInanna4namenn non* Ede Cnntannial(non,WS,Wed Coona#3nsaonin Sims and Po'aon of Inaereet. CHAPTER 3 PLANNING FRAMEWORK CHAPTER 3 PLANNING FRAMEWORK Population The population of Weld County was estimated to be 131,182 in 1990, a Trends 7%increase from 1980. Most of the population resides in the 31 incorporated communities. When considering population,Weld County includes portions of the communities of Thornton,Northglenn,Longmont, Broomfield and Brighton. These municipalities are located in other adjacent counties,but have annexed into Weld County and therefore have an influence on County population. Approximately 85%of the population is concentrated in the municipalities located in the southwest portion of the County along I-25 and U.S. Highway 85, including Windsor and Greeley. This is significant because very little public land is found in this region. This is also where most of the new and additional growth is likely to occur, given the Towns'proximity to major transportation corridors. Between 1980-1990, some of the small municipalities in Weld County outside of the Greeley area experienced slow or negative growth,while others such as Fort Lupton,Windsor,Frederick and Mead had a population increase between 15%and 28%. Population in all towns in the southwest portion of the County now appears to be increasing. Between 1993-1994, Erie grew 14%, Dacono grew 5%, Firestone grew 7%,Johnstown and Milliken grew 6% and 5%respectively, and Platteville increased its population by 20%. For comparison,during that same year Greeley's residents increased by 7%,Windsor's by 17%and Evans' by 12%. Projections by the Colorado Division of Local Governments indicate that major communities, like Greeley, are likely to continue to grow. Likewise, the County's population is projected to increase to 139,960 by 2000 and 170,148 by 2010. This represents an increase of 6% and 22%respectively. Given that the past two decades have experienced similar ranges of rate of growth,it is not unlikely that this pattern could occur. The density of population is projected to increase from 32 (in 1990)to 42 people per square mile by 2010. In 1990,the median age of Weld County residents was 30.5. Compared to the State,Weld County has a proportionally younger work force. Seventy- seven percent(77%)of the population was classified as white,however, minority populations (including Native Americans, Blacks and Hispanics) showed higher growth rates between 1980 and 1990. During that same time,the median family income in Weld County showed a decrease of 1%, while simultaneously the State median family income increased by 1.7%. 3-1 .Hw»wax.xv ssesamnssa as nsa aas v:.u;u:>r.:,,::.-:>::.:w•.r:<.:>.s,.> .; ao:xn;- .; oc ;os c..a aa,x� �,«o;ro <v.:.:::vv._:v:.n. Existing Plans A number of plans have been completed covering all or part of Weld County that contain information and policy recommendations that pertain to and/or influence open space protection. The relevant plans and policies are reviewed below. Weld County The Weld County Commissioners recently approved an amended version of Comprehensive Plan the County Comprehensive Plan(August 22, 1995). The purpose of the plan is to provide guidance and direction for existing and future land use decisions. Many of those goals and policies have implications for the establishment,protection and maintenance of open space in Weld County, which Weld County defines as any outdoor land or water area. Those that are applicable are summarized here. • A major emphasis of the plan is to preserve prime agricultural land. The County requires a minimum lot size of 80 acres in an area zoned for agriculture. The County will discourage development that is not located adjacent to existing incorporated municipalities or within an urban growth boundary. Weld County recognizes "right-to-farm" laws, and encourages incorporation of right-to-farm covenants in all pertinent land use plats. By discouraging out-of-basin water transfers,the County can help preserve and maintain its agricultural way of life. • Encourage a compact form of urban development by directing residential growth to urban growth boundary areas and to those areas where urban services are already available before committing alternate areas to residential use. • Encourage the formation of intergovernmental agreements between municipalities and the County to establish urban growth boundaries. Each municipality has been requested to include an open space vision in their urban growth boundary agreements. • Locate and design new developments to preserve critical ecosystems components,including wetlands, significant wildlife habitats and migration corridors. Significant wildlife habitat is defined as a geographical area containing a combination of the essential elements of food,water,cover and space, and in quantities sufficient to support a species. Conflicts with fish and wildlife habitats and migration routes shall be considered in land development. Development and design adjacent to rivers and streams,waterfowl areas and important or critical wildlife areas shall incorporate reduced densities, adequate setbacks, and buffered areas as prescribed by the Colorado Division of Wildlife. • Traditional wildlife uses such as hunting,trapping and fishing in agricultural and nondeveloped portions of the County are beneficial. Weld County supports maintenance of these wildlife uses. 3-2 Community Plans Each of the incorporated communities in Weld County were contacted to inventory existing open space resources within each municipality and determine what is planned or envisioned. Many of the communities are in the process of updating an existing comprehensive plan,while some of the smaller communities are seeking funding to write their first plan. During the inventory,communities were asked what,if any,regional open space they would like to see protected and why. Most indicated that protection of agricultural land and natural areas were important. Many would also like to keep their communities separate from the next by keeping land open or in agricultural production. Nearly all were concerned about achieving a balance between growth and retention of the existing character of their communities. The community plan review effort focused on goals,visions and other elements that have implications for a county-wide open space plan. The effort was not concerned with identifying open space priorities that were internal to the community unless they made connections to potentially significant regional open space areas or corridors. For example,land dedications required of each subdivision,unless they covered a large area or included significant wildlife habitat or corridor,were not considered in this review. The important points are included below. In addition to the Weld County municipalities,Brighton,Broomfield, Thornton and Northglenn were consulted relative to each of their plans that include land in Weld County. nse s ' + e rvwF3"```ittPa w r"�° if"'" aeri' Wagt ii^ er w�`.vyva � fi ��it s t'6 ay tb :O$.U. w� z".a al- 1 t "` e fi.fie^ -ps P" e g r '�" �sf �' s r d i axe .n'; s zwx ar eE v se54. mi t s+°�s tw River Bluffs 3-3 Brighton At the time of writing,the Brighton Comprehensive Plan(1989)is in the process of being updated. Brighton's planning area includes land in Weld County up to Weld County Road 4. Preliminary open space protection policies state that open space will benefit the residents of the city and state economically and socially. Protection could be achieved using a variety of implementation techniques beyond regulations and fee simple purchase. The plan identifies future parks,trails and open space areas in Weld County to be part of the City of Brighton. Those areas are: the floodplain of the South Platte, Speer Canal,Brighton Ditch,Fulton Ditch and Branner Ditch. A minimum of 200 feet each side along the ditches is recommended for protection for potential use as trail corridors. Broomfield The Broomfield Comprehensive Plan targets two areas in Weld County for protection as open space. Each of these are corridors coincident with ditches,i.e. Community Ditch and Stanley Ditch. In November 1994, the City of Broomfield passed a sales tax for acquisition of open space and parks. Dacono The goal in Dacono's 1990 Comprehensive Plan is to provide open space areas and corridors that connect parks,buffer development,protect environmentally sensitive areas and preserve lands with unique natural features and characteristics. • The Comprehensive Plan identifies significant open space corridors along Godding Hollow Ditch, Stanley Ditch, Bull Ditch and other irrigation ditches and drainages. The major open space feature is along Little Dry Creek,which is also designated as a wildlife preserve east of the intersection of Weld County Roads 10 and 15. • The Comprehensive Plan proposes a trail along the abandoned Union Pacific Railroad ROW,which could link with the Denver Metro area to the south and Milavec Reservoir and St.Vrain River to the north. • The plan identifies open space buffers along both sides of I-25 and State Highway 52, from I-25 to WCR 13. • Dacono wants to identify and protect open space to achieve community separation. Eaton The City has not identified open space protection priorities. Future vision includes using the Great Western rail line for a trail corridor linking Eaton, Severance and Windsor. Erie Erie is in the process of rewriting its 1990 Comprehensive Plan. I-25 to U.S. Highway 287 and Highway 7 to Highway 52 are identified as the limits of its planning area. 3-4 • All areas identified with high subsidence potential is/will be public open space. • The Town is exploring the feasibility of using closed landfills as public open space. • Erie is interested in implementing a trail in the Coal Creek corridor which would link with the Boulder Coal Creek trail corridor. • The Town would like to acquire the Union Pacific Railroad ROW for use as a trail corridor. • The Town envisions separation of Erie from surrounding communities using open land as a buffer. Evans Evans is currently updating its 1988 Comprehensive Plan. The 1988 plan states that preservation of open space is needed to improve the aesthetic quality of developments and of the City. Open space can be used to provide buffers between land uses and provide entries to the community. The plan would: • Provide open space adjacent to major arterials and corridors. • Preserve the floodplain of the South Platte natural open space and promote its use for recreational purposes. • Use Evans Ditch as a cross-community trail-corridor. Firestone At the time of writing, Firestone was in the process of updating its comprehensive plan,which would include a significant section addressing open space protection. Planning staff indicated the community is interested in protecting agricultural land through a variety of techniques for public and private use. The Town will work with the County to assure that County and Town goals are not at cross purposes. • Would like to implement community separators using protected agricultural land,especially to the east and to the north of the community. • Trails are very important corridors within the Town and link the Town to other communities. The Town would like to use the Union Pacific Railroad ROW as a trail corridor. Fort Lupton The 1986 land use element of the Fort Lupton Comprehensive Plan is currently being rewritten. This section addresses only parks and recreation in a general way, i.e. "the City shall help to establish an equitable means of providing and maintaining abundant,high quality recreational activities and 3-5 >,yi:}.i.i:1 i.�n4.:O4 0 �>a0.44iuO4�v::.va n..'...i. vn.:/ i. :: G: .i v :..::.:..i,i.:w .:au. :<.i:...i:.`.•i<:> T:...::...::Tiini::. facilities for the residents of Ft. Lupton and surrounding service area." Presently,most of the City is located east of the South Platte River. The City is currently formulating growth boundaries. Part of the vision for the revised land use plan is to keep development on the east side of the river and maintain open space on the west side. Open space would include habitat,perhaps a park and trail(s). The City is working with the state to develop a trail along the South Platte. Frederick In its current comprehensive plan,Frederick has no specific policies that call for preservation for trails or open space. The Town does require that developers dedicate a maximum of 12%of gross land area to the Town,or cash-in-lieu. Currently the Town has 140 acres of open space surrounding Milavec Lake. The Town would like to implement a trail corridor along Godding Hollow Ditch. A gravel mine that is currently operating west of I-25 is identified as future open space. Greeley In 1995, Greeley updated its Parks and Recreation Master Plan. This plan identifies a potential open space/greenway system that coincides with floodplains, secondary drainages, canals and bluffs. Trails are located within and between the open space areas. Preservation of the following areas received highest priority rating: two square miles of target areas along the Cache la Poudre River and Sheep Draw that are under the most development pressure, and the bluffs along the Cache la Poudre River. Johnstown The most recent Comprehensive Plan was written in 1987. Town Staff envisions preserving open space corridors along the major ditches and rivers: Hill and Brush Ditches,Hillsboro Ditch, and the Big and Little Thompson Rivers. Johnstown and Milliken are currently working together to identify ways to keep the towns physically separate. LaSalle In LaSalle's 1978 Comprehensive Plan,developers are required to dedicate land or cash-in-lieu to the City for parks. There are no other provisions for open space protection. Lochbuie Provisions in the 1992 Comprehensive Plan encourage a trail system along irrigation canals: Speer Canal,Bowles Canal and Beebe Seep. The City anticipates developing south to the Adams County Line and City of Brighton, and does not envision using open space as community separators. Longmont In its Comprehensive Plan(January, 1995),Longmont proposes extending an eastern buffer into the Weld County/MUD area. The open space would include land around Union Reservoir and south to Highway 119, and includes a corridor along Highway 119 east for about 3 miles from the County Line. The purpose of this open space would be to separate the community of Longmont from future growth in the MUD area. The plan identifies a trail corridor along the St.Vrain,Dry Creek and a short reach of Boulder Creek. 3-6 Mead The current comprehensive plan is undergoing revision. It encourages the preservation of prime agricultural lands,but has no specific requirements for doing so. The plan also encourages the protection of drainages for a trails system. Four lakes in Town are controlled by homeowner's associations and-will be preserved as private open space. Mulligan Reservoir.is surrounded by public open space. No trails or open space are specifically identified for protection at this time. The Town would like to preserve wetlands within the Town, including those formed by the seepage from irrigation ditches.and irrigation runoff. The overall vision is to keep the Town as rural as possible. Milliken Milliken has not prepared a comprehensive plan or a formal plan for trails, parks or open space. Informally,staff has-identified Wildcat Mound and the confluence of the Big and Little Thompson Rivers as significant areas that should be preserved for open space, as well as a buffer separating Milliken and Johnstown. Northglenn The City of Northglenn has annexed one square mile in Weld County which will be the site of a wastewater treatment plant. The City has no plans for open space or trails within Weld County. Platteville A map excerpted from the Platteville 1980 Comprehensive Plan identifies protection of corridors along Buckeye Ditch and Platte Valley Canal. The floodplain along the South Platte River would also be preserved. Thornton The 1985 Comprehensive Plan,now being updated,does not show development within Weld County. The plan identifies protection of the Dry Creek corridor up to the County line. Severence The Town is working on producing a comprehensive plan. Staff is concerned about the lack of public water-based recreation opportunities in Weld County and would like to see access to some reservoirs made public. Informally,-staff envisions a trail along the Great Western Railroad right- of-way to link Windsor and Severence, and a trail along Slough Canal. Windsor Windsor's 1992 Comprehensive Plan is being revised. In that plan, a corridor along the Cache la Poudre River would be preserved as open space as well as an area along the Consolidated Law Ditch. Landscape buffer strips are shown along State Highway 392 at the entryways to the Town. A trail through Town links Windsor Lake with the proposed Poudre-River Trail. 3-7 Regional Plans Over the past five years,various groups have prepared plans that include recommendations potentially affecting land use in the Weld-Larimer- Boulder County region. These plans recognize the role of open space as: (1) a way to protect local land use patterns and character, and wildlife habitat, and(2)provide recreational opportunities and community buffers. Growth/Preservation The purpose of this plan was to examine land use issues in this area_and Policies Plan for develop policies to guide development. Recommendations included the Southern Weld and protection of: Northern Adams County- 1991 • Wildlife areas of prime importance such as bald eagle,black-footed ferret and wetlands. • Panoramic views of the Rocky Mountains and locally scenic vistas. • In addition,no development of that generates liquid or solid waste should be allowed within the 100-year floodplain. Northern Colorado Completed in May of 1995,the Northern Colorado Regional Planning Regional Planning Study represents the efforts of representatives from the communities and Study - 1995 counties of Berthoud, Evans,Fort Collins, Greeley,Johnstown, Loveland, Milliken,Windsor,Weld County and Larimer County to define the desired form and pattern of settlement and growth in Northern Colorado. The purpose of the study was to identify opportunities for coordination and collaboration on land use issues amongst the communities in the region. Recommendations that influence the future of open space planning within Weld County are listed below: • The study identified the Plains Reservoir Regional Resource Area as an area that has concentrations of significant agricultural and natural resources in a common geographic setting and that would require development of a specific protection plan. The area within Weld County included in this unit occurs north and west of Windsor and includes Windsor Lake and its associated wetlands and surrounding agricultural lands. Study recommendations include protecting these areas from development;protecting the wetlands; explore using the Larimer and Weld County Canal easement for a trail and corridor connection between Timnath and Windsor Reservoirs; integrate Thornton-owned fanns into the regional resource area. • The study identified regional corridors that provide linkages between communities and regional resource areas. The corridors are: Cache la Poudre River,Big Thompson River, Little Thompson River, South Platte River, Loveland and Greeley Canal, and Greeley Canal#2. Study 3-8 recommendations include: protecting the entire length of the corridors (i.e. avoid fragmentation);protect as much of the floodplain as possible; develop agreements with canal owners and operators to allow the development of trails along the canal corridors and easements. • The study identified the I-25 corridor as a regional corridor,due to its popularity/level of use and regional gateways that are major entry points into the study area. Major entry points in Weld County include U.S. 34 east of Greeley and I-25 at Little Thompson River to Highway 60. Recommended policy actions applying to the corridor and gateways include: develop a specific review process for the 1-25 corridor and gateways; cluster development at interstate changes and minimize development in between; establish a jointly planned,unified theme for I-25; establish setback and bulk plane policies with requirements for view preservation; develop specific guidelines for landscape buffering; adopt a common inter jurisdictional sign ordinance that protects views; and develop a common set of architectural guidelines that ensure a base level of quality for developments. Additional recommendations include: • Place special emphasis on protecting those places where many elements overlap (i.e. community separator with a regional resource area,etc). • Establish urban growth boundaries based upon rational criteria that address special situations of each town(i.e. rate of growth, availability of services,prime agricultural lands, sensitive environmentallands,etc.). • Establish uniform intergovernmental agreements so that there is some degree of consistency. • Adopt a community-based comprehensive approach to implementing the planning framework • The study identified land in addition to Regional Resource Areas and corridors that should be preserved as undeveloped to separate communities. In many instances, these would be large blocks of agricultural lands maintained in agricultural production. Specific buffers are delineated between Windsor and Greeley. Specific recommendations include: exploring options to allow prime farmlands to be protected and also provide other resources to the region; explore potential opportunities with the City of Greeley to develop partnerships for the long-term protection of farmlands on which Greeley owns water right options; explore options to maintain some rangelands for multiple uses (i.e. grazing,open space and trails/public access. . : ..<>.J �.i:.:.nFi:Y :+i<+:.+i<;:.n>.J<'R>n<>'..in<i < ) :�): v :.>.):.. •:.>0.:.:n.:..%....> ..v .. .:n+.<:: +) +:....J. v : x:< 3-9 Cache la Poudre In 1994, the Poudre River Trail Advisory Board was created by the City of River Trail Master Greeley,Town of Windsor and Weld County via an intergovernmental Plan - 1995 agreement. The purpose of this group was to plan and site the regionally significant,non-motorized Poudre River Trail which will extend from the Larimer-Weld County line east to Island Grove Park in Greeley. Five key goals helped guide the development of the master plan: • Promote the river as a recreational resource. • Develop a plan that is responsive to landowner interests and needs. • Provide a link between Greeley and Windsor that provides a non- motorized transportation alternative. • Develop an educational framework for the river user that has an interdisciplinary focus on natural and cultural resources. • Protect and enhance the natural systems on the river. Portions of the trail have been or are currently being constructed. St. Vrain River The St. Vrain River Greenway Master Plan was prepared for the City of Greenway Master Longmont to assist the City in its goal of establishing the river corridor as a Plan - 1993 unique district park, and as the "Crown Jewel" of the City. The study area for the corridor includes the City of Longmont's Comprehensive Plan Area which extends east to the Weld County Line. Protection of the St. Vrain River up to the Boulder-Weld County Line represents an opportunity for Weld County to extend that protection and create a significant recreational and wildlife corridor. Relevant policies in the St. Vrain River Greenway Master Plan include: • Providing a trail for walking,jogging,bicycling-and equestrian use. • Connecting the greenway tail system to other City, Town and County trail systems to create a continuous interconnected network. • Preserving existing native plant communities. • Preserving.and improving wildlife habitat. • Improving water quality. • Increasing stream flows. 3-10 CHAPTER 4 OPEN SPACE OPPORTUNITIES CHAPTER 4 OPEN SPACE OPPORTUNITIES Introduction Most Weld County residents and elected officials support the need to maintain a healthy balance between growth and preservation of the qualities that make Weld County a desirable place to live. Nearly every community in the County has indicated a desire to maintain individual identities by establishing buffers that keep communities from growing together and becoming indistinguishable. Numerous citizens have expressed a desire to retain much of Weld County's agricultural land,character and way of life. And just as many people have stated the need to respect private property rights. Preservation of open space offers a way to achieve all of these objectives. This chapter discusses the role and function of open space in Weld County and then identifies priority areas that should be protected. These areas represent those places that meet and expand upon identified open space needs and the goals of the Weld County Comprehensive Plan. Finally,this chapter outlines possible financing strategies and other implementation tools to implement the projects. Types of Open Open space can vary in character, function and size. In addition to Space protecting significant natural areas and buffers between communities, it provides recreational and environmental education opportunities and places to relax and enjoy nature. Linear open space with highly scenic and environmental values,such as riparian corridors,may be used as regional trail corridors. Because the purpose of open space is to preserve an area's existing natural, historic or scenic qualities,these areas should be left in their natural condition(or improved if there is resource damage) and developed in a low intensity manner. Facilities should be minimal. Small areas,those-less than five acres, should be avoided unless they have extremely important resources that need protection. As the function of the open space can vary, so too will the degree of public access. Public access may be appropriate in some areas and not in others, depending on the purpose of the open space. For instance, open space serving recreational purposes typically accommodates passive recreational pursuits and environmental and historic/cultural interpretation. An area that is protected for wildlife may warrant seasonal entry restrictions to protect critical habitat for a-particular species. Access is not necessarily needed for scenic easements. Likewise, sellers of conservation easements may wish to restrict public access to their land. 4-1 Table 4-1 outlines a general system for open space classification and provides management guidelines for each type of open space,including function served and compatible facility development and uses. The classifications are discussed below. Regional Preserves Regional preserves are the largest open space unit(100 or more acres) and are intended to protect resources of regional significance. The larger size of a regional preserve allows the area to be used for multiple purposes, including protection of diverse wildlife habitats,while simultaneously protecting an important natural feature and providing recreational opportunities. In these areas,there can be some emphasis on nature- oriented outdoor recreation. Recreational opportunities would range from low to moderate intensity with facilities including multi-purpose trails, fire grates and grills and picnic tables. With such large holdings,the County should consider partnerships for funding and management. Natural Areas Natural areas are smaller in size(approximately 10-100 acres) and more limited in function. Their objective is protection of natural resource values while providing more limited access and recreational opportunities. t ✓,rte %ar P �,v � 6 Sax *% �' A f k '+'k. t 4 }g St.Vrain River 4-2 Table 4.1 Open Space Classification �'.lalaS1�17GR tttA Pu uncfnn R`eizyt�a��tl�onal 1eaG#7�4 - A. Regional 100+ Protect large area with natural resource • Nature study and • Parking Preserve acres values of regional significance. These observation • Picnic tables areas should also provide opportunities for Picnicking • Fire grates or nature-oriented,outdoor recreation. • Hiking grills • Mountain biking • Potable water Fishing Restrooms • Horseback riding Interpretive signage • Nature center • Multi-purpose trails B. Natural Areas 10-100 Protect area with natural resource values • Nature • Parking acres while providing-limited opportunities for observation • Picnic tables nature-oriented,outdoor recreation. May • Picnicking • Restrooms correspond to an open space corridor along • Hiking • Multi-purpose drainages,which collectively form a • Biking trails greenway. • Horseback riding • Benches C. Community variable Separate development areas and Varies,in some cases Minimal Buffers communities,maintain important views public access.may and protect agricultural uses. not be needed D. Special variable Protect areas-with-important Varies,based on Minimal Resource environmental resource values,such as sensitivity of the Areas wildlife habitat,riparian/wetlands,rare resources plant communities. E. Major 100+ Protect aquatic and upland habitats while • Non-motorized/ • Parking Reservoirs -acres also providing opportunities for water- wakeless boating • Picnic tables based recreation • Swimming • Fire grates or • Nature study and grills observation • Potable water Picnicking • Restrooms • Hiking Interpretive Mountain biking signage Fishing • Nature center • Horseback riding • Multi-purpose trails • Boat ramp Primitive campground F. Regional Trail 100' Provide opportunities for multi-purpose • Hiking • Trailhead, Corridors width trail development. • Horseback riding -including parking, • Biking signage • Interpretive signage • Hard surface trails(12'wide) • Natural surface trails Average Size/Guideline 4-3 Special Resource Special resource areas are intended to provide a high level of protection for Areas sensitive resources such as wildlife habitat,riparian and wetland areas, and rare plant communities. Protection may be accomplished through a combination of voluntary and regulatory measures. The size and amount of use in these areas would be dependent on the sensitivity of the resource involved. Community Buffers Community buffers are intended to separate developed areas and/or communities and protect significant amounts of agricultural land. As such, it is not necessary to restrict all development in buffer areas or to provide for public use. In most instances, it may be most practical to retain the land in private ownership with the County or other entity holding a conservation easement or development rights. Access and use would be entirely dependent on landowner desires (if still privately owned)or ability to manage. Major Reservoirs These areas provide opportunities for water-based recreation while also emphasizing natural resource protection. Despite the existence of several major reservoirs,Weld County hasa shortage of water-based recreational opportunities due to the lack of public access and facilities to accommodate public use. Regional Trails Trails provide opportunities for all County residents to experience the natural and cultural landscape without the influence of motorized vehicles. They provide links to communities and access to recreation areas and other trails while preserving natural features or migration corridors for wildlife. The linear nature of drainages provide ideal natural corridors for trail systems,provided potential conflicts with wildlife are fully considered. Regional trails should be hard surfaced with a tread width of 12'. Natural surface trails can also be included for equestrian use or to provide alternative pathways for nature interpretation and other uses. Where trails are constructed through areas not in public ownership,the easement width should be at least 100',where possible. Priority Open The purpose of this plan is to provide a framework for the establishment of Space an open space system in Weld County. After inventorying existing resources and evaluating projected population growth, it became obvious Opportunities that the most imminent need for open space protection occurs within the southwest portion of the County from Windsor and Greeley south along I-25 to Dacono and Erie, and along State Highway 85 and U.S. Highway 52 including Platteville, Fort Lupton,Hudson and Keenesburg. There is a dearth of public open space in this area where approximately 85%of the County's population currently lives. Furthermore,these areas are expected to experience continuing growth related to expansion of the Denver Metro area and general population increases along the northern Front Range as 4-4 well as development of Denver-International Airport. This same sense of urgency is not felt in the northern and eastern parts of the County where there is less of an influence from burgeoning metropolitan populations and where there is more public land. Map 8 identifies and generally locates areas that should be prioritized for protection as open space. (Map 8 is oversized and included in a map pocket at the back of this report.) Feedback from citizens and community leaders indicates that the focus of open space protection should be protection of wildlife habitat and separation of communities. In response to these priorities,Map 8 includes both types of areas as well as potential regional trail corridors and major reservoirs. In some cases, an area may do double or triple duty, serving as a natural area, a trail corridor and a community buffer. Map 9 shows the same type of information,focusing on the southwest part of the County andthe communities of Dacono,Eric, Firestone,Frederick and Mead. The locations of the proposed open space priority areas on Maps 8 and 9 are general: they were not located with respect to underlying ownership or parcelization. The purpose of identifying priority areas is to define a broad framework for establishing an open space system while also providing a degree of focus to future preservation efforts. It allows the County to work with willing landowners to develop specific projects that serve County open space goals. Specific projects and their phasing are discussed in the Implementation section. Community Buffers Expansion of the communities in the southwest region of the County was a major consideration in formulating the priority open space opportunities. The gray tone on Maps 8 and 9 illustrate the extent of urbanization expected within 15 years based on existing urban growth boundaries and community services. This delineation helps to establish and define areas where community buffers are needed. Community buffers are areas that should not be developed to urban densities in order to keep communities from literally growing together. Development in these areas can still occur,but efforts should be made to minimize the visual impact of buildings on the landscape through density restrictions, cluster development or other techniques. There is no established standard or approach for determining the location and size of these buffers. However, it is generally felt that a minimum of one-half mile is necessary to maintain a sense of community separation. Much of the area between communities is currently in agricultural use. Preservation of these areas as open space buffers also serves to keep agricultural land in production. The County currently has-a tool to help 4-5 40 Li MIL II �, LCI EST i c" I Milton c k EAD � � f es. A lr .1AI 7 r` Wit, *.11', 0 `�.� \ ' LA EVILL >;e -✓t 3 C ? ri4 Il I N rye► k 1 E `I i w: FIRES ON a 10 �- !;►��r` . \ �� ONO �¢I �� HUDSO I i $ r lif ' Uw: A � `6�� ry, I ... N - ' &, , LOCHBUI i t 7 I 1 '-, 1 -; `'' ,s i 1 scJ > 4-- L, I I 2 4 i YI I fl II° & Weld County Open Space Plan J;' • Priority Open Space Opportunities - Southwest Weld Natural Areas - Urbanizing Area (Generalized) ® Community Buffer A Existing State Wildlife Area or Public Park ,,••aS Major Reservoirs • • • Regional Trail Corridors Nx !.As a3rnx of Plan F9 mm%MI5 cnn,spamk tudy Map 9 Prepared by EDAW,Ine April 22, 1996 maintain the agricultural character of the area between communities,which is the existing zoning ordinance that provides for a minimum 80-acre lot size within areas zoned for agricultural use . It may be necessary to supplement zoning with additional protective measures such as a stricter right-to-farm ordinance,conservation easements and purchase of development rights in order to keep farming of this land viable. These tools are described in more detail later in this chapter. Natural Areas Map 8 also shows important natural areas that focus on the major drainages and their associated upland river bluffs. These areas provide wildlife habitat for a variety of species and are important elements of the County's natural heritage. They are critical to the survival of many species, providing food,water,cover and a linear corridor unbroken by major roads or development necessary for wildlife movement. Natural areas shown in Map 8 include corridors along the South Platte, Cache la Poudre,Big Thompson,Little Thompson, St. Vrain and Boulder Creek drainages. Additional natural areas shown in Map 8 include the major bluffs along the South Platte River in the Wildcat Mount vicinity south of Milliken and the Poudre River bluffs east of Windsor. The bluffs are also regional landmarks and a distinctive element of the Weld County landscape. Because of their size and significance,protection of the bluffs may result in regional preserves. Similarly,the natural areas around Banner and De Remer Lakes (beyond the existing protected area) and along the South Platte between Hudson and Keenesburg could be included in a regional preserve. Regional Trails Potential trail corridors overlay most of the natural areas associated with river bottoms. River corridors,because of their linear quality,naturalness and generally undeveloped and scenic quality, offer excellent opportunities for development of trails and environmental education. Because of the role the South Platte and Cache la Poudre Rivers have played in the settlement of the west,there are also many opportunities for historic and cultural interpretation. Ponds resulting from gravel extraction activities could be restored to provide additional wildlife habitat and/or warm water fishing opportunities. Many of these corridors have been previously identified in other plans as worthy of protection for habitat,historic and recreational reasons. The Cache la Poudre River Trail Master Plan identifies 18 miles of trail along the Poudre,with educational opportunity nodes located sporadically along its length from the Weld-Larimer County line to Island Grove in Greeley. The South Platte River has been identified in the Colorado State Trails Master Plan as a first priority trail for implementation. Adjoining segments of the Big and Little Thompson Rivers and St. Vrain Creek have been identified in Boulder and Larimer County plans as trail corridors and important open space opportunities. Coal Creek has also been identified by Boulder as a regional trail corridor. A trail connecting Black Hollow Reservoir and the Poudre River Trail via Windsor is recommended. 4-6 a,s,:::x »�,�,�,�n,:+r.:e.>:eo :.::naem.:am:, au,v.o,e�;,,.,.vro:::•..: :,::.n:oc<avo•s_+:,:x::xncs. v' :�ee:r .;,r...v.nw >ew.es.:,..rx:.acen.ve It should also be emphasized that strong concern have emerged about the impacts recreational use in river corridors has on the critical habitat values associated with that corridor. Before locating trails or planning any activity within critical riparian areas,biologists with organizations such as CDOW and the Colorado Natural Heritage Program should be consulted to minimize impacts to wildlife. Major Reservoirs Generalized areas surrounding several major reservoirs are also shown as priority open space on Map 8. These include Black Hollow,New Windsor, Latham,Milton and Prospect Reservoirs. These areas have high wildlife habitat value and also offer opportunities for fishing and other types of recreational use. Weld County has very few public water-based recreation areas. The few that exist include CDOW wildlife areas and a smaller state park at Barbour Ponds. Open space around one or more of the major reservoirs should be acquired and public use accommodated. As discussed in the next section, a reservoir project should be accomplished in partnership with Colorado State Parks and/or the Division of Wildlife. High Priority The areas shown in Map 8 and discussed in the previous section are a long- Proj ects term vision that will probably require 20 years or more to fully implement. In order to focus limited resources, a set of high priority projects was defined. High priority projects are those that should be implemented as soon as possible,preferably within the next ten years. In defining high priority projects,several factors were considered, as noted below: • Eligibility for funding from Great Outdoors Colorado(GOCO) or other grant sources. • Presence of significant natural resources. • Proximity to population centers. • Geographic distribution. • Linkage with other regional projects. • Fit with expressed open space needs/preferences. Based on a consideration of these factors,the following projects were identified as the highest priorities: • Poudre River Trail/Natural Area from Greeley west to County line. • Poudre River Bluffs by Windsor. • St.Vrain Trail/Natural Area east of I-25 to County line. 4-7 • Boulder Creek Trail/Natural Area(confluence of Boulder Creek and St. Vrain to County line). • Bluffs near Wildcat Mound. • Trail along St. Vrain(east of I-25 to Fort St. Vrain site). • Community buffers. All of the trails listed are regional trails. Where the term"natural area'is used, the intent is to protect not only the actual trail width but a buffer as well that would include adjacent vegetation and natural areas. Initially,the trail along the St. Vrain would be constructed without protection of the associated natural area. Long-term plans should consider protection of the natural area. Implementation The following discussion provides implementation recommendations necessary to develop a successful open space program. The first section makes specific recommendations that should be applied to the high priority projects discussed previously. The second section includes additional tools and materials that can be generally used for ongoing open space protection. In order to successfully implement an open space program, a variety of tools and approaches must be employed. A new program needs to consider administrative responsibilities and public perception and support. In addition,not all of the area identified can or should be acquired in fee by the County or any other entity;much of it will remain in private ownership. A major objective is to work with willing landowners using a variety of implementation tools to achieve outcomes that are mutually acceptable and beneficial to the County,its residents and individual landowners. Some open space goals can be achieved by providing incentives to landowners to participate in protection programs. Innovative planning and design of new development can also contribute to the protection of open space. Specific The following list of recommendations should be applied to implementing Recommendations the high priority projects. • Sponsor an annual Weld County Lands Protection Forum. A forum or symposium would help to build momentum for establishment of an open space system by illuminating needs and opportunities and encouraging partnership and resource sharing. Discussions could be structured around particular issues (private property rights, conservation easements,estate planning) or community representatives could be asked to contribute to a round-table discussion. 4-8 • Assign a senior staff person responsible for coordinating open space activities. This person would be responsible for disseminating information to the public,cultivating partnerships and writing grants. This person should be or become knowledgeable in the area of land protection techniques. • Appoint an Open Space Advisory Board. The purpose of this 7 to 13 member board would be to provide direction in the creation of the open space program. Its members should be representatives of different geographic,personal and professional interests. Its functions would include: interacting with public and private landowners as well as with other land protection organizations such as the Trust for Public Land,The Nature Conservancy,Weld County Land Trust and Colorado Open Lands;recommending funding for particular projects; and informing landowners of protection techniques and options. In the near term, some of these functions could be established at the staff level. However, once the County begins making major financial commitments and acquiring property rights, an advisory board should be established. • Aggressively seek Great Outdoors Colorado (GOCO) grants. In the absence of a committed funding source, such as a dedicated sales tax, initial efforts to establish an open space program will require an aggressive effort at obtaining GOCO funds. GOCO currently receives $10-20 million per year, an amount expected to increase to nearly $35 million after 1998. Much of this funding is available for use by local governments for the implementation of open space projects. Even so,commitment of local funds is usually required in order to be competitive for a GOCO grant,thus requiring the County to provide matching funds from the General Fund or some other source. • Pursue other grant opportunities, including State Trails Program, Colorado Historical Society Gaming Fund,other foundations, ISTEA,etc. These and other funding sources are discussed in greater detail further in this report. It would be the responsibility of the senior staff person to identify these sources and submit funding requests in a timely fashion. • Leverage funds through partnerships with local governments, state agencies and private organizations. Developing partnerships with other government agencies,private and non-profit groups will be essential to success. Pooling resources and expertise is an important step toward achieving project goals. Many grant programs require partnerships and/or matching funds prior to granting money for protection efforts. More partners mean more leveraging capabilities. Private groups involved with land conservation can help educate the public and raise awareness of the benefits of preservation strategies. These groups can assist in developing public consensus around a future 4-9 vision of the community. Some groups,such as land trusts,may be able to assist with preacquisition and negotiation,and may be the appropriate holder of conservation easements. • Work with gravel companies to plan for open space as the post- mining use. Many gravel operators would be interested in conveying title and/or management responsibilities to the County after the land has been mined. Many of these places can be reclaimed as wildlife habitat and recreation areas. The key to achieving protection of these lands as open space is working with the gravel operator and(if different from the operator)the landowner to define goals for the land. Alternative reclamation scenarios can be discussed and preferred plan established prior to final grading. Alternatives should consider ways to minimize surface water exposure and loss through evaporation. The County should be prepared to share some costs. • Convert County-owned gravel properties to open space following mining. Adopting and implementing this strategy would result in significant additions to open space with little additional cost. • Work with State Parks and legislature to create a reservoir-based state park in Weld County. A good case can be made that Weld County has a shortage of State Park facilities. Yet the County has a number of reservoirs that would be suitable for public use and a growing population. The County should explore with State Parks staff the possibility of establishing a new state park in Weld County and enlist the support of members of the State Legislature who represent County residents as well as other elected officials. • Transfer Conservation Trust Funds (lottery)to open space/trail acquisition. Weld County has received from$205,000 to$318,000 per year as its share of lottery funds. This money is currently being used by the County for operation and maintenance and some capital improvements at Missile Silo Park and Island Grove. These funds could be redirected to support establishment of an open space program and could also be used to leverage additional money from other grant sources,including GOCO to use for acquisition of land. Use of this money in this way would provide a healthy start to an open space protection program. Costs associated with operation and maintenance of Island Grove Park could be addressed through an increase in user fees. • Provide additional funding from general fund on a project-by- project basis. This will be necessary in order to leverage money for GOCO grantsand to attract potential partners. 4-10 Other As the open space program is established and matures, a variety of tools Implementation will be used to protect open lands. -It is impossible at this point to assign Considerations specific tools to particular potential projects because each project will have unique opportunities and constraints that will dictate the approach and methods of protection. All of the methods discussed below have been used successfully by other Front Range counties and/or other agricultural communities. The intended purpose of the open space often determines the type of tool best used to protect it. For instance,land along a river that could be used as a trail corridor with public access may best be secured by the County through outright acquisition. Ownership would insure greater control over management and maintenance of the trail. If an area is identified for protection of scenic views or to create a buffer between communities, less- than-fee options (such as conservation easements,purchase of development rights or some other tool)might be more appropriate,particularly if no public access was anticipated . Weld County does not have a parks,recreation or open space department. Currently,parks and recreational programs are planned and operated by the State Department of Parks and Outdoor Recreation, individual communities, school districts and recreational districts. Weld County Public Works Department manages the County regional park and Missile Silo Park, and is under contract with the City of Greeley to maintain Island Grove Park. It is not necessary for the County to establish an agency or department before implementing open space protection. The Open Space Advisory Board and staff person assigned to open space activities will help coordinate and direct the program in its early stages. However, if the County decides to institute a formal program,having an entity to administer and manage lands should be a mid-term goal. Protection of the land only begins with acquisition; stewardship, monitoring and management ensures its long-term protection as wildlife habitat,recreational lands or open space. These next sections consider implementation techniques for protecting those open space areas identified in this plan. These methods can be applied to both the high priority projects as well as others that become viable. Given the fact that Weld County does not have an identified funding source for open space acquisition,creative use of the strategies outlined in the next section will be essential. Acquisition Acquisition of some of the land area identified in this plan will be essential for successful implementation. After establishing what these areas are, County government can purchase fee simple title to the land,which gives the government full property ownership and direct control over prospective land uses. Where property is acquired, it would be on the basis of willing grantors and willing grantees. 4-11 Local government can-also acquire a conservation easement or purchase development rights. In both cases,there is a legal agreement made by.a property owner to restrict the type and amount of development that may take place on his or her property. This provides open space protection while retaining the land in private ownership and on the tax rolls. With conservation easements,certain development may be allowed i.e. construction of one additional structure and corral. Land or easements can be bought at full market price. Typically,the price of an easement or development right is calculated as the difference between appraised highest and best use and appraised value as farmland. A landowner may wish to sell the land at a price that is below market value or as a bargain sale, in which case the landowner can take a tax deduction on the difference between the market price and the bargain price. The County can also acquire land or easements as donations from the private landowners as a bequest or in exchange for the tax benefits that a donor receives. The combination of tax benefits and a desire to see the land preserved creates a strong incentive for a surprising number of landowners to participate in donation programs. The County may also develop leaseback arrangements with farmers and ranchers on those lands it has acquired but wishes to keep in agriculture. The government may acquire property in fee simple,retain certain development rights, and then reconvey the property("lease back"). In this way,a farmer/rancher has the ability to cash in on a portion of their land value while retaining control of the property and keeping it in agricultural production. This technique is being used in a number of open space programs and is currently being used by the City of Greeley for a different type of purpose. As discussed earlier,the City of Greeley has purchased farms and water rights with the intent of converting agricultural water to municipal uses in the future. In the meantime,with the leaseback option, the farmer/rancher maintains his status as a land steward and the land remains in production. At that time when the water is removed from the land,the farms could be converted to dryland farms. Prior to considering acquisition, the County should consider all potential sources of funding from local, state and national sources. Many sources require matching funds,which emphasizes the need for multiple partners. A discussion of funding sources and their criteria follows. Funding Sources There are a number of funding sources at the state and federal level that can be used to assist local open space protection efforts. The County has already been successful in securing a state grant for this project and should continue to aggressively pursue available opportunities. It should be noted, however,that the County has little control over the level or timing of the availability of these sources, and in many cases must compete with other governmental agencies. Several sources of funding are summarized below. 4-12 Great Outdoors The Great Outdoors Colorado Trust Fund(GOCO)was created in 1992 by Colorado voter approval of Amendment 8. Under this amendment, a portion of State Lottery money is designated for funding programs for parks,wildlife, outdoor recreation,environmental education, open space and natural areas. Until 1998,the fund is to be used to pay off debt incurred from the State Capital Construction Fund; during this time,the Trust Fund is expected to receive an average of$10-20 million per year. After that, all revenues will be available to the Great Outdoors Colorado Board for disbursement to communities. The GOCO Board has created different grant opportunities for disbursing its funds,each with its own goals,criteria and grant-making schedule. A consistent theme throughout all of the grants is the need for matching funds and partnerships between government entities,local organizations and non- profit groups. Of particular interest to the County would be the following programs: • Grants to local governments for the acquisition,establishment, expansion and enhancement of park and outdoor recreation facilities including environmental education facilities. This program could develop watchable wildlife opportunities and protect or restore critical habitats. In 1995, $3.2 million was awarded for 35 projects. • Grants to local governments and nonprofit organizations for trails projects. The money can be used to acquire, construct and maintain trails and river greenways. • Grants to local governments and nonprofit land conservation organizations for planning for open space,outdoor recreation, and wildlife, and grants for capacity building. This program is designed to encourage acquisition and stewardship of open space.lands. • Grants to local governments,nonprofit land conservation organizations,Colorado Division of Parks and Outdoor Recreation and Colorado Division of Wildlife for preserving open space. Funds are awarded to identify, acquire and manage unique open space and natural areas of statewide significance. • Colorado Legacy Projects and Grants: Over the next 2 years,GOCO will fund up to 12 large projects of regional or statewide significance which integrate the goals of parks,outdoor recreation,wildlife,trails and/or open space. It is expected they will receive funding in amounts of$2 to$10 million. Among other criteria, the projects must demonstrate consistency with local, state and federal agency plans and policies,must have high demonstration value,have long term sustainable value to the cities of Colorado, and include the needs of underserved populations and provide opportunities for environmental education. Multiple partnerships are heavily encouraged. Because this program presents such a unique opportunity for preserving large-scale landscapes,two areas within Weld County are considered here for possible Legacy project status. 4-13 AuxxoA.. ,: e. Au.v. : _ The two areas are the Historic Agricultural District and the Pawnee Buttes. These areas were chosen because they combine a number of characteristics that integrate history,culture,open space,wildlife, and recreation. More importantly,protection of these areas would protect the way of life associated with them,which in the case of the Pawnee Buttes is ranching and the Historic Agricultural District is farming. Each of these areas embody the history of Colorado; protection would leave a legacy for future generations. All of these areas meet the criteria of the Great Outdoors Colorado Legacy Projects,which is a program administered by the Great Outdoors Colorado Trust Fund expressly for protection of places of regional or statewide significance. They also may be eligible for State Historical Funds as threatened culturallandscapes. Both programs require the participation of multiple partners from the public and private sector. 5, `` ,t '§ f Bluffs East of Grover 4-14 The Historic Agricultural District generally encompasses the area extending southwest from Evans to Platteville in a 5-mile corridor paralleling SH 85 and east from the South Platte River to Latham and Milton Reservoirs. It includes the area surrounding each of the communities of La Salle, Gilcrest and Platteville. The land is predominantly prime farmland of national importance and is interspersed with irrigated(not prime)farmland of statewide importance. Three major ditches irrigate the land,two of which are historic. A number of centennial farms are located in the area. The area also includes the South Platte River corridor with rich historic and habitat values. The ruins of old Fort St. Vrain are located on a bluff above the river. The main objective of an open space protection effort would be to retain the agricultural base of the area through a variety of means,including purchasing farms outright and leasing back to farmers,purchasing development rights or conservation easements and/or imposing restrictions on other uses in the area that conflict with the practice of farming. Other elements of the project could include interpreting the history and importance of agriculture in Weld County and the importance of irrigation and the system needed to convey water to the area to make it productive. A second candidate for legacy funds is the area surrounding the Pawnee Buttes. Currently ownership in this area is fragmented, a checkerboard of private landowners, the U.S. Forest Service and the State Land Board. The buttes themselves are partially on Forest Service Lands and partially in private ownership. Because of their outstanding historic,wildlife and scenic value,the area is both a popular destination as well as a stop along the Pawnee Pioneer Trails Scenic Byway. Due to these values, its popularity and increased use as well as the fragmented nature of ownership, it is proposed that a program be developed whereby a large tract(20,000-40,000 acres)be consolidated into a single management unit. Consolidation could be accomplished through a combination of land exchanges,willing seller purchases and management agreements. The objective of this program would be to protect the viewshed around the buttes from degradation,while preserving historic ranching operations and a large tract of one of Colorado's finest grassland landscapes. Optimally,ranchers,the County and the Forest Service would collaborate on the formulation of a management plan to ensure that basic needs were being addressed and met. Successful implementation of this concept would have strong economic benefits for the region through the creation of a major visitor destination capable of supporting a variety of service businesses. 4-15 Intermodal Surface This legislation,known as ISTEA,is a reauthorization of the highway trust Transportation that radically alters how funds generated by gas taxes and traditionally used Enhancement Act for highway projects will be spent. ISTEA mandates that these funds be used for a broader spectrum of transportation projects,including trails, bikepaths and sidewalks. Funding for trails is available through several elements of this complex legislation,including the transportation enhancements program. Colorado received$2.6 million for trails in FY'92 under this program,which must be matched by a 20%local or state contribution. The Pawnee-Pioneer Trails Scenic and Historic Byway is located in the northern part of Weld County and travels through Ault to New Raymer by way of the Pawnee Buttes. Scenic byways are eligible for funding through ISTEA, including projects intended to protect natural resources and provide interpretive exhibits_and related activities. National Recreational This is a federal grant program named after its sponsor, Senator Symms. It Trails Program was signed into law in December of 1991 as part of ISTEA. As with other (Symms Bill) federal programs, funding amounts fluctuate yearly. However in 1995, Colorado received approximately$240,000. Funds are to be distributed as follows: 30%non-motorized trails; 30% for motorized trails; 40%for innovative use. Colorado State Trail Four separate programs provide funding that supports the State Trails Grants Program. In 1995,funding was provided by GOCO Local Governments Fund, Colorado State Parks,Colorado Off-Highway Vehicle Fund and the National Recreational Trails Program. Funding totaled approximately $1 million. It is available on a 50/50 matching basis with local governments to fund motorized and non-motorized trails projects. Fishing For Fun Colorado Division of Wildlife has a matching grant program(75%state and 25%local) that can be used for projects that provide increased public access to fishing. Colorado Historical The Colorado Historical Society administers the$8.5 million State Society Historical Fund which targets preservation of cultural landscapes or districts. Cultural landscapes are those specific sites and historic open spaces marked by human interaction with the land that are of particular historic significance. These can include large geographic areas and associated structures with historic significance. An example is historic ranching and farming operations that are threatened by encroaching development. Cultural landscapes are usually designated as a historic district,but they-also may be eligible for preservation funding if they are within a larger national or local historic district or a state or national heritage area. Historic districts are regulated by preservation law and design guidelines,while heritage areas are larger,mixed-use regions that are non-regulatory,but may contain historic districts or other designated properties and sites. The Cache la Poudre River is currently being considered by Congress for designation as a National Heritage Area. 4-16 M+MvAi.4)(Y.4,:a4.4.NtinfWn 0.tla%Tn+(:%NOWaA M .>.i.i.♦ .nn.rc.n: a vn.nnn , vv:n>4io 4.y4Yn� A ,psi 4>.Yn i.40.0.Y./.}: A.4.h.v\.A .... "a:: Incorporating cultural landscapes into open space protection could greatly expand the opportunities for funding. The Great Outdoors Colorado and Colorado Historical Society programs are complimentary and have much in common. Both require matching funds of cash and in-kind serves. Substantial cash can sometimes be provided by pairing these grants with one another,especially for cultural landscapes or historic rails trails. Donations Much in the way of open space protection can be accomplished through promotion and direction of individual and corporate donations of time and money. Corporations may earmark some of their funds for charitable donations for land or water conservation or recreation projects. Others may give outright donations of land. Likewise, individuals may be interested in land donations to reduce their tax burden. In most cases,the most successful programs to obtain and preserve recreation and environmentally sensitive lands are conducted by land trusts -and other private organizations which often work in close cooperation with government agencies. Taxation and Fees Impact fees are being increasingly used by local governments as a way to help finance demands for increased public services resulting from new Impact Fees development. This approach is intended to make development"pay its own way". In order to impose such fees, it is necessary to show a clear relationship between the development, the demand it creates and the use of the revenue. Additionally, fees must be roughly proportional to the need created by the development, applied to that need and not absorbed into the general fund. These fees may be most applicable in preserving open space within regional preserves and along the stream corridors where recreation is a major focus, so thata need can be clearly shown to be met by imposing such fees. One example of the use of such-a fee is Larimer County,which imposes a parkland development fee of$315/unit on new residential development in unincorporated areas. Sales and Use Tax Many local governments along the Front Range utilize sales tax revenue to preserve open space at the County level. Larimer,Boulder,Jefferson and Douglas counties each have sales tax supported open space programs. Boulder County has had an open space land purchase program in place since 1975,but only recently(1993) approved-a one-quarter cent sales tax to fund open space protection. Jefferson County has had an open space program since 1977,which is financed by a one-half cent sales tax. With this money,the County has been able to protect 23,000 acres through fee purchase in addition-to easements and leases. Residents passed a one-sixth ...n....x...n:.v_[.n........a,.a......a.C..v...M..y.._f....a.<....,.a.6.,..._.v...l.nv.:.a.avn......>.a..,.yn.nX.>:4>iAv%N:!;4e>v.,:4R,y:> 4-17 cent sales tax in 1994,which will be used primarily for open space projects. Most recently in November 1995,Larimer County residents passed a one- quarter cent sales tax which is expected to generate approximately$6.5 million per year. More than half of the funds will be distributed to the cities of Estes Park,Fort Collins,Wellington, Timnath and Loveland,with the remainder going to fund a county-wide open space protection program. In most cases,passage of a sales tax initiative requires the emergence of a highly-motivated citizens group that is willing to take the lead in promoting the issue to voters. Use Value Tax The State of Colorado allows land to be taxed on the basis of the agricultural productivity of the land. Land value is assessed based on its use as agricultural land and not on its development potential. This helps lower the tax burden on the landowner and helps retain the land in agriculture. During the 1995 legislative session, Colorado legislature passed House Bill 1268 which allows former land to qualify for agricultural property tax classification if the land is-covered by a permanent conservation easement on 80 acres or more,or if the land does not contain residential improvements. This and other amendments allow for a wider interpretation of taxation of agricultural land. However,it also addresses the need and desire to retain open land for historic and scenic reasons as well as agriculture. Regulatory Tools It is unrealistic to presume that all of the land identified for protection of open space in Weld County will be purchased by the County or other public entity. This section reviews some of the regulatory tools that can be used to contribute to implementation of the open space plan. Intergovernmental Several municipalities within Weld County are currently drafting Agreements intergovernmental agreements regarding matters suchas the establishment of urban growth boundaries that will determine which areas will become annexed by each community or remain unincorporated. These agreements may also include policies which apply to land use within the UGBs and beyond the UGBs within the County. These agreements can also be used to direct growth and the development of infrastructure to the most suitable areas,thus protecting productive agricultural land and other important open space areas. When finalized,these agreements can establish densities in each of the open space areas that are appropriate based on their use. Towns and counties within Colorado have included agreements to develop joint land use plans for shared land areas. In these areas,the city and county agree to adopt joint policies that direct growth, define appropriate densities and protect natural areas. Joint review of subdivisions and restrictions on annexation within these areas may also be part of the joint use plan. 4-18 Dedication Setting aside land for specific purposes, including parks and open space, Requirements can be made a condition of development approval. A number 0f local governments,including Douglas County,the Towns of Parker and Castle Rock to name just a few,have adopted requirements that new development set aside 10%or more of the site as open space or other public uses. Cash payments or fees in lieu of land dedication can also be used. The application of this tool by Weld County will be limited unless an increasing amount of development occurs in unincorporated areas of the County. Clustered Clustered development is a type of development where the buildings are Development grouped together at one or more places on the development site in order to preserve the remainder of the land as open space,protect important wildlife habitat,minimize construction of roads and extension of utilities,avoid hazardous areas such as floodplains,protect the character of a landscape, and keep the remainder of the land in agriculture. Developers may be offered extra density on the cluster area as a bonus to choose this approach. A conservation easement is recommended for the undeveloped portion of the land to insure that it retained as open space. Design Guidelines Appropriate development should respect a community's character and sense of place. In important viewsheds, such as the I-25 corridor, development should be set back from the road,located in places that reduce its visual impact, or screened with appropriate vegetation. Guidelines can also be used to influence architectural character, assuring that new buildings have a mass and scale and use of materials and colors that have minimal visual impact. Use of traditional plant materials and sensitive siting of utility lines also help to maintain the rural character of a community. Transfer of Transfer of development rights (TDR) is a device by which the Development Rights development potential of a site is severed from its title and made available for transfer to another location. The owner of a site within a transfer area retains ownership but not approval to develop. The owner of a site within a receiving area may purchase transferable development rights which allow a receptor site to be developed at a greater density. This method allows transfer of development away from environmentally sensitive areas to areas where development is more appropriate. This may be useful for protection of natural areas or agricultural lands. It can be useful when a government entity does not have funds to purchase fee title or a conservation easement, and developers may benefit from increased density. Implementation of a TDR system,however, is a somewhat complex undertaking and the newness of the concept tends to create a degree of resistance that may become controversial. 4-19 Zoning Zoning and other regulatory tools can be used to direct development away from inappropriate areas and assure that appropriate densities and compatible uses are achieved. Effective use of large-lot zoning designations maintains rural-character and a land use pattern consistent with agricultural operations. Weld County currently has a requirement that limits development in areas zoned for agricultural use to one unit per 80 acres. Adherence to this zoning requirement would support the goal of keeping prime and other important farmlands in production. However, zoning is subject to change and a rigid adherence to agricultural zoning in areas experiencing growth pressures can raise issues of individual property rights and fairness. In addition, existing County zoning often becomes moot when municipalities annex unincorporated areas. Therefore,zoning and other regulatory approaches usually must be supplemented with some of the other tools described in this section to be fully effective. Right-to-Farm The right-to-farm ordinance strengthens the existing covenant to give Ordinance farmers better protection from nuisance suits. It includes specific provisions such as agriculture operators allowed to recover legal fees when nuisance suits are settled in their favor, and provide new adjacent property owners with disclosure notices. Voluntary The County or a group of farmers may establish a district wherein a farmer Participation may-voluntarily-join fora pre-established,renewable length of time. Within these districts, state and local governments may be limited in their ability to Agricultural Districts restrict farm practices, take farmland by eminent domain,or allow construction of utilities. Sometimes,counties may grant additional incentives to farmers who join or create a district: cost-sharing for compliance with environmental regulations; soils and water conservation grants; exemption on state inheritance taxes;marketing support; and low- interest loans for farm operation andimprovements. Creation of such districts help promote the continuation of agricultural use,thus contributing to open space-goals. Colorado Heritage According to-a National Parks Service definition, a heritage area is a region Areas Partnerships where natural,cultural,-and historic resources combine to form a cohesive, distinctive landscape arising form patterns of human activity shaped by geography. These patterns make heritage areas representative of the state or national experience through physical features that remain and the traditions that have evolved in the region. Continued use of heritage areas by people whose traditions helped to shape the landscape enhances their significance. While the State of Colorado does not currently have a program for heritage area designation, it is studying the prospects for a state program. In the meantime,many communities have self-designated regions as heritage areas and have subsequently received high levels of 4-20 support from state and federal agencies in addition to local governments and private sources. These areas could be eligible for funding from the Colorado Historic Society as discussed previously under"Funding Sources". Colorado Natural The Colorado Division of Parks and Outdoor Recreation administers the Areas Program Colorado Natural Areas Program. Its purpose is-to identify,evaluate and protect examples of Colorado's natural heritage,maintain an inventory and registry of qualified natural areas-and establish a system of designated natural areas. Anyone may initially nominate an area for consideration and both public and private lands are eligible. If the area meets certain criteria, and the landowner is willing, the site may be designated as a natural area. An agreement is written that outlines management,monitoring, and rights and duties of the landowner as well as the state. Depending on the resource and the desires of the landowner,use of the area may be restricted. Designation of such areas protects habitats,biologic and geologic features, rare plants, and terrestrial and aquatic communities. It requires voluntary participation of landowners. It provides a way for landowners to receive technical assistance and other support to protect important habitats. Currently there are six natural areas in Weld County,two of which are formally registered. Partners for Wildlife This program operates similarly to the Colorado Natural Areas Program. The Partners for Wildlife program improves and protects fish and wildlife habitat on private lands through alliances between the U.S. Fish and Wildlife Service,other organizations and individuals,while leaving the land in private ownership. At the request of landowners and providing the project meets certain criteria,the Fish and Wildlife Service will help landowners plan and design a habitat management project that will restore or enhance existing habitat. Land Trusts Land trusts are typically nonprofit organizations that hold land and other property rights for the benefit of the public. Because most are private,land trusts have significant flexibility in the way they can acquire property and have the ability to react quickly to buy land or acquire an easement before the land:is developed. Land trusts can assist in a number of ways,including participation in preacquisition negotiations and the ability to accept donations of property through a transaction that qualifies the landowner for substantial tax benefits. Their private status is often appealing to landowners who may otherwise be reluctant todeal with a government entity. 4-21 Municipalities may also form land trusts. A municipal land trust is a quasi- public agency that is established by local ordinance,funded out of a city budget and authorized by charter to hold and manage lands for conservation purposes. It functions similarly to a private land trust. A disadvantage-is its connection to government,which may sway the confidence of some landowners. Presently,there is one fledgling land trust in Weld County with the express purpose of protecting the lands along the South Platte River from Fort Morgan to Kersey and surrounding Riverside,Jackson and Empire Reservoirs for wildlife habitat. The Colorado Cattlemen's Association recently formed a land trust that appeals to ranchers already familiar with that organization. The American Farmland Trust, a national land trust,has been instrumental in protecting thousands of acres of farmland. Donation or Sale of As discussed earlier,conservation easements are voluntary agreements Conservation designed to retain open space. The easements generally limit or prohibit Easements development on the property. While landowners retain full ownership of the land,the conservation easement will legally bind all future landowners for a specified period. In order for the landowner to be eligible for tax benefits, the easement must be perpetual. Conservation easements may be bought or donated. The easement is held by a nonprofit conservation organization such as a land trust or a government agency. 4-22 CHAPTER 5 SOURCES USED CHAPTER 5 SOURCES USED are * r BHA Design. Cache la Poudre River Trail Master Plan. April, 1995. . Northern Colorado Regional Planning Study. May 1995. Colorado Department of Local Affairs. Population Estimates for Counties and Municipalities, 1980-1994. Colorado Natural Heritage Program,The Nature Conservancy. Colorado State University. Preliminary Conservation Planning Boundaries and Element Occurrences for Weld County. 1995. Denver Regional Council of Governments. Historic Populations. From U.S. Census Bureau. Erie Centennial Club. Weld County Historical Sites and Points of Interest. 1978. U.S. Geological Survey. Historic Trails Map of the Greeley 1°x 2° Quad, Colorado and Wyoming,Map I-2326. Prepared by Glenn Scott and Carol R. Schwayder. 1993. . Front Range Urban Corridor, Colorado. Map Showing Outstanding Natural and Historic Landmarks in the Boulder-Fort Collins-Greeley Area. Map I-855-F. Prepared by Brian Petrie. 1975. . Historic Trail Maps of the Sterling 1°x 2° Quad, Map 1-1894. 1989. Weld County. Weld County Comprehensive Plan. Final Draft. August 22, 1995. 5-1 Hello