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Home My WebLink About770015.tiff WELD COUNTY Guidelines and Policies for Extension and New Development of Power Plants, Electric Transmission Lines, Pipelines and Other Major Public Utility Facilities • PUBLIC UTILITIES PLAN July 1977 Board of County Commissioners Edward Dunbar, Chairman Norman Carlson Leonard Roe Victor Jacobucci June K. Steinmark Weld County Planning Commission Chuck Carlson, Chairman Harry S. Ashley J. Ben Nix Percy Hiatt Jerry Sucla Jerry Kiefer Irma White Bette Kountz Marge Yost Planning Department Staff Gary Z. Fortner - Director, Department of Planning Services Roy Jost - Project Planner and Coordinator Planning Zoning_ Bill Hughes Bob Adams Allen Jost Cathy Carter Ken McWilliams Chuck Cunliffe Thom Rounds Thomas Bonn Bill Rodriguez Virgil McKee Ann Thayer Jim Veentsa (Intern) Project Asst. Sheri Wilson Drafting Secretarial Edward Caller Shirley Phillips Paulette Werver Kathy Hrouda ii DOCUMENTATION • The method of documentation used in this project is an efficient, simple system of citing sources recommended by Herman H. Weisman, Basic Technical Writing (2nd ed. ; Columbus, Ohio: Charles E. Merrill Publishing Company, 1968), p. 390. This system, instead of using a footnote at the bottom of the page, integrates the documentation refer- ence within the text line following immediately the matter or source to be documented. The documentation reference begins with a parenthesis, then lists the sequential number of the bibliographic reference source being used, followed by a colon, the page numbers of that bibliographic reference, and then closed by a parenthesis; for example (2:27). This tells the reader that this material was borrowed or quoted from the bibliography (sources cited) and that the matter quoted appears on page 27 of that source. This system is simple, efficient, and provides the reader with all the needed information. Sources cited for this project are listed sequentially in the order that they first appear in the report. iii TABLE OF CONTENTS INTRODUCTION 1 I. PUBLIC UTILITY SYSTEMS 6 A. Electric Systems 9 B. Oil and Gas Systems 13 1. Pipelines 14 2. Storage Facilities 16 C. New Development 19 1. Reliability and Cost Factors 21 a. Interconnection and Dispersion of Power Facilities 21 b. Right-of-way Length 21 c, Transmission Line Support Structures . . . 22 d. Underground Electric Transmission and Distribution 23 e. Pipeline Transmission 25 2. Physical Factors 26 a. Site Size and Right-of-way Width 28 b. Cooling Water 30 c. Fuel and Energy 31 d. Access and Transportation 33 e. Existing Land Use Obstacles 34 D. Summary 36 II. PUBLIC UTILITY DEVELOPMENT AND LAND USES . . 38 A. Agricultural Areas 40 1. Power Plants 41 a. Agricultural Land Loss 42 b. Agricultural Water Loss 43 c. Pollutants 44 2. Electric Transmission Systems 46 a. Irrigated Areas 47 b. Non-Irrigated Areas 49 iv c. Access 51 d. Cropdusting 52 3. Pipeline Systems 54 a. Irrigation Ditches 55 b. Construction Operations 56 B. Community Growth Areas 59 1. Power Plants 60 a. Socio-economic Impacts 60 b. Pollutants 62 2. Electric Transmission Systems 65 a. Appearance 65 b. Radio and T. V. Interference 68 3. Pipeline Systems 69 a. Development Patterns 70 b. Safety 71 C. Other Resource Areas 73 1. Mineral Resource Areas 74 a. Sand and Gravel Resources 75 b. Oil, Gas, Coal and Uranium Resources • • 76 2. Wildlife Areas 77 a. Raptors 78 b. Water Fowl 80 c. Fish 81 3. Cultural Resources 82 a. Archaeological Resources 83 b. Historic Sites 83 c. Scenic and Recreational Resources 84 D. Summary 86 III. POLICY GUIDELINES 88 A. Conflicts and Recommended Actions 91 1. Power Plants 92 a. Impacts on Agricultural Uses 93 b. Impacts on Communities 94 c. Impacts on Mineral, Wildlife and Cultural Resources 98 v 2. Electrical Transmission Systems 102 a. Impacts on Agricultural Uses 103 b. Impacts on Communities 107 c. Impacts on Mineral, Wildlife and Cultural Resources 110 3. Gas and Oil Pipeline Systems 113 a. Impacts on Agricultural Uses 114 b. Impacts on Communities 118 c. Impacts on Mineral, Wildlife and Cultural Resources 119 B. Summary and Conclusions 123 SOURCES CITED 127 APPENDIX/REGULATIONS 130 vi LIST OF TABLES TABLE 1 CLASSIFICATION OF ELECTRIC LINES 11 TABLE 2 1975 COSTS FOR SINGLE-POLE TUBULAR STEEL STRUCTURES 23 LIST OF MAPS MAP 1 ELECTRIC COMPANY SERVICE AREAS IN WELD COUNTY 12 MAP 2 MAJOR ELECTRIC UTILITY FACILITIES IN WELD COUNTY 12a MAP 3 MAJOR OIL AND GAS PIPELINES IN WELD COUNTY 17 MAP 4 MAJOR OIL AND GAS PIPELINES IN SOUTHWEST WELD COUNTY 18 vii Introduction INTRODUCTION The Weld County Public Utilities Plan was developed in conform- ance with, and in response to, the Weld County Home Rule Charter which became effective on January 1, 1976; specifically, those portions of Article IV, Section 4 of the charter identified below. 4(4)(e). No utility transmission system shall be constructed until the entity developing such system shall have made application to the Weld County Planning Commission pursuant to the rules and regulations of the Planning Commission and until such utility system has been approved by the Board. Prior acquisition of utility trans- mission easements and rights-of-way shall not be considered by the Planning Commission or Board. 4(4)(f). The Planning Commission shall establish rules and regu- lations covering applications for utility transmission easement systems and hearings thereon. The application shall include all information required by the Board including environmental and economic impact statements. 4(4)(g). The Planning Commission shall make its recommendation to the Board as to whether an application for a transmission utility system should be granted or denied and the Board shall make a final determination. In addition, Title 24, Article 65. 1, Section 101, Colorado Revised Statutes 1973, as amended, encourages local governments to identify, designate, promulgate guidelines and regulations, and administer areas and activities of state interest. Major facilities of public utilities are included in the statute as activities of state interest and are defined as follows: 1. Central office buildings of telephone utilities; 2. Transmission lines, power plants, and substations of electrical utilities; and 3. Pipelines and storage areas of utilities providing natural gas or other petroleum derivatives. 2 Regarding such public utilities, the statute states that: "Where feasible, major facilities of public utilities shall be located so as to avoid direct conflict'with adopted local govern- ment, regional, and state master plans. " ( 1 :345) Finally, the Weld County Comprehensive Plan, the basic policy guide- line for land use decisions within Weld County, was adopted by the County Commissioners in September 1973. This plan is based on two fundamental premises: 1. Retain prime agricultural land for agricultural use. Since the character and economy of the County depend on this agricultural base, the County' s prime agricultural land and basic agricultural way of life are to be protected. 2. Retain and build upon the twenty-eight existing incorporated communities located in this county in order to minimize urban and agricultural land use conflicts and to minimize the cost of new facilities and services to the taxpayer. In recent years, it has been recognized that electrical, oil and gas utility facilities have the potential for creating negative impacts on both the agricultural and urban sectors of Weld County. The disruption of irrigation systems, breakage of farm equipment on guy lines, and the dangers posed for crop dusting operations are examples of negative impacts in agricultural areas. The splitting of agricultural land parcels through the condemnation of prime lands for needed right-of-ways, and the aesthetic degradation of both rural and urban areas as such utilities are installed, have stressed the need for guidelines and regulatory con- trols which will reduce negative impacts on land values and insure com- pliance of such installations with the Weld County Comprehensive Plan. As indicated above, Weld County is unwilling to sacrifice prime 3 agricultural lands when such sacrifice is unnecessary. However, it is recognized that electrical, oil and gas energy are resources which also serve the total community. They are a necessity for many urban and agricultural uses, and make many of the conveniences of modern living possible. As a result, this amendment to the Comprehensive Plan addresses the trade-offs which must be considered between urban and agricultural uses as we strive to utilize our resource base to its full potential. The basic purpose and intent of this plan is to (1) set forth policy guidelines as amendments to the County Comprehensive Plan, which minimize conflict between existing and proposed land uses and proposed public utility structures; and (2) to promulgate regulations, as amend- ments to the Weld County Zoning Resolution, for the administration of activities involving the location of major electrical transmission lines, pipelines, power plants, substations, storage areas for oil and natural gas and central office buildings of telephone utilities. This plan is based on interviews with personnel of numerous utilities operating with- in Weld County, on input from various local organizations and agencies, and on existing Weld County land use policies. In the following sections, this Plan first examines the major energy facilities and their relationship to existing and proposed land uses in Weld County. The Plan then sets forth various policy guide- lines directed at minimizing conflicts which may occur as public utility facilities are constructed in our agricultural and urban areas. 4 Finally, the Plan establishes a permit system for reviewing applications to construct major oil, gas and electrical facilities within the unincorpor- ated areas of Weld County. 5 I. Public Utility Systems I. Public Utility Systems There are numerous locations in Weld County where oil and gas resources have been discovered. Many miles of pipeline have been laid to carry these resources from production wells to nearby storage tanks and distant processing facilities. There are also many additional miles of line which traverse Weld County carrying oil and gas produced in other counties and states to various processing sites and market centers located in the Denver Metro region. This existing pipeline system is comprised of three general categories of lines: 1) well gathering lines (3-4 inches in diameter) 2) lateral gathering lines (6-10 inches in diameter), and 3) trunk lines, mainlines or transmission lines, (10 -24 inches in diameter) In any case, these existing lines continue to function as oil and gas are pumped into the system from local and outside sources. Many miles of electrical transmission line, which are much more obvious in their presence than underground pipeline, also exist in Weld County. At the present time, these lines carry electrical energy from sources located in other areas to electrical utility companies throughout this region for distribution purposes. Electrical utility systems also have 7 components with different functions, generation facilities, transmission lines, substations and distribution lines. The components of the existing utility systems and their functions are presented in this section. The concerns of the utility companies for reliable and efficient operation are also presented. 8 A. Electric Systems There are nine agencies currently involved in the generation, transmission and/or distribution of electricity in Weld County. These include: 1. Home Light and Power Company, 2. Morgan County REA (Rural Electric Association), 3. Pine Bluffs REA, 4. Platte River Power Authority, Inc. , 5. Poudre Valley REA, 6. Public Service Company of Colorado, 7. Tri-State Generation and Transmission Association, 8. Union REA, and 9. U. S. Bureau of Reclamation. The facilities which may be associated with such companies include power plants, transmission lines, substations and distribution lines. Home Light and Power Company and the four REA' s operate a few miles of elec- tric line which can be classified as transmission line, however, their systems principally consist of primary and secondary distribution lines. These lines generally parallel county roads and city streets or alleys. Structures which carry distribution lines are referred to by most people as "telephone poles. " Transmission lines, on the other hand, generally 9 utilize steel or double-pole wood structures for support and are recog- nized by most people as electrical facilities. Local electric distributors generally receive their energy from agencies which generate electricity at hydroelectric or thermal (fossil- fuel, nuclear, geothermal) generating plants, or from intermediate distribution companies who buy power from generating agencies and sell it to the local electric companies. At the present time, energy supplied to Weld County is generated by distant U. S Bureau of Reclamation projects and delivered by a system of high voltage transmission lines to intermediate distribution companies such as Tri-State Generation and Transmission Association or Platte River Power Authority (PRPA). "Tri-State" delivers power to the local electric companies which operate in Weld County. "Platte River" provides electric power to four cities outside of Weld County ( Fort Collins, Loveland, Estes Park, and Longmont), however, the PRPA transmission system affects lands in this county. The Weld County service areas of the local electric companies are delineated on Map 1, Page 12. Map 2, page 12a depicts all substations, power plants, electric lines (33KV and above), and the company responsible for such lines and facilities. Table 1 classifies the various sizes of electric lines which exist in Weld County. 10 Table 1 Classification of Electric Lines Normal Voltage Carried in Classification Voltage Range Weld County secondary distribution 0-750 volts 110-220 volts primary distribution 7. 5 -33 KV I 7. 2-12. 45 KV 34. 5KV subtransmission 33 -69 KV 44 KV 69 KV 115 KV transmission 69 -345 KV 230 KV ** EHV transmission 345 KV and higher 345 KV MKV - Kilovolt ( 1, 000 volts) 4: EHV - Extra High Voltage (used primarily for intrastate transmis- sion) 11 B. Oil and Gas Systems There are a number of companies presently involved in the production, transportation, processing and/or distribution of gas and oil in Weld County. These companies include: 1) Adolph Coors Company 2) Amoco Production Company 3) Chevron Oil Company 4) Cheyenne Pipeline Company 5) Cities Service Oil Company 6) Colorado Interstate Gas Company 7) Continental Pipeline Company 8) Halliburton Gas Company 9) Industrial Gas Supply Company 10) Kansas-Nebraska Natural Gas Company 11) Martin Gas and Oil Company 12) Panhandle Eastern Pipeline Company 13) Pasco 14) Philips Petroleum Company 15) Public Service Company of Colorado 16) Rocky Mountains Natural Gas Company 17) Standard Oil Company 13 18) Vessels Gas Processing 19) Western Slope Gas Company 20) WyCo Pipeline Company Many of these companies have established facilities in or near production fields located in Weld County, while some of these com- panies simply traverse the county with transmission facilities tied into out-of-county production or distribution points. The "Wattenburg Field" located in the Southwestern portion of Weld County is the largest production area in this county. The following paragraphs describe the facilities and various methods utilized by companies involved in the production and transportation of gas and oil in such fields. 1. Pipelines Generally, companies involved in petroleum production within Weld County contract with pipeline companies to transport the product from the well head or tank battery to processing plants, refineries, stations, terminals, and other delivery and receiving points. Various steps and facilities are involved in this delivery process. In the case of crude oil, the product is moved from the well head to a storage tank in the immediate vicinity through gathering lines. Gathering lines are, in most cases, relatively small diameter steel pipes (cast iron, plastic, and copper are also utilized to lesser extent) which function at pressures up to 200 pounds per square inch (psi). Gathering lines are also used to move crude oil and other liquid 14 hydrocarbons produced from individual wells to a main line pump station. Main lines (transmission lines), which function at pressures up to 1000 psi, are then used to carry the crude oil to destination. As the oil moves through this system of pipelines, flows are maintained by utilizing pump stations which are located at intervals along the lines. The destination points of the oil may be a tank farm where the oil is stored in storage tanks of various capacities; it may be a junction point on another pipeline system which accepts the oil for further transport; or it may be an oil refinery where the crude oil is processed into refined products of the petroleum industry. Once the crude oil reaches a refinery, additional pipelines may be utilized for transportation of refined products. Normally, a products line, as it is called, extends from a petroleum refinery to terminals along the line where the products are delivered into tanks. Products are distributed from these tanks to adjacent markets by tank truck or trans- port. Refined products which may be pumped through a products system may include gasoline, kerosene, and light fuel oils. Natural gas pipeline systems are comprised of gathering lines, compressor stations (pump stations), and transmission lines extending from natural gas producing areas to the distributing systems of cities and towns. The flow of liquid or natural gas through pipelines is directed and controlled by a dispatcher in much the same way that the movement of trains is controlled on a railroad. Flows are physically regulated by 15 control devices and valves, many of which are automatically operated from control stations hundreds of miles away. Common diameters for both oil and gas lines are between 2 inches and 24 inches. Larger sizes are rare, but do range up to 48 inches or more. For purposes of this plan, oil and gas transmission lines shall be considered to be any line of 10 inches diameter or larger which creates a hoop stress of 20% or more at their specified yield strength. 2. Storage Facilities Storage areas for oil are usually located at the beginning or end of a major transmission line. Storage areas at the end of a line (area of destination) have an average capacity of 60, 000 barrels. Storage area capacities at major points of origin average approximately 200,000 barrels. Such storage areas occur at very few locations throughout the country. The 60, 000 barrel capacity storage area could be used as actual supply for several days if the major transmission line were shut down. However, the main oil supply for most areas is usually not the oil storage facility, but the oil which is in the actual pipeline. Storage areas for natural gas consist of small surge tanks, under- ground caverns, and, as in the case of oil, the pipeline itself. Under- ground caverns consist of gas tight natural caves which have been cleaned and purged of any existing gas. Underground caverns are used for storage purposes in this region just south of Ft. Morgan in adjacent Morgan County. 16 C. New Development The use of electricity, oil and natural gas is basic to our life- style and our economy. Almost nothing is so taken for granted as that there will be light when the switch is turned on and heat when the thermo- stat is turned up. Utility companies which supply the energy to heat and light our homes and businesses, and to run our machines, must antici- pate future energy requirements prior to the time such supplies are actually needed. In other words, new production, generation and trans - mission facilities must be ready to go "on line" before energy shortages occur, not after they occur. Growth rate in the demand for power is fairly predictable and can be translated into system needs for new facilities. Development or extension of public utility facilities, once need is deter- mined and accepted, revolves around the question of where the needed facilities are to be built. Technical, economic, legal, environmental, and public opinion factors are included in the site selection procedure used by most utilities. Public Service Company of Colorado, for example, considers the follow- ing elements when selecting routes for major power lines: (2:1 -4) 1) Present and proposed land use patterns and zoning regulations; 2) Social values, such as aesthetics, historical and archaeological interests; 19 3) Existing utility corridor analysis to determine feasibility of joint use; 4) Economic and reliability analysis to provide reasonable and continuous service to consumers; 5) Physical evaluation of floodplains, geologic hazards, topo- graphy, marshes, and hydrology to determine the environ- ments' capability of accepting a power line; and 6) Vegetation and wildlife analysis in efforts to keep adverse impacts to these resources to a minimum. Even though each utility company may evaluate similar elements in the site selection procedure, the importance they attach to these various elements may differ. For instance, one company may consider agri- cultural land use important, and go to great efforts to avoid inter- ference with agricultural operations. At the same time, another com- pany may consider wildlife or recreational areas more important and attempt to avoid these land uses, to the potential detriment of agricul- tural operations. In general, most companies follow guidelines and criteria established by the Federal government regarding safety, land use and environmental factors. In any case, the principal function of the utilities industry is to supply energy at a reasonable cost, where and when it is required. Therefore, such factors as construction costs and system reliability become primary concerns when present or projected needs require new construction or extension of existing facilities. 20 1. Reliability and Cost Factors a. Interconnection and Dispersion of Power Facilities The size and location of new facilities must be considered in relation to the distribution of system load and the layout of the inter- connecting transmission network. By this means, surplus energy can be shifted at a moments notice to any area facing a temporary shortage or to meet extra demands. Interconnection saves the building of addi- tional facilities that would operate mainly in such periods, and con- sequently reduces costs. Similarly, power generation points strategi- cally located enable the power companies to better meet their customers' needs for reliable electric energy. Electric utility companies prefer to disperse the generation facilities in order to decrease the potential for prolonged power failures. The ability to supply electric energy from a variety of power sources and via a variety of transmission routes has greatly improved the efficiency and reliability of the utility companies. b. Right-of-Way Length The length of transmission line or pipeline right-of-way is a primary factor to be considered when present or projected needs require new construction or extension of existing facilities. In general, a direct route between an energy source and a delivery point is con- sidered most economical when only installation costs are given consid- eration. In other cases, such as in mountainous areas, it is often 21 more feasible, and actually shorter, to route a line around a mountain than over it; however, in Weld County, any non-direct route requires increased line length and more support structures or facilities. In the case of electrical transmission lines, power losses (energy capa- bility and efficiency) are proportional to the length of line; therefore, increased length results in higher operating costs. Since capital and operating costs become part of the rate base, these additional costs are finally passed on to the consumer. c. Transmission Line Support Structures The type amt design of transmission line support struc- tures is a factor which affects capital costs. There are four basic types of structures utilized in Weld County: (1) single pole wood; (2) H-frame wood; (3) lattice steel; and (4) tubular steel. Numerous variations or designs for each type structure are utilized. Single pole wood structures are normally used for all lines of 69 KV or less. Struc- tures used to support larger lines are often a matter of company preference based on considerations such as cost, reliability, and public acceptance. For example, one company may prefer to carry a 115 KV line on H-frame wood structures, which minimize cost and still provide a high degree of reliability. However, tubular steel poles may be used to minimize negative impacts on land values and aesthetics. 1975 cost approximations for single-pole tubular steel structures are listed below in Table 2. These figures will give the reader an idea of the expense 22 involved in utilizing such structures. It should be noted that inflation is causing costs to rise at approximately 8% per year currently. Table 2 1975 Costs for Single-pole Tubular Steel Structures Up to 25° Angle 55-90o Angle Single Circuit Double Circuit Division Pole Division Pole $6, 000. 00 $12, 000. 00 $17, 000. 00 $20, 000. 00 According to our interview with U. S. Bureau of Reclamation personnel, the cost of using single pole tubular steel rather than H-frame structures is approximately 50% greater, and that the cost of lattice steel structures is approximately 20% greater than H-frame structures (3: Interview). d. Underground Electric Transmission and Distribution Underground electric power distribution is an alternative which eliminates the need for support structures and reduces maintenance c osts. However, underground systems are generally more expensive, and for higher voltage lines, technologically unfeasible for long distances. 23 In general, the higher the voltage the greater the problems associated with underground lines. Normally, when the voltage is lower, there is a smaller difference in cost between underground and overhead lines. For instance, when considering a particular subdivision, the cost of underground distribution lines may vary from . 25 to 7 times the cost of overhead lines. In other words, it may actually cost less to bury dis- tribution lines within a mobile home park, but cost much more to place distribution lines underground in mountain subdivisions. In most con- ventional subdivisions, the cost for underground lines is approximately 1. 5 to 2 times greater. Underground 34. 5 KV lines cost approximately 3 to 4 times more to construct than overhead lines of the same size. The cost factor for placing even higher voltage lines underground may run from 10 to 30 times more. Downtown metropolitan areas are a major exception to this "rule-of-thumb " In such areas, overhead costs skyrocket because of intense land uses. However, in these cases, underground lines, though still expensive, are more feasible when the need for elimination of conflicts between utility structures and existing uses is considered. Information tends to indicate that the placement of high voltage transmission lines underground could lead to substantial costs to con- sumers of electrical energy. In general, underground facilities may be feasible, but the decision to place lines underground in particular areas must be given careful consideration and evaluated with reference to 24 trade-offs associated with such factors as consumer costs, feasibility, reliability, land values, aesthetics and impacts on land uses. In Weld County, a few electric companies are placing their dis- tribution lines underground in order to reduce maintenance costs, even though such lines are slightly more expensive to install. In the southern part of the County, problems have emerged as a variety of utility com- panies and agencies have begun laying underground systems. In many cases, electrical cables have been damaged as trenching operations have proceeded for additional underground utility installations. Such problems could be eliminated through more adequate communication between the companies and agencies involved. In the northern part of the County, a not too unusual problem results as rodents chew up the buried cable. In general, however, these problems are not as great or as costly as those caused by the effects of ice and wind on overhead lines. e. Pipeline Transmission Pipeline transportation of petroleum in large volumes can be accomplished at lower costs than those incurred by utilizing methods of overland transportation. However, there are certain prob- lems associated with the use of pipelines. In the case of new, large- volume production leases, a pipeline company is generally allowed a certain time period for the connection of wells (from 60 to 120 days) after the producer gives notice that a well is completed and ready for 25 connection. Under normal circumstances, the receipt of this notice triggers right-of-way acquisition and commencement of pipeline installation. Pipeline companies failing to connect in the specified time are required to make "take-or-pay-for" payments to the producer in order to keep the well involved subject to the contract. Such pay- ments, or front-end money, serve to increase cost of purchased oil and gas; a cost which is passed on to the consumer. In terms of maintaining such pipeline systems, one of the principal costs is the prevention or retardation of corrosion of the metal in the pipeline. Chemical and physical. tests of soils and studies of drainage, electrolytic, galvanic, and other conditions are required in order to ascertain the kind and location of protective coating which will be most useful in preventing such problems and to determine the necessity for, and most suitable method of, cathodic protection. 2. Physical Factors Energy sources exist naturally in the case of oil and gas and, therefore, must be produced where they are found. Electricity, on the other hand, is created artificially and may be produced in a variety of locations depending on the type oti g* nerating plant proposed. Likewise, pipeline systems may be located in a variety of right-of-way configura- tions once the lines depart from the wellhead area. A number of physical factors may become important in the site selection process when electrical power generating facilities are proposed. 26 For instance, power plant site considerations call for flat land with stable soil conditions capable of supporting foundations and heavy equip- ment. The site should also offer reasonable protection against flooding. Pipelines and electrical transmission lines which deliver energy from the sources to consumer areas have few physical requisites essential to their location. However, certain physical conditions are preferred, and others avoided,for economic and engineering reasons. Steep rocky areas, geologic hazards, marshes, corrosive soils, and areas with an avalanche potential are avoided whenever possible. For example, when a new pipeline is proposed between two points, a tenta- tive route is selected. This route is then more precisely checked for the physical conditions noted above by the use of information derived from aerial and ground surveys. Rights-of-way are then purchased along the entire route, after which an accurate engineering survey of the exact routing of the line is within the right-of-way completed prior to construction. Pipelines are then generally buried to a, depth below frostline which: ( 1) avoids interference with farming or other uses of the land surface, (2) provides protection against accidental breakage, and (3) provides protection against increased expansion and contraction difficulties which the line would be subjected to if laid on or just below the surface. In general, whenever the process of site selection occurs, several physical factors are given consideration. These may vary as different types of facilities are considered. 27 a. Site Size and Right-of-Way Width Land requirements for acreage and easements vary with the size and type of facilities proposed. For example, a modern coal-fired plant designed for 4, 000 megawatt capacity may range from 1, 000 to 2, 000 acres, depending on allowances made for fly-ash storage and the type of cooling system utilized. In the event a man- made reservoir is used for cooling, upwards of 4, 000 additional acres may be required. On the other hand, a 4, 000 megawatt capacity gas-fired or oil- fired plant requires a land area approximating 100 to 200 acres. In other words, one-tenth (1/10) the land acreage required of a comparable sized coal-fired facility. Nuclear power plants of 4, 000 megawatts require about 115 acres for the actual power generation facility. How- ever, when cooling water systems are used in such plants, water requirements are approximately 50 per cent greater than in comparable fossil-fired plants. Hence, acreage needs will again depend on whether an auxiliary cooling system is necessary (4:24). When considering transmission facilities, right-of-way sizing becomes an important consideration. Electric, oil and gas utility easements must be wide enough to allow for installation, operation, and maintenance of the lines involved. In the case of pipelines, twenty feet is the general width for right:-of-way (R. O. W. ) easements in Weld County. However, depending on line size, pipeline easement contracts generally have stipulations for temporary R. O. W. widths ranging up to 28 sixty-six feet in order to accommodate construction operations. In such cases, all R. O. W. except ten feet on each side of the easement center line may revert back in full title to the landowner after the con- struction period . The twenty feet of easement area must then be kept free of any permanent structures which would interfere with operating or maintenance procedures. The width of electric transmission line R. O. W. is established not only to allow for installation and maintenance of the lines, but also to ensure that other structures are not allowed to intrude so close so as to be susceptable to the dangers associated with the high voltage wires or the possibility of a support structure toppling over. When considering single-circuit transmission lines, a 115 KV line will generally have an easement width of 75-100 feet; a 230 KV line an easement width of 150 feet; and a 345 KV line an easement width of approximately 190 feet. Distribution line R. O.W. , however, is not considered a critical safety necessity and may be described in such general terms as "one foot outside of road right-of-way. " When the location of electrical substations is being considered, a number of other factors must be taken into account. Substation acreage requirements range from small local site requirements of about 2z acres or less, to large regional site requirements of 80 acres or more, depending largely upon the load area to be served and anticipated growth rates. The U. S. Bureau of Reclamation Ault Substation in Weld County is an example of a large regional substation being developed to 29 accommodate a large number of major transmission lines needed to serve a rapidly increasing population and expanding industrial base along the Northern Colorado Front Range. Substations are located along transmission lines in order to step- up (increase) or to step-down (reduce) power. Power is carried by an electric line in proportion to the square of its voltage. Thus, if voltage is tripled, nine times as much power is carried. Electricity is generally stepped-up outside a generation plant to much higher voltages for economical delivery to distant load centers, where the voltage is then stepped down to distribution levels. Substations are usually constructed as near the center of a load area as possible. Substations serving major transmission lines geo- graphically cover large load areas; therefore, their placement is more flexible than a substation handling local power distribution. In lightly loaded rangeland areas, such as exist in the northern and eastern sections of Weld County, these lines may extend 50-60 miles or more from a substation. In any case, the greater the load in a particular area - the greater the number of substations required to provide reliable service. b. Cooling Water An essential requirement in power plant siting is a supply of cooling water in sufficient quantity and of assured availability to provide water necessary for steam condensation purposes. The 30 most efficient and, in many cases, most practical method of steam con- densation is once-through cooling in which river or reservoir water is passed directly through the turbine' s condenser and then returned to the water source at a 15-25o F increase in temperature. The quantity of cooling water required for once-through cooling of a 4, 000 megawatt fossil-fired plant is approximately 2 million gallons per minute and for a nuclear plant of comparable size, 3. 2 million gallons per minute. It is highly desirable, if not essential, to locate such plants adjacent to the body of water from which the cooling water is to be taken (4:24). In plants of this size, where water is not available in such quan- tities, either because of low flow conditions or environmentally estab- lished temperature restrictions, cooling towers are necessary. The use of such towers reduces water requirements to about 52, 000 gallons per minute, although they create a consumptive use through evaporation of about 37, 000 gallons per minute. Nuclear plants increase the con- sumptive use figure by about 50 percent (4:24). In general, however, cooling reservoirs also need a water source, both for their creation and for replacement of water lost through natural as well as power plant-induced evaporation. The location of a water supply source thus remains a critical factor to be considered in siting decisions. c. Fuel and Energy Nuclear plants are free of any siting requirement with regard to fuel supply. Hydroelectric and fossil-fired plants, however, are dependent upon reliable and economical access to water or fossil fuel supplies. Thus, the type and location of such power plants are often determined by the location of fuel sources or the availability of water for generation purposes. Historically, fossil-fired plants have been largely confined to the areas of the country producing gas, oil, or coal. However, the staggering increase (400%) in the price of oil following the Arab oil embargo of 1973 and the growing unavailability of gas has nearly eliminated these two fuels as major resources in the generating of electrical energy. In addition, experts estimate that hydroelectric plants will generate smaller percentages of our electricity in the future for a variety of reasons: (1) most of our great rivers have already been dammed to capacity, (2) objections to the construction of new dams because of the destruction of natural "wild river" systems and fish life, and (3) the useful life of dams appears to be less than one hundred years due to silt buildup. Therefore, unless alternative sources such as solar energy become more economical in the future, it appears that nuclear energy and coal are the fuels which we must rely upon to supply our electrical needs. Thus, it may be assumed that fossil fuel plants that are built in the future will likely be located near our nation's coal resources. Historically, coal has been the primary fuel used for the produc- tion of electricity, accounting for approximately 44 per cent of the total electricity generated, while nuclear energy has accounted for less than 1 per cent of the total. In that coal is the only fossil-fuel resource in 32 which the United States is completely self sufficient (5:Folio), it appears that coal's capacity to supply our electrical energy needs is only limited by the logistic and economic problems of mining and transporting the enormous quantities necessary for generation and by associated environ- mental problems. The Weld County Mineral Resource Study, completed in 1975, delineates those areas of Weld County where coal resources are to be found. d. Access and Transportation The existence of railroad and/or other transport facilities are essential during construction and operation of power plants, transmission lines and pipelines. When considering power plant sites, it must be determined that access roads and bridges are capable of supporting heavy loads. As power plants are constructed and oper- ated, large amounts of fuel and components of equipment must be shipped in and sometimes replaced. In the case of nuclear plants, access for removal of spent fuel elements must be considered. Such elements must be placed in massive shielded shipping casks, weighing 25 to 100 tons, for transportation to a reprocessing plant where uranium and plutonium are separated from the fission products. In considering site locations for pipelines or electrical transmis- sion lines, convenient access to the facilities over all weather thorough- fares is very important. If such access is available when leaks, outages or other mishaps do occur, service can be restored as quickly 33 as possible. This consideration is a major reason for locating most distribution lines adjacent to county roads and city streets. As the size of pipelines and electric transmission lines increase and as the distance they traverse becomes greater, access becomes less of a concern due to the trade-offs which must occur when cost is considered. Conformance to the rectilinear pattern formed by the road system can increase the cost of building larger lines by a factor of 2. Therefore, in open country, utility companies are more likely to follow terrain features, rather than roads, as larger lines are constructed. In such cases, if access becomes a substantial problem, lines may be checked from an airplane to spot maintenance problems. e. Existing Land Use Obstacles As noted previously, whenever possible,utility com- panies avoid locating their facilities on steep rocky areas, geologic hazard areas, marshes, corrosive soil areas, and areas with an avalanche potential. Federal regulations require that such site charac- teristics be given consideration in various instances. Fossil-fuel generating plants are required by Federal regulations to be constructed to withstand earthquake forces So% greater than building and highway structures covered by building codes. Nuclear plants must be designed to withstand the maximum earthquake motion that could be expected at the particular sites on which they are located. 34 Other physical obstacles may also enter into site evaluation. In routing transmission and pipelines, the avoidance of residential struc- tures is generally given precedence over most other considerations. In these cases, right-of-way width requirements become an important factor in determining whether a line can be placed between a residence and a road right-of-way. In general, priorities given to various land use considerations by particular utilities will determine to a large extent whether specific land uses will be treated as obstacles or not. For example, many utilities will go to great efforts to avoid routing lines or siting facilities on park and recreation areas, on lands irri- gated by pivot sprinklers or on lands with a potential to be irrigated by the use of sprinklers. In such cases, these specific land uses are treated as obstacles and avoided to the extent practical. 35 D. Summary This section has examined the existing electric, oil and gas facilities situation in Weld County, and has reviewed a number of factors which are important considerations to public utility companies with reference to new development or extension of major utility facilities. The demands for energy supplies are increasing daily. These demands are stimulated by the rapid population growth occurring in the front range areas, as well as the expanding use of sprinkler irrigation systems in dryland areas of the eastern Colorado plains. Weld County is experi- encing a large portion of this growth and expansion, and can therefore expect continued development and expansion of major utility facilities needed to serve the increasing demand for energy. Utility companies must keep a step ahead of demand pressures with their energy supplies or energy shortages will occur. Thus, facilities must be planned and built prior to the time they are actually needed. In choosing locations for new facilities, a number of factors are taken into account, including technical, economic, and physical con- siderations. This section has noted that the priorities attached to each of these factors may vary between companies. It is at this juncture where the next section of this plan begins, because it is primarily differences of priorities which have led to conflicts between utility companies and the 36 citizens of Weld County when new facilities of public utilities have been proposed. 37 II. Public Utility Development and Land Uses II. Public Utility Development and Land Uses Two major land use categories are examined in this section with reference to conflicts between power facilities and land uses. a) agricultural area; and b) community growth areas. Although the County is principally characterized by extensive and inten- sive agricultural production activities, a rapid population growth is increasing pressures for residential, commercial, and industrial development. As discussed earlier, the general policy of Weld County concerning urban development is to encourage growth around the exist- ing 28 incorporated towns. One reason for this policy is to minimize urban and agricultural land use conflicts. Thus, population growth areas are segregated from outlying agricultural lands and, therefore, treated separately in this plan. An additional category entitled "Other Resource Areas" examines potential conflicts between development of power facilities and existing r 'r,•ral, wildlife, and cultural resources. 39 A. Agricultural Areas Agriculture is a vital segment of the County economy. The County, as a whole, is ranked number two in agricultural production among all counties in the United States (6:4). Irrigated agricultural lands are, in general, the most productive lands in the County. Closely tied to water distribution systems, these lands are found primarily within the major drainage systems of the area. Irrigated lands, in many cases, occupy those areas most suscep- tible to urban growth; and, therefore, to increased needs for electrical transmission facilities. Dryland crop areas and rangeland constitute a significant portion of Weld County' s land area. These vast acreages are found in some of the less populated portions of the County. These lands support large populations of wildlife and livestock, as well as important dryland agricultural crops. The Weld County Comprehensive Plan has recognized that "agricul- ture" is considered a valuable re:.ource in Weld County which must be protected from adverse impacts resulting from uncontrolled and undir- ected business, industrial, and residential growth. " To insure this pro- tection, the plan further states that ". . . any uses of prime irrigated farmland for uses other than agricultural will be critically reviewed to insure the proposed development will not adversely impact the 40 agricultural interests of the County and that development will positively contribute to the overall economy, environment and tax base of the county. " (7:48) In order to provide protection of agricultural lands, the A- Agri- cultural Zone District was established under the Weld County Zoning Resolution with the following intent as stated in the Resolution: The intent in establishing the A- Agricultural Zone District is to allow all agricultural and related uses in those areas in which agriculture is and should continue to be the predominant land use. This district is intended to discourage encroachment of incompatible uses upon the agricultural land in the district, to encourage agricultural uses as the highest and best use of the land in the district as compared with other uses in conflict therewith, and to provide For the orderly expansion of urban growth in conformance with the Weld County Comprehensive Plan (8:6). Under the resolution, only those uses compatible with agricultural operations are allowed. 1. Power Plants Given present technology, the nation as a whole is highly dependent upon fossil fuels for energy production. The most abundant fossil fuel, and historically, the primary fuel for the generation of electricity, is coal. Weld C2itaw is underlain by vast deposits of low-sulfur coal. Considering the high price of oil and the increasing scarcity of natural gas, it seems that the potential exists for the development of Weld County coal resources in conjunction with electrical generating facilities, even though oil and natural gas resources are present. However, whatever the fuel used, development 41 of electric generating plants can create unfavorable impacts on agri- cultural lands. The following sections discuss the impacts which may be anticipated from such development. a. Agricultural Land Loss The amount of land required for a generating plant site can be substantial, depending on the type of plant proposed. In the case of a coal-fired electric generating plant, more land is required if the coal resource is to be mined at the site than if it is to be shipped in by rail. In addition, more '. .*a is required if a new water holding reservoir is necessary, than if -•.n. existing reservoir can be utilized. As noted previously, typical land area requirements for a modern 4, 000 megawatt capacity coal-fired plant may range from 1, 000 to 2, 000 acres. In the event a man-made reservoir is required for a cooling medium, upwards of 4, 000 additional acres could be neces- sary (4:24). Nuclear plants, as noted previously, require less land area than fossil-fuel plants for the actual power generation facility, but, in some cases, greater area t r cecling water requirements. The 330 megawatt Fort Saint Vrain Nuc',c3.i. Electric Generating Station near Platteville, for example, requires 1, 190 gallons of water per minute for cooling purposes (9 :24). Public Service Company of Colorado purchased about three sections of land (roughly 2, 000 acres) for their plant site, which is located at the confluence of the South Platte and 42 St. Vrain Rivers. In this case, most of the land area is still being farmed. However, the possibility exists that substantial amounts of ground may be diverted from agricultural production as new facilities are added to the plant. Land requirements are thus a major concern of Weld County with reference to future proposals for power plant development; particularly in those instances where prime agricultural lands would be taken out of crop production. b. Agricultural Water Loss Another of the principal concerns related to the development of generating facilities is the large amount of water necessary to operate a generating plant and the sources from which such water is to be procured. For example, twenty acre feet of water per year is generally required per megawatt of power generated. In other words, a 330 megawatt generating plant would require approxi- mately 6, 600 acre feet of water each year. If this water is to be taken from existing agricultural water supplies, then several thousand acres of irrigated land would be lost, even though the plant site itself may be located in an unirrigated area. Furthermore, if coal develop- ment takes place in conjunction with a coal-fired generating plant, it could disturb groundwater availability and quality in and adjacent to the areas being mined by: ( 1 ) removing or displacing the aquifer formation, (2) blocking or diverting natural underground flows, or (3) polluting underground water sources with leachate from acid 43 forming materials. Finally, development of an electric generating facility could bring a large influx of construction workers, plant workers, miners, and family members which would require diversion of even more agricultural water for domestic purposes. In general, water is essential to the maintenance of high agricultural productivity in Weld County. The development of an electric generating plant poses a potential threat to the existing county economy by diverting substantial water supplies for cooling, production, and domestic purposes, thereby causing a shortage of water needed for agricultural uses. c. Pollutants Damage to crops and natural vegetation created by pol- lutants is another concern in Weld County. High concentrations of sulfur oxides, nitrogen oxides and particulate matter resulting from coal-fired generation can destroy plant life. However, limited data exists to help determine what affect these power plant pollutants have on crops and natural vegetation at those concentration levels permitted by Federal and State air pollution standards. The informa- tion which is available indicates that: (10: Interview) 1) Damage may occur to highly sensitive crops, such as alfalfa, from power plant sulfur dioxide (SO2) emissions, when such emissions meet present air pollution standards. Those standards allow release of 1300 micrograms of SO2 every three hours. 44 Damage to such crops is most likely to occur during brief periods when high concentrations of SO2 gases are emitted. 2) Native grasses could possibly benefit from power plant emissions of SO2 at the concentrations permitted by current standards. Studies conducted in Montana on power plant pollutants suggest that such concentrations of SO2 act as a fertilizer which assists native plant growth. 3) Current standards for emission of particulate matter do not cause negative impacts on crop production or natural vegetation. 4) Nitrogen oxides react with sunlight to form ozone which is destructive to plant life. Ozone formation generally occurs 40-50 miles downwind from power plant sites and at concentrations which, in themselves, are not likely to create a significant impact. However, high oxident levels are already present in this region, created by other man-made sources such as automobiles. The additional oxidents emitted by the power plant could be suffic- ient to create a harmful pollution situation. Fly ash disposal is an additional concern. Approximately 160 pounds of this non-combustible, very fine waste matter remains from the burning of each ton of coal. Most fly ash can be trapped and col- lected by utilizing appropriate air quality control equipment in coal- fired generation plants, thus preventing any serious air pollution problems regarding this material. However, when mixed with water, 45 this waste material hardens into an impermeable mass on which nothing will grow, and if placed in a landfill could adversely affect groundwater supplies in and around the area. Coal and utility com- panies are applying considerable research to this problem. They have found that fly ash mixed with a moisture agent literally gets stronger as it ages; suggesting that the substance may possibly be put to good use in bricks, concrete and base material for roads (11 :5). Never- theless, at present, fly ash is extensively deposited in landfill areas and as such is a concern in our agricultural areas. 2. Electric Transmission Systems Electric lines, because they are normally placed aboveground and suspended from support structures, can create significant long- term conflicts with agricultural operations. These problems are especially evident in irrigated areas where agricultural lands are more intensely developed, field sizes are smaller, farm structures are more abundant, and lands are more densely populated. Although aesthetics, or lack of the same, is a frequent concern voiced by farmers and ranchers when a power line is proposed across their property, their major concerns center around problems created by the lines, structures, and right,of-ways which affect their farm operations daily. 46 a. Irrigated Areas Electrical transmission lines conflict to some extent with all row crop operations when traversing fields. These conflicts become most apparent when such lines are located in areas irrigated by furrows or pivot sprinkler systems. During seeding and harvesting operations, problems with transmission line structures and guy wires are compounded when the farmer attempts to cultivate fields or irrigate crops. Farmland is eliminated from cultivation around a structure or guy wire for a distance of at least one-half the width of a cultivator bar. For example, when a twelve row cultivator with thirty inch row spacing is utilized in a given farm operation, an area of approximately fifteen foot radius is left uncultivated around the support structure. This creates two problems: ( 1) uncultivated ground becomes a source of weeds, and (2) irrigation water must be diverted around the area and redistributed on the other side. The latter is a difficult problem, particulary in furrow irrigated areas. All water from furrows interrupted by the waste area must be collected back into one ditch, to be redistributed on the other side into an equal number of furrows. Furthermore, this redistribution system usually requires reworking each time the field is cultivated (generally three times and up to five times per season depending upon the crop). This operation can be a muddy, time consuming nuisance. In addition, in their efforts to minimize the size of the waste area where weed control 47 will be necessary, farmers often break their equipment on the struc- tures or guy wires. This creates additional time consuming and some - times costly maintenance requirements. Additional problems arise when irrigation facilities are located underground and are therefore not readily observable. In such cases, irrigation laterals and tailwater ditches can be damaged by construction activities which precede the placement of a transmission line support structure. In general, precautions should be taken to ensure that such damage does not occur. Perhaps most effective, would be a process wherein utility companies confer with landowners to determine if such irrigation facilities are present. If they are, it would be possible to determine what steps are necessary to ensure that their function is not impaired. Finally, support structures also interfere with the flow and even distribution of water in flood irrigated alfalfa and pasture land, often leaving dry areas on the downslope side of the structures. On irri- gated lands utilizing pivot sprinklers, transmission line structures obviously cannot be placed inside the rotation area without totally restricting their movement. In areas using solid set or big jet sprinklers, structures do not conflict to any great extent with irriga- tion of crops. Nevertheless, the exact placement of structures is still a concern of many landowners. Structures can, at times, be placed on sites generally thought to be unacceptable, but specifically favored by landowners over locations selected by utility companies. In many 48 instances, shifting particular support structure sites by just a few feet can lessen impacts to farm operations. b. Non-Irrigated Areas In non-irrigated areas, power line right-of-ways, including substation sites, do not generally create as significant an impact to agricultural operations as in irrigated areas. Nevertheless, even in these areas, placement of power line structures can create problems if proper siting and maintenance procedures are not observed. In dryland areas, farmers have the same problem with weed control created by power line support structures, that farmers have in irrigated areas. Dryland farmers are just as likely to break equipment in their efforts to reduce the size of weed patches created among guy wires and support structures as are farmers in irrigated areas. Furthermore, dryland farmers indicate that support struc- tures located in their fields require uneven cropping techniques and are a nuisance to work around. One of the more prominent examples of this problem is the two parallel Bureau of Reclamation power lines located on H-frame structures on the east side of County Road 27 west of Nunn. In rangeland areas, where vegetation is notably sparse, any removal of ground cover during utility construction operations will create erosion problems during periods of high winds or intense rains. 49 This problem is especially evident in sandy areas where sites have been cleared and leveled for substations and aboveground pipeline facilities. Ranchers have indicated that it may take years for natural vegetation to be reestablished in such areas. In the meantime, blown sand drifts along fencerows and, in some instances, covers roadways to the extent that it must be periodically removed by road crews. In addition to the above concerns, farmers and ranchers have stated that utility company personnel often enter upon private lands without first notifying the landowners involved. Such occurrences are a concern to the landowners because they must stop whatever work they are doing to investigate. In ranching areas, this is a particular nuisance because of the acreages and long distances involved and the ever-present threat of cattle rustling. Ranchers have been known to confront "trespassers" at gunpoint to elicit their intentions. Thus, it is particularly important that utility company personnel notify land- owners before entering private property in order to coordinate their activities with the landowners involved. Another concern of farmers and ranchers which may arise from utility company activities includes the placement and size of easement signs. Many landowners feel that these signs are often unnecessary and have found that such signs invite trespass from hunters and other re creationists. It is their opinion that by reducing the size and number of such signs, this problem will be avoided, especially if the placement of the signs is coordinated with them. 50 c. Access Possibilities of downed transmission lines require that access routes be established along such lines. If the lines are located in fields, disruption of irrigation systems and crop destruction are likely to occur during the growing season as maintenance vehicles enter fields to work on lines. In addition, when inclement weather conditions exist, it is likely to be difficult if not impossible for maintenance vehicles to enter fields. It is during such weather that lines are usually downed; thus, service may become unavailable to customers when it is most needed. Therefore, it seems advantageous to all parties concerned to locate lines as closely as possible to the existing road system. Often, utility companies do closely parallel existing roads with their transmission lines. Support structures which are placed within road right-of-ways are not only easily acces- sible, they also eliminate most inteference problems with agricultural operations encountered when they are located in fields. However, most companies prefer to locate their lines on private property adjacent to these road right-of-ways so that they are less likely to be financially affected by future road expansion. When poles are located in this manner, if the road is ever expanded, the utility com- pany would not have to cover the cost of moving their line. If the poles are located within the right-of-way, companies would have to cover such costs, unless an agreement to the contrary could be arranged between the utility company and the County Commissioners. 51 In general, such an agreement is only practical when single-pole support structures are to be used and the county road right-of-way is not designated for future expansion in the County Thoroughfare Plan. In those cases where existing county road right-of-ways cannot be utilized, efforts should be made to place structures in such a manner that cropland fields are not split, particularly at a diagonal. Past alternatives to routing a transmission line adjacent to or within county road right-of-ways have included: 1) half-section lines; 2) quarter-section lines; 3) property lines; 4) field/fence lines; 5) drainage ways; 6) wasteland areas; and 7) railroad right-of-ways. Each of these alternatives should be considered whenever the use of road right-of ways is not feasible. d. Cropdusting Other concerns roust also be addressed in the placement of electrical utility structures in agricultural areas. Cropdusting operations, which are necessary for the production of many crops can definitely be impacted by improper placement of lines and pole structures. Cropdusting operations in this county are normally flown 52 during the growing season in order to alleviate insect and weed prob- lems which threaten crops. The problem is compounded by the number of applications required. For example, applications of insecticides to potato and cabbage fields are required four to five times each season, while corn and beet fields are sprayed only two to three times in the same time interval. Application to other crops may vary greatly. Cucumber and onion fields may be sprayed every ten to fourteen days during the growing season, while wheat fields are normally sprayed only once a year with herbicides or a herbicide-insecticide combina- tion. Electrical utility structures create the most difficulty for crop- dusting operations in irrigated cropland areas because field sizes are smaller (20 to 30 acres) and line concentrations are greater. The latter results because irrigated areas are usually more densely populated than dryland areas. In general, a plane loaded with chemi- cals can climb over distribution lines with very little difficulty; how- ever, as line height increases this climb becomes increasingly difficult. Transmission lines carried on H-frame structures of stand- ard height (60 feet) are cons tiered the maximum limit in terms of a pilot' s ability to clear the lines, after a dusting flight over a given field. If the lines are above this height, it is considered safer to fly under the lines. When higher lattice and tubular steel transmission lines are placed adjacent to normally lower distribution lines, such "fly-under" becomes impossible. In such cases, the distribution lines 53 block the flight path of a pilot attempting to fly under the higher transmission lines. When this occurs, the only alternative left to the pilot is to fly over the transmission lines and still attempt to accom- plish the task. This creates a very dangerous situation for the pilot. Loaded planes have a tendency to "stall" in the steep climbs required to fly over the lines. In addition, it is nearly impossible for a pilot flying at speeds upward of 100 m. p.h. to accurately judge distances, which is, in many cases, imperative if safe clearance of such lines is to be the result. Finally, to accomplish his mission, a cropdusting pilot must maintain a constant speed and altitude in order to get the proper concentration of spray on the crop. Thus, high lines create the same problem for helicopters as they do for fixed-wing aircraft since a helicopter must also maintain constant speed and altitude when making a pass over a field. Thi, becomes increasingly difficult as more structures limit the pilot's flight path. Cropdusters currently have a standard per acre charge for their services; however, it has been indicated that farmers who have electric transmission lines in their fields will eventually be charged additional fees. 3. Pipeline Systems Pipelines, because they are normally placed underground below plow depth, generally create less serious long-term conflicts with agricultural operations than do overhead power lines. Most conflicts which do arise are associated with construction operations 54 and can generally be rectified or avoided. However, aboveground facilities associated with pipeline operations, such as compressor stations and pig launchers, have the potential of creating long-term land use conflicts with agricultural operations much the same as electrical transmission support structures and substations. As a result, essentially the same concerns apply and will therefore not be reiterated. The following paragraphs are concerned with additional problems encountered by agriculture as underground pipeline facilities are installed. a. Irrigation Ditches A primary concern is the disruption of irrigation systems by pipeline construction operations during the growing season. A pipeline which transects an irrigation ditch may stop the flow of water to cropland at critical periods, or may create weak spots in the embankment. Such weak spots are highly susceptible to breaks which, in effect, would prevent water from reaching those users beyond the break point. In addition, subsidence may occur along a pipeline which could effectively intercept and displace needed irriga- tion waters. Thus, it is esper. s°y important to farming operations that irrigation ditches not be cut or otherwise disturbed during the growing season. It is preferable for pipeline companies to bore under such ditches before or after the growing season and, where necessary, to place temporary lines over the ditches during the growing season. 55 In any case, when traversing irrigated areas, pipelines create less conflict with agricultural operations if the lines are placed at the tail water end of irrigated fields rather than at other locations. b. Construction Operations The displacement of topsoil during construction of oil and gas pipelines is a potential long-term problem in agricultural areas. Under normal ditching and backhoeing procedures, the topsoil from the ditch will be replaced on the bottom when the ditch is refilled. This results in the less fertile '3 and C soil horizons replacing the productive topsoil. As a result, crops grown in these areas will be less productive. In addition, the ditching process can cause rock to be brought to the surface. If this rock is not removed or buried below plow depth, it will be detrimental to plowing and other field operations. By utilizing double ditching techniques, topsoil can be replaced on top, thus eliminating any long-term productivity problems. An additional problem caused by pipeline construction operations is related to fence damage and livestock movement. Pipeline con- struction often necessitates the removal of fence sections. Even though fence section removal is only temporary, it can, along with the very presence of the pipeline or ditch, cause livestock movement and safety problems. For example, cattle or sheep movement through unattended fence cuts can result in crop damage to adjacent fields, safety hazards to traffic and possible loss of the livestock. If notified in advance of 56 impending cuts, ranchers may move their animals or keep a better eye on them. However, installation of temporary gates would greatly alleviate any conflicts until the fence is properly mended. Timing of construction operations is another important concern in agricultural areas. Digging trenches and laying pipe through cropland during the growing season can result in crop loss and lower crop productivity. For instance, if a pipeline transects agricultural land after crops have been planted, but prior to harvest time, the crops in the easement area would either be completely lost or would have to be prematurely harvested. Even though farmers would gen- erally be compensated financially for such a loss by the utility com- panies, reduced productivity is not in their best interests. Trenching procedures during pipeline construction operations also raise concern among farmers and ranchers in terms of changes which may occur to existing underground utilities. This same con- cern is also expressed by other utility companies who have had their underground lines dug up by pipeline trenching operations in the past. The problem may arise iron, `he limited amount of time allowed a pipeline company to complete a'. took-up because of the normal "take-or-pay-for" portions in their contracts with producers. In other words, it may be less expensive for a pipeline company to com- plete a hook-up on schedule and pay for the repair of private utility connections and distribution lines which they dig up in the process, rather than take the time to avoid such lines and fall behind schedule. 57 Nevertheless, landowners feel that pipeline companies should make more effort to avoid cutting private utility connections. A cut tele- phone line in a rural area could make an emergency sitution worse. Loss of power at a modern dairy farm could have significant negative impacts on milking operations and overall production activities. Discarded crating and other trash left behind after construction crews have completed operations is an additional cause of concern among landowners which they would like to see alleviated in future projects. In past cases, farmers and ranchers have had to spend their own time and effort in picking up items of trash which interfered with their operations and have developed bad feelings toward the utility industry as a result. Trash removal is generally an unpleasant and thankless task, but a necessary one. In general, those that haul trash into an area should assume the responsibility for hauling it out. 58 B. Community Growth Areas Rapid population growth is being experienced in Weld County. The county as a whole has increased from a population of 89, 000 in 1970 to an estimated 115, 000 in 1976; roughly a 30% increase in six years. Incorporated communities and lands lying in close proximity to these communities are experiencing the greatest development pressures from this population increase. The county encourages such development to adjoin existing communities so long as it conforms with the desires of the towns as expressed in their comprehensive plan. Weld County policy discourages urban development outside of incorporated community comprehensive planning areas, not only because it conflicts with agricultural operations, but also because county government was never intended to provide the urban services which such communities do provide. This policy places a degree of responsibility on the county to insure that any new development proposed around a community is in conformance with the community's comprehensive plan. In general, utility companies which make the effort to coordinate their proposed plans with the appropriate representatives of affected commu- nities can ensure that any conflicts with planned land uses are minimized, and that direct conflict with adopted master plans of such communities 59 and with the policies set forth in the Weld County Comprehensive Plan are avoided. I. Power Plants Development of power plants can mean that an unprecedented population growth, as well as increased pollution will occur in this county. If coal development is concurrent with development of a coal- fired generation plant, then the impact will be compounded. In many of our smaller communities, an influx of workers and their families could easily double or triple the population of an entire town. Thus, power plant development may have some large and far-reaching social and economic implications for these communities which should be addressed in order to minimize potential conflicts. a. Socio-economic Impacts Housing problems are generally the first negative im- pacts to surface in communities confronted by large energy develop- ments. With the start of construction, an influx of workers move into local motels, apartments, and vacant houses. Later, families start arriving. In communities with a small and limited supply of housing, a heavy and rapid increase in housing demand results in an increase in prices for housing, lots and rents. Many residents on fixed in- comes, especially the elderly, are hit hard by the inflation in rents and prices. Once all available standard housing has been taken up, workers and their families turn to mobile homes--the most visible 60 sign of an energy impacted area. Inadequate planning, lack of control over siting, and lack of amenities can result in "aluminum ghettos" being scattered across the landscape (12:2). Thus, housing problems created by rapid growth from power plant development cause consid- erable conflict with a community's desire for quality growth. Community service capabilities such as medical, education, recreation, police and fire protection, water and sewer facilities, are often overburdened by the rapid growth rate accompanying energy projects. Even though a power plant may be a significant property taxpayer, tax revenues from the project arrive only after the facility has been constructed, assessed, and placed on the tax rolls; while the impacts from such development arise immediately. Thus, local governments may be hard-pressed to find the revenues necessary to build new classrooms, extend water and sewer lines, and enlarge police and fire capabilities. Medical services generally suffer the most. In only a few years, the same number of doctors may be trying to handle doubled loads. In this case, many people have to go outside of the community to even getroutine care. In addition, extra loads are placed on hospitals. Although the severity of community impacts created by power plants and other energy projects depends on several factors (such as original population size, level of unemployment, condition of local services and facilities, rate of growth, and quality of planning), the rate of growth is the best indicator of severity of impacts which the 61 communities will face. In its studies of energy impacts, the Denver Research Institute concluded: "An annual growth rate of ten percent strains local service capabilities. Above fifteen percent seems to cause break- downs in local and regional institutions. " (12:2) A moderate rate of growth, followed by a stable permanent population, however, may actually enhance the quality of life within a community. Thus, the potential rate of growth created by a proposed power plant must be examined closely, in order to arrive at solutions which minimize conflict with the capabilities and desires of impacted communities as expressed in their master plans. b. Pollutants Urban dwellers, as well as farmers, are becoming increasingly concerned about the potential affects that fossil-fueled power plant emissions may have on their crops and their own health. Nitrogen oxides, sulfur oxides, and particulate matter are the pollutants of primary concern. However, in coal-fired plants, carbon oxides and trace elements of mercury and fluorides are also a poten- tial matter of concern. Fuel quality, stack height, combustion efficiency, and emission control equipment, such as separators, precipitators and scrubbers control power plant emissions with varying degrees of success. For example, a high degree of control can be achieved in removing particulate matter (fly ash) using existing emission control equipment. 62 The addition of gas conditioning systems, in some cases, improves the efficiency of precipitators in removing sulfur oxides. However, the technology for sulfur oxide removal from flue gas is still not highly refined. Processes for the removal of nitrogen oxides are not yet available (13:15). Thus, it is important to insure that plant construction environment studies are accomplished in order to deter- mine the extent of adverse affects that airborne contaminents may have upon the area surrounding proposed sites. Such studies can include identification of indicator species of crops and animals which may be particularly susceptible to damage by air contaminents and provide alternatives to protecting such species from adverse impacts. In the case of nuclear generating stations, there is no air pol- lution problem because combustion does not take place; rather, heat is created by the fission process. However, radiation emissions in the form of liquid and gaseous wastes, are a matter of concern. Even though the releases of radioactive material from nuclear gener- ating plants, through reactor coolants, are low and dilute, "biological concentration" can occur in the food chain if such releases are not controlled properly. For example, dilute radioactive minerals from power plant discharges can be taken up by algae, the algae consumed by zooplankton, the zooplankton consumed by small fish, the small fish eaten by larger fish, and the larger fish eaten by humans. In the preceding process, radioactive minerals would become more concentrated at each succeeding step, and thus more dangerous. 63 Concern in these instances is not only for human safety, but also for the safety of wildlife. Biological concentration of radioactive minerals is particularly harmful to raptor species, especially those with a high fish diet, such as bald eagles. The shells of eagle eggs are often weakened by the above process to such an extent that they are easily broken, and thus, the eaglets are not hatched. This has created a serious problem for a number of raptor species in many parts of the country. Thus, radiation emissions are a concern which must be given consideration in any proposed development of a nuclear electric generating plant. Thermal pollution, caused by cooling water discharges from power plants, can have adverse effects on aquatic life. Usually, the temperature of cooling water emerging from a power plant is 15 -250 F warmer than it is at the intake. Thus, in the immediate vicinity of an outlet, cold water species of fish could be killed. This prob- lem is not a major concern in Weld County which primarily supports warm water fish species. Nevertheless, warmer water does acceler- ate the growth of algae which: (1) can result in the de-oxygenation of the water leading to fish kills of warm water species, and (2) may increase the likelihood of problems presented in the previous para- graph regarding nuclear plants. Therefore, thermal pollution is a matter of some concern. Thus, studies are necessary to determine the allowable increases in water temperature at any proposed power plant site. 64 Noise pollution, which can result from power plant operations, is an additional concern of Weld County, especially around community growth areas. Draft fans, large pumps, compressors, metering stations, and other large equipment can generate significnt sound levels. However, sound proofing techniques are available, and can be used when necessary to assure acceptable sound levels. Such techniques can include: (1) enclosing noise producers in sound insulated struc- tures, (2) use of trees and shrubs to absorb sound waves, and (3) the establishment of buffer zones around a plant to increase the distance between noise generators and surrounding landowners. 2. Electric Transmission Systems In and around urban areas, the presence of power lines and substations is often notably conspicuous, because of the aesthetic de- gradation and other negative impacts which they may create. Acknow- ledging the need for such facilities does not lessen their physical infringement on the landscape. Increasingly, public attitudes and social values require that more emphasis be placed on maintaining and improving environmental quality. Thus, the development and expansion of electric transmission systems must take into consideration public views and values regarding healthful and pleasing surroundings. a. Appearance The biggest problem associated with electrical lines and facilities in areas of concentrated population revolves around 65 aesthetics. Many individuals feel that overhead electrical lines and other aboveground facilities are less than visually pleasing, and as such, have a direct negative impact on land values, especially in residential areas and to some degree in commercial areas. Right-of ways are felt to be a waste of land and a source of weeds and other noxious plants which spread to lawns and place a burden on home- owners in terms of both time and money, when they must be removed. Transmission lines, support structures, and cluttered looking sub- stations are often mentioned as "eye sores" at public hearings, especially when these facilities interfere with the view of the moun- tains. Obviously, the only way high voltage transmission lines can be completely hidden from view is to place them underground. In many cases, this cannot be reasonably justified because of economic and/or technological limitations. In recent years, however, electric utilities have adopted a variety of techniques to achieve a more favor- able visual impression as power poles and other facilities are located in given areas. Utilization of these techniques, commonly referred to as the "low profile approach, " generally costs between 1. 3 and 1 . 5 times that of constructing traditional facilities. The techniques involved include the use of: ( 1) creative landscaping that is compatible with the area; (2) construction materials which are native to the area or which harmonize with their surroundings; (3) structural designs which relate to the environment by blending, harmonizing or in some cases contrasting with other visual features; (4) colors and paints 66 which minimize contrast with the environment; (5) use of natural topography and vegetation to blend structures with the surrounding area, or to shield structures from view; (6) buffer areas; and (7) underground distribution lines. In addition, the impact of major electrical facilities on the surrounding environment can be reduced by utility companies, if they permit the easement area to be used for other purposes. This approach,generally called the "multi-use approach, " integrates utility sites and easements with productive or recreational uses. It has been used for years in agricultural areas, but it is relatively new to urban areas. Nevertheless, in urban areas, it is possible to allow otherwise "wasted" easements to be used by adjacent landowners for lawn and garden purposes or by public entities for trail and other recreational purposes. This approach necessarily involves contract use agree- ments between the utilities and the adjacent property owners or public entities for maintenance, liability and safety purposes. A utility company, for example, does not want to be held liable for a bicyclist who runs into a power pole and breaks his arm. Two reasons why utility companies have shied away from the multi-use approach in urban areas is because of: (1) the small lot sizes of adjacent lands and therefore, the large number of contracts involved; and (2) legal inconsistencies which have appeared in court actions dealing with liability suits. For example, utilities have complained that structures have been erected on existing easements, 67 in contravention of easement contracts; that injuries and fatalities have resulted as a consequence; and that the utility company involved has been held liable by the courts. Thus, the question is raised, "why go to the trouble and expense of getting a lot of contracts signed if they don't resolve anticipated problems and concerns? " When this approach is used, it is generally because of action initiated by public entities for recreational purposes. In any case, utility companies must acknowledge that, once established, their facilities become a part of a neighborhood environ- ment, and that the appearance of those facilities will affect the quality of that environment. If the utility is to be considered a good neighbor, it must put forth the effort to make its facilities compatible with the surrounding landscape. Utility companies which do not share the con- cern of surrounding landowners for a pleasing environment, will find it increasingly difficult to find neighborhoods willing to accommodate their facilities. Today, few communities are willing to allow a utility to construct a substation which looks like a giant erector set, which is held together by innumerable wires and surrounded by a chain link fence. b. Radio and T. V. Interference A concern, often voiced at public hearings, regarding proposals to construct major transmission lines involves potential radio and television interference. Both of these media are popular 68 forms of family entertainment and a means for them to keep abreast of what is happening in the region and the outside world. Therefore, prospects of having to put up with potential interference on their radio and television sets as a result of high voltage power line installation, raises deep concern among landowners living in close proximity to pro- posed transmission facilities. Although most interference complaints received by utility companies are caused by customer owned devices, a sufficient number of complaints have been traced to power line hardware or contamination problems.. Thus,concerns regarding this subject should be taken serious and methods to minimize potential conflicts employed. 3. Pipeline Systems Except for an occasional strip of weeds which contains a marker identifying some utility company, pipeline easements go largely unnoticed by most people in urban areas. In fact, not until they see somebody pulling up their rose bushes or digging up a local street to repair an underground line, do any conflicts arise between pipeline systems and the average citizen. The problems created by pipelines in urban areas, however, can be substantial in terms of their effect on development patterns and public safety concerns. Such problems should be confronted and alleviated, to the extent possible, by developers, local officials, and utility company respresentatives prior to construction of residential units and the arrival of residents into community growth areas. 69 a. Development Patterns Easements for underground gas and oil lines located in community growth areas eliminate many urban type uses and struc- tures because utility companies do not allow construction over such easements. These easements, in effect, become de facto non- functional open space. Such easements are especially limiting to development of smaller land parcels situated in high density zoning districts, because of zoning requirements regarding setbacks and off-street parking, and federal safety requirements regarding proxi- mity of building structures to high pressure pipelines. Problems are compounded in areas which have a large number of easements. Such a situation exists around the communities of Frederick, Firestone, and Dacono where a substantial number of gathering lines carry oil or gas from producing wells to nearby storage tanks. In addition, aboveground gas and oil facilities, such as compressor stations and storage tanks, can create aesthetic problems, especially if located in planned residential neighborhoods. These facilities are relatively unattractive, do not fit in well with residential land uses, are sources of weeds, and collectors of trash. Thus, Weld County is concerned that, if located improperly, pipeline easements and facilities would tend to lower land values and influence undesired development patterns. 70 b. Safety Safety is another subject of concern when Weld County considers the location of high pressure pipelines. For instance, shallow pipelines or poorly marked pipelines may be subject to acci- dental cuts by heavy construction equipment and farm machinery. Gas or oil escaping from such a cut would create a potential fire or explosion hazard to surrounding properties and to any person in the immediate vicinity. Techniques available to reduce the possibilities of an accidental cut include: (1) assuring that pipes are buried below plow depths; (2) the placement of signs and markers identifying ease- ment areas and line locations; 3) the provision of maps showing existing line locations to highway departments and planning commis- sions; and (4) the upgrading of pipe. in areas of increased population density and building activity. At the present time, pipe companies are required by Federal regulations to upgrade in areas of existing population concentration, but not in areas of proposed population concentration. However, Weld County is concerned about the safety of residents that we anticipate will someday live in community growth areas, and therefore would desire to see the same standards of safety applied in these areas. The filing of pipeline maps with local planning commissions is a technique, noted above, which would insure that a community had the necessary information available to minimize conflict between pipeline locations and planned community projects, as well as to prevent 71 accidental pipeline cuts. In one instance, Panhandle Eastern Pipeline Company presented a map of their plans to the town of Milliken Planning Commission prior to constructing a pipeline through the town's growth area. It was then found that the town had plans to con- struct a sewer line diagonally across the same area. It was noted that the two lines would have intersected at the same depth. There- fore, "Panhandle Eastern" adjusted the depth of its proposed pipeline in order to alleviate the conflict. In presenting the town a map of their plans, Panhandle Eastern Pipeline Company prevented a potential hazardous situation, saved the town the expense of adjusting the location or depth of their sewer line, and created a better working relationship with the community. Efforts such as this, contribute greatly to minimizing conflicts created by pipeline systems within community growth areas. Additional techniques available to reduce potential conflicts created by pipeline easements and facilities within community growth areas include the "low profile" and "multi-use" approaches noted in the previous subsections. 72 C. Other Resource Areas The conservation of our mineral, wildlife and cultural resources is an essential part of our efforts to maintain the economic well being, as well as the environmental quality of Weld County. Although Weld County contains an abundance of important resources, these resources are not inexhaustable. It has been determined through previous studies that those areas along our major streams and reservoirs are the principal areas of concern when considering the conservation of these resources. It is these areas which contain a wide range of abundant high quality resources. For example, sand and gravel deposits adjacent to our major streams have been identified by the Colorado Geological Survey as the most significant land form unit in the county in terms of sand and gravel resources ( 14:25). The Weld County Mineral Resource Extraction Plan states that it is especially important that these floodplain sand and gravel deposits be protected from any use which would interfere with their extraction ( 15:18). furthermore, water supplies for agricul- tural and urban purposes are primarily located, stored and transported in the major reservoirs, drainages and aquifers found in this county. In addition, a wide range of wildlife species utilize these major water bodies for resting, feeding and nesting purposes. Finally, most archeological 73 sites found to date in Weld County have been along our major drainage- ways; and it is around the major water bodies where tree cover, variable topography, and water (the three principle criteria conducive to most major outdoor recreational activities) are found in this county. Thus, special attention should be given to the placement of utility lines and facilities in these resource areas. 1. Mineral Resource Areas Weld County contains extensive deposits of sand, gravel and low-sulfur coal; as well as more limited deposits of oil, gas and low-grade uranium. Sand and gravel are basic to the construction of our homes, schools, hospitals, churches, shopping centers, streets, airfields, bridges, and electric generating plants. In addition, they play important roles in the areas of sewage treatment, water infiltra- tion, agriculture, landscaping, transportation, manufacturing, recreation and petroleum production. Our coal, uranium, oil and gas resources have also assumed greater significance in recent years as energy supplies have dwindled. It must be realized that these resources are the result of long geological processes, that their dis- tribution is limited, that they cat be mined only where they occur naturally, that they are essential to all kinds of construction, and that proper steps must be taken to ensure that adequate supplies are { kept available to meet current as well as future demands. Further- more,( it is the policy of Weld County, as stated in the Weld County 74 Mineral Extraction Plan, that: "Access to future mineral resource development shall be considered in all land use decisions. In accordance with Colorado Statute, no Weld County governmental authority which has control over zoning shall, by zoning, rezoning, granting a variance, or other official action or inaction, permit the use of any area known to contain a commercial mineral deposit in a manner which would interfere with the present or future extraction of such deposit by an extractor. " (15:23) a. Sand and Gravel Resources The major concern of Weld County regarding public utilities and sand and gravel resources is that the development or extension of utility facilities will interfere with the extraction of commercial sand and gravel deposits. Structures such as generating plants, power poles, compressor stations, storage tanks, etc. , when located over a deposit, would effectively remove the underlying sand and gravel from the available resource supply. Likewise, pipe- lines and transmission lines would remove all deposits underlying easement areas from the available resource supply. This potential problem is of greatest concern in areas categorized as F-i Flood- plain Deposits by the Colorado Geological Survey. F-1 Floodplain deposits normally lie adjacent to the major drainageways located in Weld County. Therefore, a pipeline or transmission line which ran adjacent and parallel to a major stream containing such a deposit, would create a significant conflict. In addition, the development of major utility structures in such an area would create a conflict; the 75 larger the area required f.,r such structures the greater the problem created. In general, the greatest concern lies with the conservation of F-1 Floodplain deposits, because they are the highest quality and most limited resource. However, concern for the protection of other cate- gories of sand and gravel deposits is also important in Weld County. b. Oil, Gas, Coal and Uranium Resources A major concern of Weld County regarding public utilities and our energy resources is that utility companies may inadvertently create energy resource problems by placing new facilities over energy deposits in such a manner as to make the resources unavailable for their own energy supplies. For example, transmission lines and ease- ments placed through uranium fields (to date, these fields have been found along ancient stream beds in this county) may significantly inter- fere with extraction of an ore which is used to produce electricity carried by the transmission lines. This concern is greatest in areas of potential strip mining operations since underground extraction and well drilling operations would generally be less affected by above- ground utility developments,. tr areas of potential underground mining, it is the utility facilities themselves which are more likely to be im- pacted as a result of subsidence created by future mining activities. Therefore, the concern in such areas is more for the safety of pro- posed utility facilities than it is for protection of the energy resource. The probability of mining activities should at least be considered by utility companies prior to locating their facilities in potential underground mining areas. By doing this, it is possible to determine if it is necessary to specially design structures to minimize the effects of subsidence. 2. Wildlife Areas Weld County contains numerous species of wildlife. Concen- trations of most species are found along our river bottoms and in areas surrounding our reservoirs. For example, mule deer numbers are highest along the river bottoms; whitetail deer, quail, beaver, waterfowl, pelicans, cranes, and many other species are localized along the river bottoms or around our major reservoirs; bald eagles, with few exceptions, are found only on the river bottoms and around the larger irrigation reservoirs. Exceptions include moderate num- bers of antelope and concentrations of a number of raptor species in semi-arid rangeland areas of northern and eastern Weld County. For example, the Crow Creek drainage, Chalk Bluffs, Pine Bluffs, and the Pawnee Buttes areas of Weld County support one of the greatest popu- lation of nesting raptors in North America, if not the world. Utility facilities can pose special Lazards to a number of these species through pollution or by the potential which exists for electrocution. As indi- cated previously, diluted liquid waste discharges from nuclear genera- tion plants have created problems for certain raptor species through the "biological concentration" of radioactive minerals in the food chain. Such problems, as well as others noted below, are a concern 77 in this county which should be taken into consideration and minimized to the extent possible when utility facilities are proposed for develop- ment. a. Raptors Electrocution is the principal hazard affecting those species which use electric lines and support structures for perches. Recent studies have documented electrocution losses of egrets, herons, crows, ravens, and wild turkeys, but evidence shows that 90% of all electrocution victims were golden eagles; that 98% of the eagles electrocuted were young, inexperienced golden eagles that were just learning to fly; and that most electrocutions took place during the wintering period when peak populations of eagles and hawks were present (16:1). This problem primarily occurs when a large bird spans the distance between two conductors on an electric support - structure with its wings, and as a result of not being grounded, takes the voltage carried by the lines and dies. The problem occurs much more frequently on distribution lines, because the support structures are smaller and conductor spacing is therefore closer. However, this problem can also occur on high voltage power lines whenever conductors are placed in close proximity to each other. Techniques to alleviate this problem involve placing conductors far enough apart so that the wing span of large birds is less than the distance between conductors. Utility companies have also found that placing the ground 78 wire above, rather than below, the energized wires assists in minimizing the problem. An additional problem, compounded by power lines and related structures, concerns illegal shooting of raptors. Wildlife personnel have indicated that raptors become easy targets when perched on power lines located close to roadways. Birds of prey often use power poles as perching and hunting sites especially in areas where trees and other natural elevated sites are unavailable. Thus, in many areas of Weld County,power poles are primary perching sites for raptors. In that several areas of Weld County contain large concentrations of raptors, especially during the winter nesting season, there is a special con- - - cern for their protection. Therefore, any land use which may contri- bute to the destruction of these birds of prey must be examined closely in order to arrive at solutions which minimize their potential loss. When it is not possible to avoid areas of raptor concentrations, the most obvious solution to this problem is to place power lines away from existing road right-of-ways, thus, making it more difficult for shooters to get close easy shots at the birds. However, if such a solution involves creation of greater impacts on surrounding land uses, the trade-offs involved muse be given full consideration and the approach acted upon which provides the most overall benefit. 79 b. Water Fowl Electric transmission lines pose a special hazard to water fowl when located in areas where these species concentrate. Power lines are obstacles which interfere with their take-off and landing patterns. The hazard becomes greatest for these species during periods of low visibility, at which time they are more apt to inadvertently fly into the lines. The problem occurs most frequently in areas where power lines span major streams and reservoirs, or when power lines are placed in close proximity to these water bodies. Because of large concentrations of geese and ducks in Weld County, especially during periods of migration, this problem should be taken into account when locating electric transmission easements. Techniques to alleviate the problem include: (1) flagging overhead lines with brightly colored plastic streamers, and (2) placing power lines at a distance from water bodies which minimizes interference with flight paths. Both of these techniques, however, may create greater impacts than they alleviate when weighed against agricultural and aesthetic concerns noted in previous sections. Thus, although Weld County is concerned about this problem, solutions to minimize any conflicts must be examined closely before they are implemented, so that all trade-offs involved are given full consideration. 111 c. Fish Water pollution, either from construction operations or from pipeline leaks, is a major concern of Weld County when consider- ing the protection of local fish species. For example, during pipeline construction activities, a common practice is to simply dig a ditch across the bottom of a stream, weight the pipe with concrete, place it in the ditch, and then to refill the ditch. This practice stirs up silt and sediment which may increase water turbidity to a harmful level for fish species which do exist in county streams. Additional prob- lems arise when the stripping and vegetation for pipeline or electric transmission easements, especially in floodplain areas, results in conditions conducive to soil erosion during periods of intense rainfall. Soil washed into streams and reservoirs by erosion can create the same turbidity problem for fish as those noted above. The capacity of the vegetation cover surrounding bodies of water or streams to hold soils in place is a very important factor in the protection of these water bodies and their fish population. Finally, oil and gas lines crossing, or in close proximity to streams and reservoirs, could seriously harm fish life, if the lines were to be washed out by flood waters or were to otherwise develop leaks and spill oil or gas into such water bodies. It is acknowledged that most Weld County streams and reservoirs are primarily used for agricultural purposes, and therefore basically support only the more hardy warm water fishes. However, a number 81 of water bodies do support popular sport fishes, such as bass and pike, and a few reservoirs are periodically stocked by the Colorado Division of Wildlife. Thus, protection of fish is a realistic concern of the county with reference to potential water pollution problems resulting from development of utility facilities. 3. Cultural Resources Historical sites, archaeological sites and scenic areas exist as resources for the enjoyment, education and psychological well being of the citizens of Weld County. These resources include local landmarks, both natural and man-made, which can contribute to an understanding of the past, provide local character and community identity, and give a sense of direction to individuals and communities as they grow. There are various cultural resources scattered through- out Weld County. Examples of such resources include: Pawnee Buttes, the Natural Fort, Wildcat Mound, Fort Vasquez, and Dent archaeological site. In many cases, these sites are under private ownership and may only be enjoyed for their scenic or educational qualities from a distance or at the discretion of the local landowner. Nevertheless, Weld County is concerned that such sites and areas be maintained in a manner that will allow man to function in harmony with. such resources so that they can remain as assets for future generations. 82 a. Archaeological Resources The primary concern of Weld County related to the development of utility facilities within areas containing archaeological resources is that construction operations may damage or destroy the resource. The basic problem which exists is that, in most cases, the location of the resource itself is unknown. Archaeological sites are often found by accident, although a trained archaeologist may un- cover sites in areas of high probabilities. Areas of high probability are identified based on geological stratas which have yielded site discoveries in the local area or in other locales. Bulldozers and ditch diggers used by utility companies in their construction operations could easily destroy ancient artifacts and prehistoric bones and no one would even realize it. In Weld County, to date, most archaeological sites have been found on terraces along our major rivers. These areas are the areas of high probability which are of greatest concern in Weld County. This does not mean that discoveries which may be uncovered outside such areas are of less concern. In fact, a discovery made in an area or strata where no previous finds have occurred may be of greater significance than a site uncovered in an area of high probability. b. Historic Sites The primary concern of Weld County related to the development of utility facilities around historic sites is to insure that such development blend, to the extent possible, with the historic 83 resource. Lattice steel support structures in the vicinity of the Hillsboro stagecoach stop, for example, would look completely out of place, whereas structures designed to resemble old time telegraph poles may blend in quite well. Weld County contains a variety of historic sites which are now being inventoried and categorized. Many of these are sites where an historic structure once stood or where a historic event took place. In such cases, there is less concern about potential aesthetic problems created by development of utility facilities, than in areas where actual structures are still present. c. Scenic and Recreational Resources Weld County occupies over 4, 000 square miles in the semi-arid Colorado piedmont section of the Great Plains Physiographic Province. The topography is level to rolling uplands with stream valley lowlands. In general, the lack of tree cover, variable topo- graphy, and water provide the county with less than favorable conditions for most popular outdoor recreational activities, both passive and active. However, exceptions do exist, especially along the major drainages where trees parallel the channels and where bluffs have in some cases been carved out of the adjacent land mass. In other spots the land mass has been eroded by streams which long ago dis- appeared, taking with them the trees, but leaving behind scenic bluffs and buttes which have been weathered by seasonal rains and winds and stand guardian over the flatlands below. Because typical scenic and 84 recreational resources are not naturally bountiful in Weld County, there is a concern that they be protected where they do exist to the extent possible, for the enjoyment and education of present and future residents of this jurisdiction. A concern of Weld County in reviewing the potential development of utility facilities around these resources is the possibility that such development will degrade their aesthetic qualities. 85 D. Summary This section has examined past and potential problems created by development of public utility facilities in agricultural, community development and other resource areas of Weld County. Major concerns were expressed when such development created problems which con- flicted with guidelines set forth in the Weld County Comprehensive Plan or other county plans and regulations. Furthermore, this section emphasized that such conflicts should be minimized to the extent pos- sible, while realizing that Weld County could expect continued develop- ment and expansion of major utility systems and facilities in the future. Techniques and methods which have been developed or which are available to minimize a number of problems and conflicts were also presented. However, in some cases, no clear-cut techniques have as yet been developed which can realistically be applied to the prob- lems created by the development of new public utility facilities. In any case, it must be realized that the production, generation, transmission, processing, and distribution of energy resources can have a negative impact on other resources and land uses which may be of equal or greater importance. In order to minimize the negative impacts on other land uses and resources, while still providing a means 86 for the development of our energy resources, a number of factors must be given consideration as utility site selection is carried out. Protection of agricultural lands and the production capabilities of these lands, quality growth around incorporated communities, and conservation of natural resources are basic concerns of Weld County, as set forth in the Weld County Comprehensive Plan. Thus, agricul- tural, urban, and conservation interests are major factors to be considered when planning for and siting utility lines and facilities in Weld County. 87 III. Policy Guidelines III. Policy Guidelines Energy resources such as electricity, oil, and gas are neces- sary to maintain and continue the quality of life as we know it today. Weld County contains oil and gas reserves which are produced, trans- ported, and distributed to other regions, as well as within our own County. Given this interdependence of various regions and jurisdictions upon one another for energy supplies, it seems logical that national and regional plans and guidelines should be developed which ensure that such supplies continue to flow where and when they are needed. However, such guidelines must take into consideration that structures and facilities utilized in supplying needed energy have often been poorly located and designed; wasting otherwise productive lands, creating unnecessary and sometimes long-term problems for farmers and ranchers, and adversely affecting land values around urban areas. Thus, the following land use policy guidelines address, and attempt to alleviate, the various conflicts which occur as facility siting takes place in agricultural, urban, and conservation areas of Weld County. Specifically, this section outlines the conflicts which may result from the development of new power plants, electric transmission systems, and pipeline systems; makes recommendations regarding 89 possible solutions to such conflicts, which should be given considera- tion as projects are proposed in the various resource areas of the county; and sets forth policy statements which will act as guidelines to decision makers when new public utility facilities are proposed in Weld County. Efforts should be made to adhere to these land use guidelines whenever practical, realizing that economic and technologi- cal factors must also be given due consideration. 90 A. Conflicts and Recommended Action Utility companies strive to provide reliable service to consumers at a reasonable cost. Their efforts have, in fact, achieved this goal in most cases. However, the accomplishment of this goal has, in many cases, been achieved at the expense of individual landowners who have suffered reduced land values and reduced crop production. It would seem more reasonable, that if the benefits of energy supplies are to be shared by all consumers, that the costs should also be shared by all consumers, rather than by a few unlucky individuals. Thus, solutions which are recommended to alleviate land use conflicts will, in many cases, be more costly to the utility companies and in turn to the general consumer; however, these increased costs will be borne by all consumers, not just by a few individuals as in the past. Overall, it is the intent of this Plan to encourage utilities to locate their facilities in those areas where the fewest negative impacts result and where the loss of productive agricultural lands can be minimized. For instance, by encouraging utilities to locate facilities on non-irrigated lands as opposed to irrigated lands, this plan attempts to establish a realistic approach to trade-offs which must occur between elements of the overall resource base. In general, the goal to supply energy resources iI ninal Irr rvahrcttriri with rufrrein r to iln ovrrall impact nn agricultural lands and uses, community growth areas, other resource bases and the health, safety and welfare of the citizens of the County. 1 . Power Plants In the previous chapter, a number of conflicts which may result from development of power plants were presented. These conflicts are outlined below: a- Impacts on Agricultural operations and crop production: 1) Loss of Agricultural Lands 2) Loss of Agricultural Water 3) Pollution b- Impacts on quality Community Growth: 1) Socio-economic impacts 2) Pollution c- Impacts on Other Resources: 1) Interference with mineral resource extraction 2) Impacts on Wildlife 3) Impacts on Cultural Resources The following sections summarize these conflicts and impacts, and sets forth policies and/or guidelines to be utilized in reviewing proposals for power plants which are to be located in Weld County. 92 a. Impacts on Agricultural Uses Basically, a power plant is an industrial facility which can be classified as a high water user. One of the major problems associated with locating a power plant in Weld County, which is the second most productive agricultural county in the nation, is that such a facility may have significant impacts on agricultural water supplies. If a plant were to be located on irrigated agricultural lands, prime acreage would be directly lost for production of crops; if located on non-irrigated land, prime irrigated land could be lost indirectly because of diverted agricultural waters utilized by the plant. Regard- less of location, crop production and range grasses could be adversely affected by air or water borne contaminents emitted in power plant waste discharges. In order to avoid such direct conflict with agricul- tural operations, the following policies should be observed in decisions involving the siting of power plants. 1) In order to ensure that prime agricultural lands are not removed from crop production, power plants should be located in non-irrigated, non-cropland areas. 2) In all power plant sitting Jecisions, the broad effects of trans- ferring water from agricultural uses to other uses must be taken into account and given consideration. More specifically, water which is needed for power plant operations should not be drawn from agricultural water supplies. In those instances where, for lack of other alternatives, agricultural water supplies must be 93 utilized, the applicant should explore all possibilities available for returning as much water as possible to agricultural uses once power plant requirements are satisfied. 3) In all power plant siting decisions, the applicant or responsible company will be encouraged to utilize the best available technology for reducing plant emissions and for maintaining ambient air quality standards. Where it is shown that a given proposal has potential for causing crop damage or damage to human health because contaminent emissions cannot be reduced to acceptable levels with available technology, other alternativb site locations must be considered. In all such proposals, "acceptable emission levels" and "ambient air quality standards" will be based on current standards set forth by the Colorado Department of Health or the County of Weld. b. Impacts on Communities Another significant problem associated with power plant siting in Weld County is the potential negative impacts such a facility may have on the growth and welfare of our existing communities. Depending on the size and type of facility proposed, substantial num- bers of immigrant workers may settle near the plant site. In that the Weld County Comprehensive Plan directs growth to existing towns, those communities in close proximity to a power plant would be affected by increased growth pressures. Socio-economic impacts such 94 as housing shortages and increased demands on local services thus become primary concerns. For example, housing shortages can result in inflated rents and market prices which could substantially affect existing residents on fixed incomes, especially the elderly. Further, demands on local services can result in overloads on medical, police, fire, water, school and sewer capabilities which could substantially affect the fiscal resources and budgets of local governments, especi- ally in smaller communities. Rate of growth is the factor which has the greatest influence on the degree of severity of socio-economic impacts created by energy development. The faster the rate of growth, the more severe the impact. Thus, to ensure that socio-economic impacts resulting from power plant development are not substantial, it is necessary that the rate of growth be held to acceptable levels. Many of these impacts could possibly be eliminated if it was possible to recruit the power plant construction force from the area in which the plant was to be located. In this manner, the number of individuals in the work force requiring new housing and services would be minimized. Therefore, it is recommended that the work force be recruited, as much as possible, from the local area. This action could substantially alleviate, if not prevent, any anticipated rate of growth problems likely to occur as a result of an influx of immigrant workers and their families. Another important factor to consider in alleviating socio-economic impacts is the tax revenue generated by a power plant facility. Some 95 public utility companies, such as PRPA, are exempt from taxation. Thus, revenues are not generated to offset costs to communities induced by the develnpment of their facilities. Therefore, unless such facilities are required by a given community to fulfill its own electrical energy needs, the community may have to bear substantial service costs and receive few, if any, benefits. In such cases, it would appear to be more acceptable if power plant facilities are located within those areas that utilize the electricity generated for their own electrical requirements. However, most public utility companies are tax payers. Revenues generated from power plant developments are generally sufficient, in the long-run, to offset the cost a community must bear as power plant development occurs. Nevertheless, there are problems of timing and geographic distribution of revenues which may affect individual commu- nities. For instance, taxes imposed on power plants are available as community revenue sources only after the projects are completed, whereas impacts occur with the influx of construction workers and their families. In addition, power plant facilities may be located in one jurisdiction while major impacts created in neighboring jurisdic- tions who do not receive any tax revenues to support additional service costs. Finally, as in agricultural areas, the potential which exists for air pollution, as power plant development occurs, must be addressed as power plant siting impacts our existing communities. The primary 96 concern in such considerations is to insure that acceptable contaminant emission levels and ambient air quality standards are established and maintained to protect the health of the general public. Thus, in all decisions concerning the siting and development of power plants, the potential impacts of air pollution and the applicability of current air quality standards and regulations will be fully evaluated with reference to the desirability and feasibility of such proposals being approved. In order to minimize the impacts discussed above, related to power plant siting and development, the following policies will be considered and utilized in reviewing and assessing proposals for the location of such utilities. 1) Prior to approval of any such plant proposal, it shall be determined that the nature and location or expansion of the pro- posed power plant facility will not create an expansion of the demand for government services beyond the reasonable capacity of an impacted community or the County to provide such services. Where it is anticipated that such an expansion of the demand for services will occur beyond the reasonable capacity of the County, or a community to provide such services, the applicant must clearly show how such impacts will be mitigated prior to approval of the proposal by the County. 2) Where a proposed power plant is to be located in an area where a sufficient housing supply is unavailable for the anticipated immigrant construction force, the applicant for the 97 location of such a facility must present plans showing how housing will be provided for such workers without creating major negative impacts on existing housing supplies and existing residents in the impacted communities. 3) Prior to approval of any such plant siting proposal, it shall be determined that the nature and location or expansion of the facility will not significantly deteriorate air quality in the impact area and that the facility will meet Colorado Department of Health and Weld County air quality standards. c. Impacts on Mineral, Wildlife and Cultural Resources Additional problems which may result from locating a power plant in Weld County are the potential negative impacts such a facility may have on existing mineral, wildlife and cultural resources. Collectively, these resources would most likely be impacted to the greatest extent if such a facility were to be built adjacent to our larger streams. Individually, these resources may be impacted to varying degrees in areas and sites which are scattered throughout the county. Extensive deposits of sand and gravel have been mapped and categorized in Weld County by the Colorado Geological Survey. These deposits range from the highest quality F-1 Floodplain deposits found along our major streams, to the low quality E-3 Eolian (wind blown) sands found in the more isolated eastern sections of the county. Valley, Terrace, Alluvial and Upland sand and gravels are intermediate 98 quality categories located in various areas of the county. According to State Statute (14:3), Weld County cannot, through any official action or inaction, allow the development of areas underlain by commercial mineral deposits in a manner which would interfere with the future extraction of those deposits. Therefore, before power plants can be located over mineral deposits, such deposits must be determined non- commercial. In order to alleviate conflicts between mineral resource deposits and the location of power plant facilities, various steps may be taken. Two are of importance in the initial stages of developing such pro- posals. First, utility companies should ensure in the early stages of site review, that the properties in question are not underlain by com- mercial mineral deposits. Initial indications of the presence of such deposits may be gained through communication with such agencies as the Colorado Geological Survey or the Weld County Department of Planning Services. Second, when preliminary evidence indicates such deposits exist, further exploration work should be undertaken to con- clusively determine whether such deposits are "commercially extract- able" within the definitions set g:-rth by Colorado Statute. Finally, if such deposits do exist, it is important that the utility company consider the policies set forth, regarding development of uses over such deposits, in the Weld County Mineral Resource Extraction Plan. Wildlife resources and potential impacts on such resources are additional factors which must be given consideration as power plant 99 development occurs. It has been indicated by local wildlife officials that the major streams and reservoirs of Weld County are the areas of greatest significance to wildlife populations. These areas support the greatest number of wildlife species, as well as the greatest populations of individual species found in Weld County. However, there are other areas important to individual species of wildlife. The most important antelope habitat in Weld County is the rangelands of northern Weld County which support moderate populations of this species. In addition, the Chalk Bluffs, Pine Bluffs, Pawnee Buttes and Crow Creek drainage areas support concentrated populations of nesting raptors. It is important that the conservation of such resources and the mitigation of impacts on such resources is given full consideration as power plant facilities are developed. Coordination with the Colorado Division of Wildlife, as well as with local wildlife groups is important in securing information relevant to how impacts on these resources can be minimized as facility development occurs. Finally, archaeological, historic and scenic sites are cultural resources of Weld County which must be considered as power plant siting proposals are developed. Areas adjacent to our major streams contain the heaviest concentration of these resources; primarily be- cause of the presence of water, which exists in these areas as a limited resource, in an otherwise semi-arid climate. The Plains Indians and more ancient cultures camped and hunted along these streams because they provided areas for hunting and ready supplies of drinking water. 100 For essentially the same reasons, men built trails and forts along these streams, and later established farming settlements in these areas because of the availability of irrigation water for crops. Further- more, in an otherwise flat, treeless region, these streams support tree cover and provide areas for aesthetic enjoyment where scenic bluffs have been carved out along their banks. Thus, our major streams are very significant areas for scenic resources in Weld County. Other important cultural resources are scattered throughout the County. For example, the Pawnee Buttes are significant historic landmarks located in the rangelands of northeastern Weld County which are important for their scenic beauty. The Natural Fort, located in Western Weld County, is an unusual geological formation of scenic quality which was the site of an historic Indian battle between the Crow and Blackfoot Nations. Determination of the best approach(es) to minimize harmful effects to such resources should be coordinated with the Weld County Landmark Committee and other agencies. In general, the siting of power plants should be accomplished in areas where impacts on our cultural resources can be avoided as much as possible. In those cases where it is no*. c,-?ctical to completely avoid such resources, measures should be developed to mitigate impacts on such resources as much as possible. in order to mitigate and/or minimize the impacts on Weld County' s mineral and cultural resources as power plant development occurs, the following policies shall apply to the review of proposals for 101 location or expansion of power plant facilities in Weld County. 1) Prior to approval of any proposal for the location or expan- sion of a power plant facility, it shall be determined that the pro- posal is in compliance with the Weld County Mineral Resource Extraction Plan. 2) Prior to the approval of any proposal for the location or expansion of a power plant facility, it shall be determined that the nature and location or expansion of the facility will not adversely interfere with any significant wildlife habitat and will not adversely affect any endarttzered wildlife species, unique natural resource, historic landmark and/or archaeological site within the impact area. 2. Electrical Transmission Systems The development or extension of electrical transmission facilities may also result in conflicts with existing land uses and resources. Potential conflicts were set forth in the previous chapter and noted in the following outline: a-• Impacts on Agricu]t;.ral Operations and Crop Production 1 ) Interference with irr. tation systems 2) Interference with efficient operation of farm machinery 3) Creation of weed sources 4) Creation of trespass problems 5) Crop losses 102 6) Interference with crop dusting operations h- Impact on Community Growth Areas 1) Lower land values 2) Weed sources 3) Waste of land 4) Aesthetic degradation 5) Radio and television interference c- Impacts on Other Resources 1) Interference with mineral resource extraction 2) Impacts on wiir'1i.fe resources 3) Impacts on cultural resources a. Impacts on Agricultural Uses Electrical transmission lines are primarily strung on aboveground support structures. One of the major problems associated with locating a power line in Weld County is that these aboveground facilities can create an obstacle affecting the efficiency of agricultural operations, with long-range implications. Support structures placed in irrigatee fl ?rs interfere with the distribution of irrigation waters. Placed in crup and areas, they interfere with the operation of seeding, cultivation, and harvesting equipment. In addition, weeds may grow around these structures and beneath guy wires, sending their seeds into adjacent fields where they grow and compete with crops. in their efforts to reduce the size of such weed 103 patches, farmers often get too close to the support structures and guy wires which results in damaged equipment. Hunters and other recre- ationists observing public utility easement signs often enter fields and ranchlands at such locations under the impression that adjacent land- owners do not need to be contacted because the easement is "public" property. In addition, pilots often have difficulties maintaining a constant speed and altitude while maneuvering their planes around transmission lines during cropdusting operations. In order to mitigate and/or minimize impacts on agricultural land as transmission facility (lc,veiopment occurs, the following policies shall apply to the review of proposals for the location or expansion of electrical transmission facilities in Weld County. 1) In reviewing proposals for the location of electrical transmission facilities, it will be the policy of Weld,County to encourage that such facilities be located in non-irrigated, non-cropland areas. In those instances where such facilities must be located in irrigated, cropland areas, it will be the policy of Weld County to encourage the location of such facilities in existing right-of-ways. in those instances where county road right-of-ways are to be utilized for the placement of structures, Weld County will encourage the use of single - pole support structure that are to be placed a minimum of twelve feet from the Mhuuldl r o± exietiing roads. 104 2) In those instances where the use of existing right-of-ways is not feasible, all structures shall be placed in alternative locations in such a manner that negative impacts on farm opera- tions and irrigation systems are minimized to the greatest extent feasible. In the placement of such structures the applicant will be expected to coordinate as closely as possible with effected landowners to ensure that negative impacts are minimized. 3) In the review of all proposals for transmission lines, it will be the policy of Weld County to encourage the use of single- pole support structures, ' ienever practical, in order to mini- mize impacts on cropland areas. In addition, Weld County will encourage the use of self-supporting power poles which do not require the placement of guy-wires in cropland areas. 4) Transmission line easement routes which cross land parcels at a diagonal will be discouraged except in those instances where: a) Such placement is necessary in order to alleviate interference with agricultural operations, and where b) Such placement ,\ 'd not negatively affect agricultural operations or land va'ues. 5) It will be the policy of Weld County to encourage that management of utility easements and corridors be conducted 105 in such a manner as to minimize the problems associated with trespassing. For example, easement and corridor identification signs should establish when public access to such areas is and is not allowed. 6) In the review of all applications for electrical transmission facilities, it will be the policy of Weld County to encourage facility design which will minimize the negative impacts on crop dusting operations which may be necessary to produce crops on lands adjacent to such facilites. 7) In those cases where it is technologically and economically feasible, it will be the policy of Weld County to encourage the placement of electrical transmission lines underground. In cases where such placement is feasible, established guidelines for underground pipelines will apply to the placement of electrical transmission lines. 106 h. Impacts on Communities Another major problem regarding the location of trans- mission lines in Weld County is that these lines and associated facilities, because of their appearance, may have a negative impact on land values, especially around populated areas. Substations, power poles, and lines are generally regarded by most people as lacking aesthetic qualities. Many feel that such facilities degrade the surrounding landscape and interfere with scenic views. Many locations in Weld County offer a panoramic view of the Rocky Mountain frontrange. Past proposals to locate transmission lines in areas which may degrade such a view from residential sites have resulted in strong protest from local residents, as well as developers and other individuals desiring to construct homes in the affected area. In that the Weld County Compre- hensive Plan directs growth to incorporated communities, the growth areas around these communities are the major areas of concern regarding this problem. However, areas around existing rural subdivisions and rural residence are also important areas of concern regarding aesthetics and should not be neglected. 107 In order to ensure that impacts on land values resulting from the placement of power lines are not substantial, it is necessary that they project an acceptable appearance or that they be placed underground. Impacts on land values created by aboveground facilities could be sub- stantially alleviated if appropriate design and landscaping techniques were utilized, and if these facilities were located in such a manner that they did not interfere with community growth patterns. In addition, placement of said facilities on the east side of incorporated communities and other areas of concentrated population would reduce the number of cases where interference with scenic mountain views occurred. Additional problems regarding the placement of electrical trans- mission facilities around populated areas and local residences involve "wasted" easements and power line interference with radio and tele- vision reception. As noted in the previous chapter, weed patches are generally concentrated around the base of power line support structures in rural areas, primarily because the remainder of the easement area is used for agricultural purposes. However, in communities, entire transmission line easements are often a source of weeds because such easements are not used for any other purpose. These "wasted" ease- ments spread weeds to adjacent lawns and properties which landowners must then spend time and money to remove in order to maintain their properties in a quality condition. Furthermore, many individuals are leary of purchasing property close to transmission line easements 108 because of suspected interference with radio and television reception from the power lines during periods of bad weather. Thus, properties adjacent to power line easements are often less desirable than would otherwise be the case. In order to lessen such undesirable impacts on adjacent land- owners, it is necessary that an acceptable ground cover be established on power line easements or that such easements be utilized for addi- tional beneficial uses. Furthermore, utility companies should assist adjacent landowners in correcting poor radio and television reception resulting from power line interference. In any case, proposals for the siting and development of power lines will be evaluated with refer- ence to whether or not a satisfactory program for mitigation of adverse impacts has been presented. The following policies will be considered and utilized in reviewing and assessing proposals for the location of electrical transmission lines and associated facilities in and around populated areas of Weld County. 1) Prior to approval of any substation or transmission line siting proposal, it shall be determined that the nature and loca- tion or expansion of such facilities comply with the intent and provisions of applicable Weld County plans and the development plans of affected communities. 2) Prior to the approval of any substation or transmission line siting proposal, it shall be determined that all reasonable 109 alternatives to the proposed action which may serve to protect the welfare and property of surrounding landowners have been adequately assessed, and that the proposed action represents the best interests of the people of Weld County. c. Impacts on Mineral, Wildlife and Cultural Resources Electric transmission facilities and easements can also have negative impacts on other land use resources. Interference with the extraction of mineral resources is one important problem which should be avoided whenever possible. Utility structures located over mineral deposits can effectively eliminate accessibility to the under- lying resource. In addition, overhead lines can interfere with the large equipment used in mining operations and create a safety hazard for workers. Techniques which reduce the magnitude of such impacts on future mining activities should be implemented in those instances where utility companies cannot completely avoid mineral resource areas in their transmission line siting proposals. Preferably, easements pro- posed through mineral resource areas would be located within existing right-of-ways, since these locations already preclude mining activities. In other cases, the route selection process should give preference to locations through lower grade deposit areas; and, when it is necessary to traverse high grade deposit areas, to select the shortest route possible. In addition, support structures should be designed to 110 ullkata.!ifl flip nH , le ,,f ;ri Art—np 'at ;;''trn}.l:il underground mining. In areas of potential strip mining, lines should be placed at heights which will not interfere with mining equipment and create safety hazards. Electric transmission lines can also create impacts on wildlife resources, if designed or located improperly. Techniques to alleviate these problems were noted in the previous chapter; at this time, how- ever, it is emphasized that the major problem is the potential for electrocuting birds of prey. A study conducted in another region pointed out that young golden eagles were the principal victims of transmission line electrocutions (16:1). Weld County contains large concentrations of various raptor species, including golden eagles, especially during the winter nesting season. Thus, large numbers of young golden eagles are present during certain times of the year. In areas of raptor con- centration, it is especially important that utility companies consider this problem and eliminate it to the extent feasible when constructing their facilities in Weld County. In order to help minimize this prob- lem, it is recommended that power lines avoid raptor nesting areas to the extent practical or design power line facilities using techniques similar to those noted in the publication Suggested Practices for Raptor Protection on Power Lines (16:2). Weld County' s cultural resources are an additional concern which must be considered prior to development of transmission lines and associated facilities. The two major problems created by transmission 111 line facilities regarding these resources is that; one, they reduce the quality of scenic and historic sites, especially when designed and located improperly; and two, construction operations can destroy or disturb archaeological, historic and scenic resources to a significant extent. An analogous example of improper location and destructive con- struction operations is the routing of Interstate 25 through the middle of the Natural Fort in northwestern Weld County. Although transmission line construction operations through the Natural Fort would probably not require extensive removal of the rock formations, as was the case with the Federal highway right-of-way, overhead power lines and associated facilities would probably create a greater aesthetic impact. In any case, further destruction and degradation of our cultural re- sources should be prevented to the extent possible. In cases where cultural resources cannot be avoided, it is recommended that transmission lines and facilities should be screened to the extent possible, or otherwise designed, so that they blend with the surrounding landscape. Additionally, in the vicinity of archeologi- cal areas of high probability, utility companies should employ the assistance and advice of qualified agencies and professionals in deter- mining alternative methods to minimize potential impacts. The following policies will be considered and utilized in review- ing and assessing proposals for the development of electrical trans - mission lines and associated facilities in order to mitigate impacts on 112 Weld County' s mineral, wildlife and cultural resources. 1) Prior to approval of any proposal for the location or expansion of electrical transmission facilities, it shall be determined that the proposal satisfactorily complies with the intent and purpose of this plan and other applicable plans and regulations of this jurisdiction; specifically, the Weld County Mineral Resource Extraction Plan and appropriate sections of the Weld County Zoning Resolution. 2) Prior to the approval of any proposal for the location or expansion of substations and electrical transmission facilities, it shall be determined that, one, the proposal will not interfere with any significant wildlife habitat, mineral resource area or . cultural resource area; or two, that measures are set forth in the proposal which adequately mitigate adverse impacts on any wildlife species, mineral resource area, unique natural re- source, historic landmark and/or archaeological site within the affected area. 3. Gas and Oil Pipeline Systems Problems created for other land uses and resources by new development or extension of pipeline systems are generally of a short- range nature because the pipes themselves are placed underground. However, associated aboveground facilities, such as compressor stations and storage tanks, may have long-range impacts similar to 113 those created by electrical transmission facilities. Although these similar impacts were not re -emphasized to any great depth in the previous chapter, they are included in the following outline which identifies potential conflicts created by pipeline system development on existing land uses and resources. a- Impacts on Agricultural Operations and Crop Production 1) Disruption of irrigation systems 2) Crop loss and reduced production 3) Fence damage and livestock movement 4) Trash and cut utility service lines 5) Loss of prime agricultural land 6) Water and wind erosion b- Impacts on Quality Community Growth 1) Development patterns 2) Safety c- Impacts on Other Resources 1) Interference with mineral resource extraction 2) Wildlife impacts 3) Impacts on cultural resources a. Impacts on Agricultural Uses Pipelines and associated facilities primarily impact other land uses during the period of time required to construct the lines. Thus, construction techniques will largely determine the severity of 114 impacts which will be encountered. In agricultural areas, construction operations generally create the biggest problems when pipelines are placed through irrigated croplands during the growing season; however, significant problems can also be created when pipelines are placed through rangelands because of the fact that it takes a long time for construction scars to heal over in these semi-arid areas which experi- ence high winds and little water. In cropland areas, crops can be destroyed, irrigation ditches cut and topsoil displaced by pipeline ditching operations. Later, subsidence can occur along these newly constructed pipelines, which may displace irrigation waters, especially if water tamping techniques have not been used. If aboveground facilities are constructed in such areas, the ground is either lost to crop production or such facilities become an obstacle to the operation of farm machinery. In addition, the area immediately around such facilities may become a source of weeds which compete with crops, resulting in reduced yields and a degraded product. In rangeland areas, potential water and wind erosion problems are created whenever vegetation is stripped from the surface, as occurs during pipeline ditching operations or when constructing above - ground facilities. As previously noted, it often takes years for natural vegetation to be re -established in these semi-arid areas. Therefore, it is extremely important to quickly re -establish suitable ground cover by artificial methods once construction operations are completed in order to minimize potential water and wind erosion problems. 115 Additional problems are created in rangeland areas when utility company survey parties fail to notify landowners about their activities, when construction operations damage fences and utility service lines, and when trash is left behind after operations are completed. Ranchers must spend time and money, in such areas, identifying trespassers, rounding up cattle, repairing service line connections and fences, and picking up trash. Many of these problems are generally uncalled for and can be avoided; nevertheless, past complaints affirm that such problems are not uncommon. In the future, it is recommended that utility companies inform landowners of their activities, inquire about the location of existing underground utility service lines and other facilities, carry out trash generated as a result of construction activities, and provide temporary gates when it is necessary to cut fences during construction operations. Such measures will minimize interference with the daily activities of affected landowners, avoid damages to their utility hook-ups, assure that livestock does not get into roadways or adjacent fields, and generally alleviate hard feelings. In order to avoid or lessen impacts on agricultural operations and production capabilities which may result from construction of pipeline facilities, the following policies should be observed in decisions involving the siting of such facilities. 1) Utility companies shall be encouraged to locate aboveground facilities in non-cropland areas to the extent possible, especially avoiding irrigated arras. This action will assure that prime 116 lands are not directly lost for production of agricultural crops, will minimize any interference with farm machinery, and will minimize weed problems to the greatest extent possible. 21) In those instances where it is necessary for pipeline ease - ments to traverse cropland areas, utility companies shall be encouraged to conduct construction activities prior to or after the growing season and to place their pipe at a depth which does not interfere with plowing operations. These actions will assure that crop yields are maintained to the greatest extent possible. 3) In those instances where it is necessary for pipeline ease- ments to traverse irrigated areas, utility companies shall be encouraged to bore under, rather than cut, irrigation ditches. However, if pipeline construction activities must necessarily take place during the growing season, boring operations shall be postponed and temporary lines placed over irrigation ditches until crops have been harvested. 4) Utility companies shall he encouraged to use ditching tech- niques which replace topsoils on the surface regardless of the location proposed for pipeline easements. This action will assure that crop yields as well as reclamation measures are not affected by sterile soil horizons. 5) Natural or adopted plant species suitable for grazing purposes shall be re -established by utility companies along pipelines and associated facilities constructed through rangeland and other 117 grazing areas. This action requires that seeding of appropriate grasses and forbs be followed with efforts which assure that the vegetation is finally established. This will minimize problems associated with wind and water erosion in such areas. b. Impacts on Communities In and around community growth areas, pipeline place- ment and construction activities can also create problems. Major problems involve impacts on development patterns and safety of resi- dents. Pipelines emplaced at shallow depths or at locations which interfere with local community plans and projects can create significant problems in these areas. These problems are compounded if the pipe standards used are not on a par with proposed densities as set forth in community development plans. In addition, aboveground utility facilities can create problems similar to those of electrical trans - mission facilities with reference to reduced land values because of their general appearance. In order to minimize potential conflicts such as those delineated above it is necessary that pipeline utility companies observe the following guidelines. ].) Prior to approval of any pipeline or oil and gas storage area siting proposal, it shall be determined that the nature and loca- tion or expansion of such facilities comply with the intent and provisions of applicable Weld County plans and the development plans of affected communities. Such action shall include 118 coordination with local officials regarding any local capital improvement projects or plans which may be affected by the siting proposal. L) Prior to the approval of any oil and gas storage area or pipe - line siting proposal, it shall be determined that all reasonable alternatives to the proposed action which may serve to protect the welfare and property of surrounding landowners have been adequately assessed and that the proposed action represents the best interests of the people of Weld County. 3) Aboveground pipeline facilities shall be designed to blend in with surrounding and proposed land uses, or otherwise screened from view. This action will assist in minimizing negative impacts on surrounding land values. 4) Pipelines shall be buried to depths which are reasonably safe from accidental cuts caused by machinery used in constructing streets and other urban facilities. 5) Pipe standards shall be used which are in keeping with densi- ties proposed in community growth plans. This action will assure that impacts on community growth patterns are minimized. c. Impacts on Mineral, Wildlife and Cultural Resources Pipeline easements and associated facilities can also have impacts on other resources and land uses. Interference with extraction of the extensive coal, sand and gravel resources found in 119 Weld County is a likely impact which must be given consideration as pipeline development occurs. Pipelines traversing mineral resource areas can affectively eliminate underlying deposits from being extracted and can interfere with adjacent mining operations. It is important that pipeline development proposals avoid commercial mineral deposits as much as possible; and that measures be developed to mitigate impacts and conserve commercial deposits when it is not practical to com- pletely avoid such resource areas. Preferably, pipeline easements pro- posed through mineral resource areas should be located within existing right-of-ways, since these locations have,in general, precluded mining activities. In addition, the route selection process should give preference to locations through lower grade deposit areas. In those instances where it is necessary for easements to traverse high grade mineral deposits, the shortest route possible should be selected. Potential impacts on wildlife resources are an additional concern which must be given consideration as pipeline development occurs. Oil spills and gas leaks from corroded pipes or lines washed out by flood- waters, and increased sediment infiltration of water bodies from ditching operations or from erosion of pipeline easements are potential problems which could cause harm to fish and to wildlife habitat. In that this concern is most likely to create problems in and around water bodies, it is important to insure that acceptable pipeline construction and reclamation measures are established to protect water habitats. At stream crossings, it is recommended that pipelines be placed at 120 depths which reasonably assure that they will not be washed out by floodwaters; and that ditching techniques be used which maintain water turbidity within levels that will not significantly affect any fish species present. Moreover, in any area where water resources could be affected by pipeline construction activities or by oil and gas spills, it is recommended that the most efficient pipe corrosion prevention tech- niques be used and that utility companies quickly re-establish vegeta- tion on their easement areas. These actions will assure that siltation and pollution of water bodies, serving as wildlife habitat, is prevented to the extent possible. Finally, cultural resources must be considered when proposing to construct pipeline facilities in Weld County. Damage to archaeologi- cal artifacts, historic sites and scenic formations is a likely possibility as pipeline development occurs. Therefore, areas containing known cultural resources should be avoided whenever it is practical to locate pipelines elsewhere. In addition, oil and gas storage facilities or other aboveground facilities which may intrude upon scenic vistas should be screened to the extent possible and otherwise designed to blend in with the surrounding landscape. in the vicinity of archaeological areas of high probability, utility companies should employ the assistance and advice of qualified agencies and professionals in determining alternative methods of protecting ancient artifacts, prehistoric bones, etc. , from damage by construction activities. 121 In any case, the following policies shall apply to the review of proposals for location of pipelines and associated facilities in Weld County. 1) Prior to approval of any proposal for the location or expansion of a pipeline or oil and gas storage facility, it shall be determined that the proposal is in compliance with the Weld County. Mineral Resource Extraction Plan. 2) Prior to the approval of any proposal for the location or expan- sion of a pipeline or oil and gas storage facility, it shall be determined that the nature and location or expansion of such facility will not adversely interfere with any significant wildlife habitat and will not adversely affect any endangered wildlife species, unique natural resource, historic landmark and/or archaeological site within the impact area. 122 B. Summary and Conclusions In the overall effort to maintain an adequate supply of electricity, oil and natural gas, provisions must be made for the development of new facilities to meet the increasing demands of a growing population. Weld County recognizes many of the problems faced by utility companies in their necessary efforts to develop new and expanded electrical gener- ating plants, oil and gas storage facilities and transmission systems; however, the utilities industry does not exist in a vacuum. Rather, their presence and the energy they supply is closely related to other valuable resources and essential land uses such as agricultural lands and water supplies. Thus, development of major utility facilities and energy supply must be closely considered within the full context of land use goals, objectives and policies in Weld County today; more specifically, within the framework of the Weld County Comprehensive Plan. In order to achieve this integration, and to recognize the inter- relationships between the va;r ous elements of Weld County' s resource base, the following guidelines will be used in evaluating proposals to develop major utility facilities: 1) The protection of the county' s prime agricultural lands for agricultural use is the primary goal of the Weld County 123 Comprehensive Plan. Since the county' s irrigated lands are the most productive lands for agricultural use, and since major utility facilities can seriously impact these lands, development of such facilities will be discouraged in prime irrigated agri- cultural areas: a) When other alternatives are feasible, or b) Unless development techniques are to be utilized which adequately mitigate long-term interference with farming operations and crop production. 2) Proposed major utility facilities requiring substantial water supplies will be discouraged unless such water is either: a) Procured from a source which will not affect existing irrigated lands, or b) Procured from existing agricultural water sources and returned after use in such a manner that existing irrigated lands are basically unaffected. 3) As an overall approach, major utility facilities will be en- couraged to locate in non-cropland areas rather than in cropland areas. In locating facilities in non-cropland areas, utility companies will be expected to utilize development, design and reclamation standards which will minimize negative impacts on such areas. These policies are based on the assumption that the impacts caused by development of major utility 124 facilities in non-cropland areas will be less severe than similar impacts in cropland areas. This assumption is supported by three basic factors. In general, non-cropland areas are more sparsely populated; thus fewer impacts result on surrounding residential uses. Second, non-cropland areas are generally less productive on a per/acre basis; thus economic impacts are less severe when such lands are removed from production. Finally, the impacts on agricultural operations in non-cropland areas are generally less severe since these areas in general do not require the use of large farm machinery and lack sophisticated water distribution systems. 4) The location of major public utility facilities in identified resource conservation areas will be discouraged unless develop- ment, design and reclamation standards are utilized which adequately mitigate the negative impacts created by the location of these facilities in such areas. Resource conservation areas include lands underlain by the County' s most significant sand and gravel resources, significant cultural resources sites, and those areas which support large concentrations of raptors and other wildlife species. It is important that these areas, which contain valuable and/or limited resources be protected, to the extent possible, from impacts which would deplete, destroy or otherwise lessen the value of such resources. 125 5) When the location of major utility facilities is proposed within the comprehensive planning area of one or more Weld County incorporated communities, it shall be determined prior to the approval of the application, that: a) The proposal is consistent with the applicable town comprehensive plans, and b) That the design of the proposal mitigates negative impacts on the area in question to the greatest extent feasible. Finally, in all new major utility facility developments, the impacts on the general public, as well as affected lands, must be con- sidered in project design. It is the intent of the plan to insure that such considerations are indeed realities. 126 Sources Cited Sources Cited 1. Session Laws of Colorado 1974, Second Regular Session. Areas and Activities of State Interest. Chapter 106, Article 7, Para- graph 204(6). 2. Yakich, Eli, Jr., Public Service Company of Colorado. Letter to Roy Jost, Planner, Weld County Planning Commission, Greeley, Colorado, September 12, 1975. 3. Capener, J. Paul, U. S. Bureau of Reclamation, interviewed by Roy Jost, Denver, Colorado, September 3, 1975. 4. Nagel, Theodore J. , and Vassell, Gregory S. , "Power Plant Siting Requirements." Planning, February, 1973, pp. 24-26. 5. Colorado Land Use Map Folio. Selected Energy Resources and Pipelines. Colorado Land Use Commission: Denver, Colorado, January, 1974. 6. U. S. Bureau of the Census, "Census of Agriculture, 1969, Volume V. Special Reports. " Part 12. Ranking Agricultural Counties. U. S. Government Printing Office, Washington, D. C. , February, 1973. 7. Board of County Commissioners, Weld County, Colorado. "Weld County Comprehensive Plan. " County Master plan adopted by the Board, Greeley, Colorado, September, 1973. 8. Board of County Commissioners, Weld County, Colorado. "Weld County Zoning Resolution. " County Zoning regulations adopted by the Board, Greeley, Colorado, May 1961, as amended. 9. The Denver Post, April 24, 1977. 10. Korrin, M., Department of Atmospheric Science, Colorado State University, interviewed by Roy Jost, telephone, Greeley, Colorado, June 6, 1977. 11. Public Service Company of Colorado. Air Solutions? Informational booklet available through the Information Department of Public Service Company of Colorado, Denver, Colorado, January, 1974. 128 12. U. S. Department of Housing and Urban Development. Rapid Growth From Energy Projects. A study prepared under the 701 Comprehensive Planning Program in cooperation with the Federal Energy Administration, U. S. Government Printing Office, 1976. 13. Western Systems Coordinating Council. Environmental Guide- lines. Guidelines developed by environmental committee and offered to member utility companies Rosemead, California: Southern California Edison Company, December 3, 1971. 14. Department of Natural Resources. Sand, Gravel, and Quarry Aggregate Resources of the Colorado Front Range Counties. Colorado Geological Survey: Denver, Colorado, 1974. 15. Board of County Commissioners, Weld County, Colorado. "Weld County Extraction Plan." Amendment to County Master Plan adopted by the Board, Greeley, Colorado, July, 1975. 16. Raptor Research Foundation, Inc. Suggested Practices for Raptor Protection on Powerlines. Provo, Utah: Department of Zoology, BYU, June, 1975. 129 Appendix/ Regulations APPENDIX AMENDMENTS TO THE WELD COUNTY ZONING RESOLUTION Under the Weld County Zoning Resolution, major public utility facilities shall be permitted upon the granting of a Public Utilities Per- mit by the Board of County Commissioners in those zoning districts outlined below in Table A-1. TABLE A-1 Zone Districts Allowing Development of Major Public Utility Facilities Facility Zone District Substation All districts Transmission line All districts Pipeline All districts Oil and Gas Storage Areas Agricultural and Industrial Power Plant Industrial Prior to submittal of a Public Utilities Permit application, applicants are strongly encouraged to coordinate their intentions with the Weld County Department of Planning Services and, through public meetings, to inform potentially affected landowners and other con- cerned citizens of their intentions. Such actions will help ensure that: 1) Applicants are informed of county policy regarding the site selection process; 2) Applicants are made aware of reasonable alternatives which should be considered; 3) Applicants are informed of specific problems, objections, and concerns of affected individuals regarding their develop- ment proposal; and 131 4) Applicants are assisted in determining if additional informa- tion may be required. This information will expedite the application process and avoid rehearings. Previous applications have been tabled at hearings be - cause they were in direct conflict with the Weld County Comprehensive Plan; various alternative locations were not considered and required study; underground irrigation systems were overlooked; or sufficient information regarding a variety of factors had not been submitted as required. If applicants coordinate closely with the Weld County Planning Staff and conduct public meetings, such delays can be avoided. Public Utility Permits are not a requirement for minor facilities such as: substation sties not directly connected with transmission lines carrying over 69 KV of electricity; oil and gas storage facilities with capacities under 100, 000 gallons or 50 million cubic feet; oil and gas pipelines 10 inches diameter; or electric transmission lines under 70 KV capacity. Request for facilities larger than those noted above and for power plants are subject to the additional requirements of Section 6. 8 of the Weld County Zoning Resolution. Section 6. 8, which follows, is a new amendment declared to be necessary for the immediate protection of the health, safety and welfare of the inhabitants of Weld County. 132 Section 6. 8 Site Selection and Construction of Major Facilities of a Public Utility 1 . General and Introductory Provisions A. Purpose and Intent - The purpose and intent of the regulations contained in this section are: (1) To encourage planned and orderly land use development; (2) To encourage uses of land and other natural resources which are in accordance with their character; (3) To conserve soil, water, and agricultural resources; (4) To protect the beauty of the landscape; (5) To promote the efficient and economic use of public resources; (6) To regulate the site selection and construction of major facilities of a public utility to prevent significant deteriora- tion or degradation of existing air and water quality in the state; (7) To regulate the site selection and construction of major facilities of a public utility so as to avoid direct conflict with existing land uses and adopted city, county, regional, and state master plans; and (8) To promote the health, safety and welfare of the inhabitants of the area and the county. B. Authority These regulations are adopted pursuant to inter alia, Z4-65. 1 -101, et. seq. , 29-20 -101 , et. sea. , 30 -28-101 , et. seq. , C. R. S. 1973, as amended. C. Applicability These regulations shall apply to all new site selections of major facilities of public utilities within the unincorporated lands of Weld County subsequent to the adoption of these regulations. These regulations shall also apply to any expansion, enlargement, or extension of major facilities of public utilities after the adoption of these regulations. 133 D. Relationship of Regulations to Other Requirements Nothing in these regulations shall be construed as exempting an applicant for a permit from any other requirements of Weld County or state or federal laws and regulations. An application for a public utilities permit under these regula- tions may be filed concurrently with any other permit or applications required under this resolution or other regula- tions of Weld County. If it is necessary to rezone the property, then the rezoning application shall be submitted concurrently with the public utilities permit application. E. Prohibition of Site Selection and Construction of a Major Facility of a Public Utility Without Permit (1) No person may locate or construct a major facility of a public utility in Weld County without first obtaining a public utilities permit pursuant to these regulations. (2) No building permit for a major facility of a public utility will be approved without the applicant first ob- taining approval of a Public Utilities Permit pursuant to these regulations. F. Relationship to Zoning Districts Major facilities of a public utility as identified below shall be permitted to locate in the zoning districts outlined below once a Public Utilities Permit has been obtained pursuant to these regulations. Facility Zone District Substation All Districts Electric Transmission Line All Districts Pipeline All Districts Oil and Gas Storage Areas Agricultural and Industrial Power Plant Industrial 1 34 G. Permit Process (1) Duties of the Department of Planning Services a. the Weld County Department of Planning Services shall be responsible for processing all applications for a major facility of a public utility in the unin- corporated area of Weld County. The Department shall also have the responsibility of insuring that all application submittal requirements are met prior to initiating any official action as listed below. b. Upon determination that a submitted application is complete, the staff of the Department of Planning Services shall: 1) Set a Planning Commission hearing date not less than thirty (30) days nor more than sixty (60) days after the complete application has been submitted. 2) Arrange for a public notice of the hearing by the Planning Commission to be published once in a newspaper serving the general area of the request a minimum of ten (10) days prior to the hearing date. 3) Notify all owners of property within 500 feet of the parcel under consideration a minimum of ten (10) days in advance of the Planning Commission hearing except for applications for an electric transmission line or gas pipeline which is more than one (1) mile in length in which case it is the responsibility of the applicant to advertise the hearing at least once in a newspaper(s) serving the general area of the request a minimum of ten (10) days prior to the hearing date. The advertise- ment shall be at least one-half page in size and shall contain a map displaying the proposed alterna- tive routes along with a description of the hearing time, date, and location. The number, form, and content of the advertisement(s) shall be approved by the Director of the Department of Planning Ser- vices prior to publication. 135 4) Refer the application to the following agencies, when applicable, for their review and comment. The agencies named shall respond within twenty- one (21) days after the mailing of the application by the County. The failure of any agency to respond within twenty-one (21) days may be deemed to be a favorable response to the proposal. Such agencies may request and be granted additional time for review of such proposals upon approval by the Director of the Department of Planning Services. The reviews and comments solicited by Weld County are intended to provide the County with information on the proposal. The Planning Com- mission and Board of County Commissioners may consider all such reviews and comments, and may solicit additional information if such information is deemed necessary. The reviews and comments submitted by a referral agency are recommendations to the County. The authority and responsibility for making the decision to approve or deny the proposal rests with the officials of Weld County. a) The Planning Commission of any town and/or county whose boundaries are within three (3) miles of the proposed site(s) or if the proposed site(s) is located within any town' s compre- hensive planning area. b) Weld County Planning Commission member(s) representing the geographic district in which the proposed site is located. c) Weld County Department of Law for checking the legal description of the proposed site. d) Weld County Department of Health Services e) Weld County Department of Engineering Services f) Colorado Geological Survey g) Colorado State Department of Highways h) U. S. Forest Service i ) Any irrigation ditch company with facilities 136 within or adjacent to the site(s) under consideration. j ) All utility companies with underground lines which might be affected by the development. k) All special service districts who will need to provide service to the development such as education, fire protection, police pro- tection, water, and sewer. 1) State Engineer, Division of Water Resources m) Soil Conservation Service n) Colorado Land Use Commission o) Any other agencies or individuals whose review the Director of the Department of Planning Services deems necessary. 5) Prepare staff comments and recommendations for presentation at the Planning Commission hearing, addressing all aspects of the application, its conformance with the Weld County Zoning Resolu- tion, the Weld County Comprehensive Plan, and comments received from agencies to which the proposal was referred. c. The Department of Planning Services shall arrange for the office of the Weld County Clerk and Recorder to record the plans approved by the Board of County Commissioners. (2) The Planning Commission shall hold a hearing to consider the application for the Public Utilities Permit. The Commission shall make a recommendation to the Board of County Commissioners. Prior to making a recommendation on an application for a Public Utilities Permit, the Planning Commission shall determine whether the proposal is in conformance with: a. Section A - Purpose and Intent, of these regula- tions, and b. Section 3 - Standards, of these regulations. 137 The SecrrLrry of the Planning Commission shall forward the official recommendation to the Clerk to the Board of County Commissioners within ten (10) days after said recommendation has been made. If the Planning Commission recommendation is conditional upon the applicant completing certain specified items prior to the publication of the notice for the hearing by the Board of County Commissioners, then the ten (10) day period shall commence upon submission of the items by the applicant to the Director of the Department of Planning Services. (3) Duties of the Board of County Commissioners a. Upon receipt of the Planning Commission recom- mendation, the Clerk to the Board shall: 1) Set a Board of County Commissioners' public hearing for consideration of the proposal within sixty (60) days after receiving the Planning Commission recommendation. 2) Arrange for notice of said meeting to be published once in a newspaper of general circulation in Weld County. The date of publication shall be at least ten (10) days prior to the hearing. 3) Notify surrounding property owners in con- formance with Section 1 . G. (1)b. 3) of these regulations. b. The Board of County Commissioners shall hold a public hearing to consider the application and to take final action thereon. In making a decision on a Public Utilities Permit, the Board shall: 1) Consider the recommendation of the Planning Commission; 2) Determine whether the proposal complies with Section 1. A - Purpose and Intent, of these regulations; and 3) Determine whether the proposal complies with Section 3 - Standards, of these regulations. 138 The Board of County Commissioners shall ap- prove an application for a major facility of a public utility only if the request complies with Section 1.A - Purpose and Intent and with Section 3 - Standards of these regulations. 2. Application for Permit A. Any person seeking to locate and construct a major facility of a public utility in Weld County shall apply for a Public Utilities Permit on the forms provided by the Weld County Department of Planning Services. The application forms shall be accompanied by the supporting documents required by these regulations. B. Fee - Any application for a permit to locate and construct a major facility of a public utility shall be accompanied by certified funds to cover the cost of processing the application in the amount of $150. 00. The $150. 00 fee covers part of the cost of processing the application and is non-refundable. C. To minimize expenditures of time and money by all con- cerned, the Department of Planning Services encourages applicants to confer with the staff once a written summary state- ment of the project, as outlined below, has been completed. This consultation between the applicant and the Department of Planning Services Staff will provide a forum for identifying problems and issues which need to be addressed in the de- tailed report. D. Submission Requirements Fifteen (15) copies of the application for a public utilities per- mit shall be submitted by the applicant to the Department of Planning Services. An application for a public utilities permit shall contain the following information in such form as pre - scribed by the Department of Planning Services. (1) Applicant' s name and telephone number. (2) Address of applicant and general office. (3) Summary statement of the project, to include when applicable: 139 a. Source, capacity, destination and type of facilities, support structures, lines, etc. involved. b. Number and description of alternative locations or routes considered with a synopsis emphasizing reasons for favoring a particular site or route. c. Procedures, including reclamation measures, land- scaping, buffering techniques, and/or multiple - uses, to be employed in efforts to mitigate any adverse impacts. d. Size of the work force, both temporary and per- manent, involved. e. An outline of the planned construction and operation _ schedule to include the number of stages and timing of each. f . A synopsis of the water requirements, if any, to include the quality and quantity needed for each pro- posed use, proposed source(s), proposed storage facilities, proposed points of diversion, proposed treatment system, and proposed distribution system. g. A summary of the fuel requirements, if any, to include the type and quantity needed, proposed source(s), and proposed storage facilities. h. A description of the proposed location(s) and method(s) of disposal of all forms of waste. (4) A detailed report shall be submitted which includes information on the following items: a. A complete description of the propsed facilities including the source, capacity, destination, type of structures, etc. , which are involved. b. A complete analysis of the alternative routes or sites considered to include in each case: 1) Reasons for consideration; 2) Types of agricultural and other land uses affected; 140 3) Construction cost of the proposed alternatives; 4) Impacts on mineral resources; 5) Impacts on wildlife habitat; 6) Impacts on historical, archaeological, and scenic resources; 7) Visual impacts created by above ground facilities; 8) A description of any geologic hazards which could adversely affect the development; and 9) Advantages and disadvantages of the alternatives considered. c. A description of the preferred alternative route or site and reasons why it is favored. d. Procedures to be employed in mitigating any adverse impacts of the proposed routes or sites. e. An outline of the planned construction and operation schedule to include the number of stages and timing of each. f . Information of any public meeting(s) conducted to include the location(s), date(s), time(s), attendance, and method of advertising. g. A description of the hazards, if any, of fire, explosion and other dangers to the health, safety and welfare of employees and the general public. h. A description of emergency procedures to be followed in case of a reported failure or accident involving the proposed facility. Such outline should include actions, if any, required of public officials, including fire and police officials, and the names and telephone numbers of appropriate company officials to notify if an accident or failure should occur. i . A description of the method or procedures to be em- ployed to avoid or minimize the impacts on irrigated agricultural land. 141 j . A discussion of how the proposal conforms with the guidelines of the Weld County Comprehensive Plan with particular emphasis on the Public Utilities Section of the Plan. k. A discussion of the proposal for maintenance of the facility so as to prevent fugitive dust, soil erosion, and the growth of noxious weeds. 1 . A drainage report outlining the method of preventing surface runoff from exceeding the historical flow. m. Additional information needed for Transmission Lines and Oil and Gas Pipe Lines: 1) A discussion of the feasibility of utilizing any existing utility line corridors. 2) A list of the names and addresses of all the various utility companies which have existing underground utility lines underlying the alterna- tive routes. n. Additional information needed for Power Plant site proposals: 1) Detailed information concerning water require- ments to include the quantity and quality needed for the use, proposed source(s), proposed storage facilities, proposed point(s) of diversion, proposed treatment system, and proposed distri- bution system. 2) A description of the fuel requirements to include the type and quantity needed, proposed source(s), and proposed storage facilities. 3) A description of the location(s) and method(s) of disposal of all forms of waste. 4) A description of the type of transportation facilities needed to service the facility. 5) An outline of the types and numbers of operating and construction equipment to be employed. 142 6) A description of the size of the work force, both temporary and permanent, to be involved in the construction and operation of the facility. 7) A discussion of the proposal for providing temporary and permanent housing to accommodate the work force. The description shall outline the number, type, and location of the proposed building dwellings. 8) An estimate of the anticipated tax revenues to be generated by the project for local government and special districts. 9) A letter from each utility company indicating their intention and ability to serve the development. 10) A list of the names and addresses of all the local governments and special districts which would be affected by the development. 11) A discussion of the anticipated overall impact on local governments and special district service capabilities, including: education, police pro- tection, fire protection, water, sewer, health services and road maintenance services. 12) A description of the program proposed by the applicant to meet the costs of providing necessary facilities and services which a particular service entity does not have the financial capability of providing. 13) A discussion of the potential air and water pollution impacts which may be created by the facility along with proposed pollution control measures. This discussion should include any meteorological or climatological conditions which would cause the facility to create negative impacts on surrounding land uses. 14) A description of any routine haul routes identifying the roads and bridges involved and the weight of the loads. 143 15) Any other information determined to be necessary by the Board of County Commissioners or their authorized representative to ensure the protection of the health, safety and welfare of the inhabitants of Weld County. (5) Drawing Requirements a. Facilities Plan Map(s) for Substation Sites, Oil and Gas Storage Areas, and Power Plant Sites 1) General Requirements a) Fifteen (15) copies of these maps shall be submitted concurrently with the written application b) Maps shall be delineated in drawing ink on mylar or other drafting media approved by _ the Director of Planning Services in the following size: Twenty-four (24) inches by thirty-six (36) inches. c) The maps shall be prepared and certified by a land surveyor registered in the State of Colorado. 2) Vicinity Map a) The purpose of the Vicinity Map is to show the location of the proposed site in relation to the surrounding area within three (3) miles. b) The proposed site shall be identified on the vicinity map. The vicinity map shall also identify the zone districts, subdivisions, water bodies, transportation facilities, and towns within a three (3) mile radius. 3) Site Plan The Site Plan shall: 144 a) 11e• 'Irawn at a scale of I inch. 100 feel. This scale may be reduced or enlarged upon ap- proval of the Director of Planning Services. b) Include the property under application as well as features within 500 feet of the parcel boundaries. c) Include a certified boundary survey of the property. Bearings and distances of all perimeter boundary lines shall be indicated outside the boundary line. d) Show the existing topography of the site at ten (10) feet contour intervals, as solid lines, and the proposed topography of the site at ten (10) feet contour intervals as dashed lines. e) Show the name and location of all streams, including normally dry streams, ponds or other bodies of water, existing structures, roads, bridges, irrigation ditches, oil and gas wells, utility lines, landscape features, and easements. f) Show in detail the size and location of any proposed structures or associated facilities such as access drive(s), parking area(s), landscaped area(s), and fencing. g) Include such additional information as may be required by the Board of County Commissioners to satisfactorily explain the general charac- teristics of the proposed facility. 4) Legend The legend shall include: a) A certified boundary survey of the property. The description shall include the total acreage of the surveyed parcel. 145 b) Development standards governing the loca- tion, design, construction, and operation of the proposed facility. It is recommended that the first draft of the development standards be placed on separate 82 x 11" typed sheets. This will prevent additional drafting if changes must be made as the application is reviewed. c) Certificates: 1 - Surveyor' s Certificate; 2 - Certificate of Responsibility to be signed by the landowner; 3 - Planning Commission Certificate; 4 - Certificate of Approval by the Board of County Commissioners; and 5 - Clerk and Recorder' s Certificate. d) Title, scale, and north arrow. e) Date, to show revision dates if applicable. b. Utility Line Plan Map(s) for Electric Transmission Lines, and Oil and Gas Pipelines 1) General Requirements a) Utility Line Plan Map(s) shall be submitted in two stages: 1 - Alternate Route Map Set, and 2 - Selected Route Map Set. b) Fifteen copies (15) of the Alternate Route Map Set shall be submitted concurrently with the written application. c) The Selected Route Map Set shall be sub- mitted for recordation after approval of a route by the Board of County Commissioners. 146 2) Alternate Route Map Set shall: a) Include a vincinity map which displays the location of all the alternative routes within Weld County in relation to towns, major water features, and major transportation features. The vicinity map shall be pre- pared at a suitable scale on a sheet 24 x 36" in size. The vicinity map shall function as a map index for the detailed route maps shown on the U. S. G. S. Topographic Quadrangle Maps. b) Include a route map showing the proposed alternate routes through Weld County. The routes shall be shown on a 1:24, 000 scale U. S. G. S. Topographic Quandrangle Map(s). The centerline of each of the proposed alter- nate routes shall be displayed on the route map. The route map shall also show the areas of irrigated and non-irrigated agri- cultural land use as well as future land use designations for the areas around the towns which have adopted Master Plans. In addition, the 1 :24, 000 U. S. G. S. Topographic base map shall be updated to accurately depict any significant new man-made features within one mile of any of the proposed routes. c) Include such additional information as may be required by the Board of County Commis- sioners or their duly authorized representative. 3) Selected Route Map Set shall: a) Be submitted on a sheet(s) 24 x 36" in size. b) Be drafted in drawing ink on mylar or other drafting media approved by the Director of Planning Services. c) Include a vicinity map at a suitable scale which displays the location of the approved route within Weld County and its relationship to towns, major water features, and major transportation features. 147 d) Include a detailed route map showing the approved route through Weld County. The approved route shall be displayed on a 1:24, 000 scale U. S. G. S. Topographic Quad- rangle(s). The map(s) shall display the centerline of the approved route and all of the features depicted on the U. S. G. S. Topographic Quadrangle within one (1) mile on each side of the approved route. The base map shall be updated to include any significant new man-made features within one (1) mile on each side of the approved route. e) Include a legend consisting of the following items: 1 - Development standards governing the location, design, construction, and operation of the proposed facility. 2 - Certificates as follows: a - Certificate of Responsibility of the landowner; b - Planning Commission Certificate; c - Certificate of Approval by the Board of County Commissioners; and d - Clerk and Recorder' s Certificate. 3 - Title, scale, and north arrow. 4 - Such additional information as may be required by the Board of County Com- missioners to satisfactorily explain the general requirements of the facility as approved. 148 Amendments to Section 12. 2 - Terms and Words: (58) "Applicant" tneans any individual, partnership, corporation, association, company, or other public or corporate body, in- cluding the federal government or federal entity, and includes any political subdivision, agency, instrumentality, or corpora- tion of the state. (59) "Appurtenant facilities" means any buildings, structures or other property which are clearly incidental to, and custom- arily found in connection with major facilities of public utilities and are operated and maintained for the benefit or convenience of the occupants, employees, customers or visitors of such major facilities. Appurtenant facilities as defined herein re - lates only to those facilities which are constructed at the same time as the major facility itself. (60) "Major facilities of a public utility" means: (a) Transmission lines, power plants, and substations of elec- trical utilities, including extensions, expansions, and/or enlargements thereof. (b) Pipelines and storage areas of utilities providing natural gas or other petroleum derivatives, including extensions, expansions, and/or enlargements thereof. (61) "Pipelines" mean any pipeline and appurtenant facilities designed for, or capable of, transporting natural gas or other petroleum derivatives of ten (10) inches diameter or larger which creates a hoop stress of 20 percent or more at their specified minimum yield strength. (62) "Power plant" means any electrical generating facility with an energy generating capacity of fifty (50) megawatts or more, and any facilities appurtenant thereto, or any expansion, extension, or enlargement thereof increasing the existing design capacity of the facility by fifty (50) megawatts or more. (63) "Master plan" (or comprehensive plan, or general plan) means a plan for the physical development of the state, a county, region, or municipality, as defined by 24-32 -203(1)(e), 24-65-104(1)(a)(b), 30 -28-106(3)(a)(b)(c), 30 -28-107, and 31 -23-106(1)(a)(b)(c)(d), C. R. S. 19i3, or by charter or ordinance of a home-rule municipality. 149 (64) "Public Utility"means: (1) The term "public utility" includes every common carrier, pipeline corporation, gas corporation, electrical corporation, telephone corporation, telegraph corporation, water corpora- tion, person, or municipality operating for the purpose of supplying the public for domestic, mechanical, or public uses and every corporation, or person declared by law to be affected with a public interest. Nothing in this definition shall be construed to apply to irrigation systems, the chief or principal business of which is to supply water for the purpose of irriga- tion or to exemptions provided for in the constitution of the State of Colorado relating to municipal utilities. (2) Every cooperative electric association, or nonprofit electric corporation or association, and every other supplier of electrical energy, whether supplying electric energy for the use of the public or for the use of its own members, is also a public utility. (65) "Site selection" means the process for determining the location of major facilities of a public utility or the expansion, extension or enlargement of existing major facilities of a public utility. (66) "Substation" means any facility designed to provide switching, voltage transformation, or voltage control required for the trans- mission of electricity which has an incoming or outgoing line which is more than 69 KV. (67) "Transmission lines" mean any electric transmission line carrying more than 69 KV and appurtenant facilities which emanate from a power plant or substation and terminate at a substation. (68) "Storage area" means any facility, including appurtenant facilities, designed to store fifty million cubic feet or more of natural gas or similar petroleum derivatives, or one hundred thousand barrels or more of liquid petroleum derivatives. 3. Standards The Board of County Commissioners may approve an application for site selection and construction or expansion of a major facility of a public utility only if all requirements of these regulations are met, and the application is consistent with the following standards: 150 A. Reasonable efforts have been made to avoid irrigated cropland or to minimize the impacts on such lands in those cases where avoidance is impractical. B. The facility will not have an undue adverse effect on existing and future development of the surrounding area as set forth in applicable Master Plans. C. The design of the proposed facility mitigates negative impacts on the surrounding area to the greatest extent feasible. D. The site shall be maintained in such a manner so as to control soil erosion, fugitive dust, and the growth of noxious weeds. E. The applicant has agreed to implement any reasonable measures deemed necessary by the Board of County Commissioners to insure that the health, safety, and welfare of the inhabitants of Weld County will be protected and to mitigate or minimize any potential adverse impacts from the proposed facility. F. The proposed facility will be supplied by an adequate water supply which has been evaluated with reference to the impacts of the use of such supply on agricultural uses. All reasonable steps have been taken by the applicant to minimize negative impacts on agricultural uses and lands. G. All reasonable alternatives to the proposal have been ade- quately assessed and the proposed action is consistent with the best interests of the people of Weld County and represents a balanced use of resources in the affected area. H. It has been determined that the nature and location or expansion of a proposed power plant facility will not create an expansion of the demand for government services beyond the reasonable capacity of an impacted community or the County to provide such services. Where it is indicated that such an expansion of the demand for services will occur beyond the reasonable capacity to provide such services, the applicant must clearly show how such impacts will be mitigated prior to approval of the proposal by the County. I . It has been determined that the nature and location or expansion of the facility will not significantly deteriorate air quality in the affected area and that the facility will meet Colorado Department of Health and Weld County air quality standards. 151 J . The nature and location of the facility or expansion thereof will not impair the water rights of any upstream, downstream, or adjacent communities or other water users without due compensation. K. Adequate electric, gas, telephone, water, sewage, and other utilities exist or can be developed to service the site. L. The nature and location for expansion of the facility will not unreasonably interfere with any significant wildlife habitat and will not unreasonably affect any endangered wildlife species, unique natural resource, historic landmark and/or archaeological site within the affected area. M. The applicant' s engineer has certified that the drainage plans developed for, and to he implemented on the site, will prevent surface drainage from leaving the site which would exceed historic runoff flows. N. There are no geological hazards present which cannot be overcome through proper engineering design and construction techniques. The proposal complies with the requirements, if applicable, of the Weld County Supplementary Regulations con- cerning Geologic Hazards. O. The development of the proposed facility will not preclude the development of any commercial mineral deposit. Further, the proposal is in compliance with the Weld County Mineral Resource Extraction Plan. P. Where a proposed power plant is to be located in an area where a sufficient housing supply is unavailable for the anticipated immigrant construction force, the applicant for the location of such a facility must present plans showing how housing will be provided for such workers without creating major negative impacts on existing housing supplies and existing residents in the impacted communities, Q. The proposal complies with the policy guidelines set forth in the Weld County Publi.c Utilities Plan. R. The proposal complies with the requirements, if applicable, of the Weld County Supplementary Regulations concerning Geologic Hazards and Flood Plains. 152 Hello