Draft Master Plan 1

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Draft Saguache County Master Plan 2009

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plan. This relative flexibility allows the County to transcend traditional physicalgrowth policies, and broaden the impact of the Master plan to include issues thatreach beyond its physical development.

The Saguache County Master Plan (SCCP) covers all of Saguache County except thearea covered by the Crestone-Baca Sub-area Master Plan and the incorporated towns

of Bonanza, Center, Saguache, Moffat, Crestone and Hooper.

The purpose of the Master Plan is to guide Planning Commission decisions, theadoption of land use regulations and aid the communities in developing in ways thatreflect and perpetuate our core values.

More specifically, the County is directed to develop a Master Plan for the generalpurpose of guiding and accomplishing a coordinated, adjusted, and harmoniousdevelopment of the county . . . which in accordance with present and future needs andresources, will best promote the health, safety, morals, order, convenience, prosperity,or general welfare of the inhabitants, as well as efficiency and economy in the processof development, including such distribution of population and of the uses of land forurbanization, trade, industry, habitation, recreation, agriculture, forestry, and otherpurposes as will tend to create conditions favorable to health, safety, energyconservation, transportation,

prosperity, civic activities, and recreational, educational, and cultural opportunities;will tend to reduce the wastes of physical, financial or human resources which resultfrom either excessive congestion or excessive scattering of population; and will tendtoward an efficient and economic utilization, conservation, and production of thesupply of food and water and of drainage, sanitary, and other facilities andresources. In preparing a Master Plan, the Planning Commission is directed to takecareful and Master survey and studies of present conditions and future growth in the

County, with due regard to the Countys relationship to the neighboring territories.(CRS 30-28-107)

The relevant authorizing sections of the Colorado Revised Statutes are included asAppendix A.

SECTION IINTRODUCTION

Goals of the County Master Plan

1. Provide policy basis for modifying regulations and for development decisions.

The Master Plan provides a framework and parameters for development whilemaintaining consistency and fairness. It holds decision-makers accountable tofollow expressed community ideals.

2. Provide a basis for intergovernmental agreements (IGAs)

The SCCP helps identify when and where intergovernmental agreements wouldbenefit the community. By defining the Countys core values, it provides afoundation for common understanding and cooperation.


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3. Provide basis for setting priorities and funding

The Plan can aid County officials in determining funding priorities byreflecting the preferences of their constituents.

Objectives

The objectives of this Plan are to:

Establish land use and growth management policy to guide the general public,and government entities, in providing for future development that protects ourrural character, and treasured natural, cultural, historic and economicresources.

Preserve our rural lifestyle while connecting with our future by managing thepace, location and patterns of growth in Saguache County.

Provide for individualism and fairness for property owners and businesses,while protecting public health, safety and welfare.

Protect the quality of natural resources through good stewardship and

mitigation planning and practices. Protect working agricultural lands through encouragement of conservation

easements and continuing the right to ranch and farm in Saguache County.

Provide for the availability of adequate public facilities and services, housingand transportation by requiring commensurate fiscal responsibility inassociation with new development.

Define residential land use and development.

Define commercial and industrial land use and development patterns.

Consider transportation patterns and road services.

Consider impacts of housing options.

Consider impacts of development on administration, enforcement, emergencyand social services.

Foundations of the Master Plan

The Saguache County Master Plan was created upon the following tenets:

1. Planning is viewed as a proactive process.

2. Land use should be suitable for and compatible with the environmentalcharacteristics of the site of the proposed development.

3. Natural and cultural resources shall be identified, conserved and protected.

4. The Master Plan shall support settlement patterns that reflect the realities ofliving in Saguache County as described in the Right to Ranch and Farm.

5. Growth shall be encouraged in proximity of developed areas.

6. Open lands shall continue to be the defining feature of the landscape ofSaguache County.

7. Adequate public facilities and services shall be provided concurrent withdevelopment (i.e. development impact fees).

8. Plan components shall support a sustainable, balanced economy.


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9. Maximum intergovernmental cooperation is desirable for planimplementation.

10. The Master Plan and the implementing rules and regulations shalldemonstrate consistent intent.

Orientation Where is Saguache County?

Saguache County is located in south-central Colorado, about 170 milessouthwest of Denver. The County is the largest in the San Luis Valley, covering3168 square miles, and is separated into 2 distinct regions by the ContinentalDivide, with the majority of the County lying east of the divide and occupying thenorthern end of the San Luis Valley (see Figure 1). The resident population ofSaguache County is about 7,000. The Valley is bounded both east and west bymountains the Sangre de Cristo range on the east and the San Juans on thewest. The headwaters of the Rio Grande River are located in this valley, andparts of Saguache County lie atop one of the largest freshwater underground

aquifers in the continental United States. The western and northwestern slopeportions of the County are part of the Colorado and Arkansas River Basins,which are largely forested and agricultural land.

Historic Settlement Patterns

Early Exploration and Occupation

The earliest known human occupation in Saguache County dates to 1100 A.D. and isevidenced by the remains of primitive stone shelters or lookouts at high elevations

western part of the San Luis Valley. The Utes had long been the dominant culture bythe time of the first permanent Spanish settlement. Spanish expeditions reached the

San Luis Valley in the 1500s. Evidence of Spanish mining activity dating to the1600s can be found in the southeastern part of the county at the base of the Sangrede Cristo Mountain Range. The Carnero Creek drainage was also used by Indians asa route into the San Juan and La Garita mountains. Small groups of Utes commonlycamped along Saguache Creek during their frequent journeys through the San LuisValley. In the early 1800s fur trappers often passed through the San Luis Valley ontheir way to the San Juan Mountains and Gunnison Valley, using the routesestablished by the Utes.

In the early 1740, Mexico established land grants in the Valley, including theTrinchera, Baca Grande, and Sangre de Cristo. In 1848 the San Luis Valley becamea territory of the United States through the Treaty of Guadalupe Hidalgo.


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Figure 1

The First Permanent Settlements

The first permanent settlement in the County was by the Spanish near La Garita inthe mid-1800s. The first non-Spanish settlement in the region occurred in 1865,

when soldiers discharged after the Civil War settled in the north of the valley, nearpresent day Bonanza, as well as Villa Grove and Saguache. The Saguache Countyarea boasted 304 residents in 1870. The first settlers started farms on 160 acretracts granted to them under the federal governments Homestead Act. Irrigated

agriculture originated south of Saguache where natural arroyos were used to deliveragricultural water from Saguache Creek to farmland. Wheat was the principle crop.The grain was milled locally and transported over new toll roads on Poncha Pass andCochetopa Pass to mining camps in the Colorado Mountains. As the farmingindustry grew and ranching began to develop in the northern San Luis Valley, theneed for organized government and local services grew. Saguache County wasofficially founded in 1866 from what was formerly part of Costilla County. In 1874the town of Saguache was founded. Saguache became the county seat and an


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important supply center for local ranches and farms, and prospectors who werebeginning to explore the surrounding mountains.

Growth of the Mining Industry

Although agriculture has been the most constant economic activity over the years,

mining has played a tremendous boom and bust role in the Countys developmenthistory. By the 1870s, interest in mineral exploration in Saguache County wasgrowing. Discoveries of gold and silver deposits were frequently found in the Sangrede Cristo and the San Juan Mountains. Mining camps would spring up overnight asexcitement surrounded each new discovery. Often, the camps would be abandonedafter just a few months when veins would play out or the price of ore would drop.More permanent settlements were established at Rito Alto Creek, San Isabel Creek,Cotton Creek and other locations along the eastern edge of the valley. These smallcommunities typically had a post office, general store, boarding house, and tavernsupported by one hundred to two hundred residents. The population of Duncan isreported to have reached 4000 in 1892 before residents were forced to leave by theowners of the Baca Grant, on which the town and mines were illegally located. The

residents of Duncan relocated at the town of Liberty, south of the Baca Grant, butthe new town never fully developed, as the mines were not very successful. As themining industry continued its boom/bust cycle, most of the small communities wereabandoned and faded away.

The first large mineral discoveries with lasting effects were made at Bonanza andOrient Mining Districts in the 1880s. Numerous silver strikes in the Bonanza arearesulted in the establishment of several mining camps and mills near present dayBonanza. The camps in the Bonanza area supported such amenities as a localbrewery, billiard hall, bowling alley, and hotels. During its heyday in the 1880s thetown of Bonanza had a population of 1500 and was renowned for its thirty-sixsaloons and seven dance halls. Discovery of iron ore at the Orient Mine east of VillaGrove resulted in a mining camp of 400 people. The Orient Mine supplied theColorado Coal and Iron Companys, later changed to CF&I Pueblo steel mills.Although the mining industry continued to cycle, activity at Bonanza and Orientremained relatively stable through the early 1900s. With completion of the Denverand Rio Grande Railway from Salida to Alamosa in the 1880s, Villa Grove became athriving community, functioning as a supply center for the surrounding mines.

The Denver and Rio Grande Railroad also completed a line to the Gunnison Valleycrossing the Continental Divide at Marshall Pass. The Sargents depot on the westside of Marshall Pass served as a major refueling and maintenance stop for therailroad. The town of Sargents (originally known as Marshalltown) was established inthe early 1900s. In the 1930s ore from Bonanza was transported by tramway andloaded on the railroad at Shirley, near the Marshall Pass summit. The Marshall Passrailroad route proved to be too difficult to maintain in the winter and was eventuallyremoved. The old water tower and remains of maintenance buildings and coal chutescan still be seen in Sargents.

Gold was discovered near Crestone in 1880 and again in 1892. These strikes led togrowth of a permanent settlement. When a railroad spur reached Crestone in 1900,the town became the principal mining community on the east side of the San LuisValley.


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Mineral exploration spread into the western portion of the county followingtermination of the Los Pinos Indian Agency and Reservation and relocation of a localband of Ute Indians to the Uncomphagre Plateau near Montrose, Colorado. Iris, inthe far northwestern part of the county, and Sky City, in the La Garita Mountains,

were thriving mining camps near the turn of the century. The Esperanza Mine in

Biedall Canyon led to growth of the La Garita area during the same period.

These mining activities were responsible for the Countys growth in population.After1930 the Countys population declined steadily until around 1970, when USCensus data recorded a population of 3827. By 1987, there were 4785 residents, butthen the next couple of years saw a decline. The population returns to the 1987population levels in 1992.Currently some areas of the County are growing relatively fast, while others havedeclined slightly. The Town of Crestone, for example, grew 68% between 2000-2006,and population growth in the unincorporated portion of the County was 26% in thesame period. It is likely that a significant portion of that growth took place in theBaca Grande subdivision, adjacent to Crestone. In contrast, the towns of Moffat,Center and Saguache all lost population (an average of 4.3%) during the same period.

The percentage of the population living in the unincorporated part of the Countyincreased from 47% to 53% in just 6 years. According to the Colorado Dept of LocalAffairs, population growth in recent years is 44% natural (i.e. births minus deaths)and 56% the result of net migration.

Demographic Basics*:

Population: about 7,000

Under age 5: 6.8% Under age 10: 14.7%

Under age 20: 27.7% Age 60 & over: 18.2%

51.5% white 45.7% Hispanic 2.8% Other mostly Native American/mixed race

Language other than English spoken at home: 36.5% Foreign Born: 14.5%

Median Age: 39 Average household size 2.44

Level of Education, population over 25 (2000):Less than High School: 30% High School only: 24.8%Some College: 25.6% College degree or higher: 19.6%

Median Household Income (2008): $31,054Median Family Income (2008): $35,918Per Capita Income (2008): $15,823Persons below Federal poverty line: 30.6%Average full time income (1999) - males $33,552Average full time income females: $25,154

* Data taken from multiple sources, including: Map Stats; SLV DRG CDIS; CO Dept of Local Affairs, Bureau ofLabor Statistics, US Census Bureau, Bureau of Economic Analysis


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Average travel time to work: 20 minutes

Employed civilian population 16 years and over: 2955

Occupations:

Management, professional, and related occupations 27.9%Service occupations 13.4%Sales and office occupations 21.0%Farming, ranching, fishing, and forestry occupations 14.3%Construction, extraction, and maintenance occupations 11.7%Production, transportation, and material moving occupations 11.7%

1999 data was the most recent available for breakdown of income on the Countylevel. Overall, median household income increased 18.4% between 2000-2007. Thisshould be kept in mind when the following table, which should be updated as soonas more current figures are available.

Income % earning at thislevel

Less than $10,000 17.8%$10,000-14,999 10.8%$15,000-24,999 20.2%$25,000-34,999 17.7%$35,000-49,999 14.4%$50,000-74,999 11.5%$75,000-99,999 4.5

$100,000-149,999 2.5%$150,000-200,000 .2%

Over $200,000 .5%

Therewere more recent data available for per capita income. The following tablereveals no change in what has been historically true. In terms of measurableincome, Saguache County is one of the poorest Countys in the State.


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Per Capita Personal Income - 2000-2005

2000 2002 2003 2004 2005

%change2000-2005

Rankof 64 COcounties

% ofCOpercapita

% of USper

capita

Alamosa $20,570 $23,378 $23,251 $24,002 $24,985 21.5 50 66.6 72.5Conejos 15,650 16,644 17,599 18,111 18,875 20.6 62 50.3 34.7Costillo 17,755 18,935 19,909 20,395 22,158 24.8 55 59.1 64.3Mineral 22,100 23,830 25,197 27,126 27,066 22.% 40 72.2 78.5

Rio Grande 22,277 26,446 25,901 25,594 26,793 20.3 41 71.1 77.7Saguache 15,257 18,258 17,046 17,231 17,999 16.7 64 47.9 52.2

SLV 18,753 23,151 23.5 61.7 67.2Colorado 33,367 37,510 12.4 100 109

U.S. 29.843 34,471 15.5 91.9 100Source: U.S. Bureau of Economic Analysis, December 2007

SLV Development Resources Group C-9 2007.

Saguache County sub-area character descriptions

Crestone-Baca Area

Crestone was officially established on November 4, 1880 after the discovery of gold inBurnt Gulch, east of the town, in 1879. Mining and ranching fueled the earlyeconomy of the town. The Town of Crestone was incorporated on March 29, 1901.

The Town declined with the mining industry between 1930-1970. In 1971, theArizona Land and Cattle Company platted one of its properties for land development,forming The Baca Grande, located south of Crestone. This community helpedrevitalize Crestone, which became the commercial center for Baca Grande residents.

Today the Town of Crestone is dedicated to serving as an attractive and vibrantbusiness center, while preserving its historic character and its atmosphere of peaceand quiet. Crestone, together with the Baca Grande, is a haven for summervacationers, hikers and climbers, retirees and spiritual communities.

The Baca Grande is a 14,000-acre subdivision situated just outside of the Town ofCrestone. Situated on the eastern side of the County in the foothills directly abuttingthe Sangre de Cristo Mountains, it is under the jurisdiction of the Baca GrandeProperty Owners Association. As a result of the close relationship between thesubdivision and the Town, generic references to "Crestone" or the "CrestoneCommunity" often include the Baca Grande.

The Crestone-Baca sub-area has its own Master Plan and sub-area planning

commission, so while the Baca is unincorporated, it is not covered under this Plan.

Villa Grove/Bonanza Area

Villa Grove is an unincorporated community located on Highway 285 in the northernpart of the County. It provides tourist-related services for travelers, as well as a hubfor the surrounding areas, with the Post Office and other services. Bonanza is anincorporated town that grew up around the mining activities located about 15 miles


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west of Villa Grove. The town is struggling with a very small population that can nolonger support a town board and related government services.

Moffat/ Hooper Area

Moffat and Hooper are both incorporated towns located along CO Highway 17.

Hooper sits on the Saguache/Alamosa County line and is mostly located in AlamosaCounty. The hot springs fed Sand Dunes swimming pool is located northeast of town.

Moffat has a K-12 school along with other small businesses. The Town of Moffat hasincorporated large agricultural areas within its limits.

Saguache Area

The Town of Saguache was designated the county seat in 1866 when SaguacheCounty was created from the northern part of Costilla County. It is located at the

junction of US 285 and CO 114. Its history is significant, and in 2009 4th Street

business district was listed on Colorados list of most endangered historic places. Arevitalization project is underway. The Town of Saguache is surrounded by ranch,agricultural and private lands.

Cochetopa /Sargents Area

Sargents is an unincorporated community located on Highway 50 at the west base ofMonarch Pass. It provides limited services for travelers. There are severalsubdivisions and 35-acre developments located on the west side of the continentaldivide, as well as some large ranches.

The Cochetopa region is a ranching area that follows Highway 114 northwest toward

Gunnison. This area is primarily national forest, and largely undeveloped.

Center/La Garita Area

Center is an incorporated town that lies partly in Saguache County and partly in RioGrande County. It has the largest population of the towns in Saguache County.Farms on both sides of the county line surround it, and agricultural processingplants are located here. Center has a commercial district with several shops andservices, as well as a County facility building.

More information for the various sub-areas can be found at the Saguache Countywebsitewww.saguachecounty.net, in the Saguache County Visitors Guide and the

Saguache County Resource Guide and Business Directory.

Each area in Saguache County has several different businesses. Listed beloware just a sample of the types of businesses in Saguache County.

County Museum Inns, motels, and B&Bs General Stores Convenience Stores


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Antique and Pottery stores Coffee Houses RV Parks Post Offices Storage Units

Churches Banks Airport/landing strips Meat processing facilities Dog grooming Clinics Schools Restaurants News papers Yoga Movie Theaters Dentists County Musuem Tire Stores Terminal Scales Apartments Auto repair parts and services Rental Cabins Liquor Stores Department Stores (Big R) Potato Storage Laundry Fertilizer plants Government facilities Realty Offices

Saguache County has so many and so much historical locations such as: Marshall Pass Old Indian Agency Town Site of Iris and several different old mining towns Town of Sargents Alfred Packer figure at the Saguache County Museum Gold, Silver, and Uranium Mining Stock Drives and dipping vats

Forts Toll Roads

Several Places of Interest/Recreation: San Luis Peak (14er) Dome lakes McDonough Reservoir Needle Creek Reservoir Cochetopa Dome


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Razor Creek Dome Saguache Park Forest Service/BLM Fishing and Hunting Snyder Ranch/DOW Easement

Saguache Creek Corridor Easement Water Fowl viewing Town of Sargents Old Cochetopa Pass Pentitente Canyon Wagon Wheel Tracts Indian Paintings


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Land Ownership and Use

Of the 3168 square miles that comprise Saguache County, about 74% are publiclyowned, 68.7% federal and 4.7% State. The following table gives the breakdown.

In terms of classification, the total lands of the County (both public and private)break down as follows:

Residential AG Range Forest Waste Tundra Wetland Water

Acres 45,297 121,293 732,072 874,680 175,846 65,460 3,154* 739

% of 2.2% 6.0% 36.1% 43.1% 8.7% 3.2% .6% -Total

* Refers to formal classification there are many more acres of seasonal wetlands

In short, range, forest and agricultural lands make up over 85% of the County.

In terms of private lands in the unincorporated territory, data from the County TaxAssessor shows the following land classifications:

TYPE / USE TOP AGRICULTUAL USE 61,897CORNERS - IRRIGATED/NON IRRIGATED 18,417MEADOW 40,979GRAZE 195,933

WASTE 175,846RESIDENTIAL - VACANT RESIDENTIAL 45,297

TOTAL Private lands 538,369

Total Acres 2,027,940 100%

Federal 1,394,376 68.7%US Forest Service 903,736 47.6

BLM 344,554 17.3National Park Service 89,326 5.0%

US Fish & Wildlife 56, 760 4.6%State 95,195 4.7%

State Land Board 83,332School Trust Fund 10,222

CO Div of Wildlife 1,464Private 538,369 26.6%


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SECTION IIPUBLIC INPUTS

Building on Past Planning Efforts

The original County Master Plan (1974) contained a good historic base upon which a

new plan could be built. Interests and concerns that remain current today include: A strong resident focus on the lifestyle and natural environment that

characterize life here. Recreation oriented subdivisions and land speculation converting acres from

agriculture to residential use. The popularity of thirty-five and forty-acre ranchettes pose a continued

threat to the old mountain ranches. While per capita income has risen, Saguache still is one of the poorest

counties in the state. The desire to attract value-added manufacturing enterprises to utilize farm

products locally.

The philosophy in 1974 for planning and land use regulation in Saguache Countywas developed and based on the following ideas:

1. Landownership in a free society carries with it certain inherent rights andresponsibilities. Landowners have a right to use their property in a manner

which does not cause harm to adjacent lands or the general public. Therefore,land use policies and regulations should be developed only to the extentnecessary to prevent harm or interference with the rights and freedoms ofresidents of Saguache County.

2. Planning and land use regulation is a democratic process. Therefore, land usedecisions and policy making should be carried out in a transparent manner

and with great integrity. Citizen input should be actively sought in reviewingor adopting plans, policies, and regulations.3. The impacts of land use often extend across jurisdictional borders. Therefore,

intergovernmental and regional cooperation in planning and land useregulation should be encouraged.

While today, residents expressed concerns indicate more tolerance for regulation inorder to preserve environmental quality and open space, increase the quality of ourbuildings.

Summary of Public Involvement

As this Plan update has been underway for some years, there have been numerousrounds of community inputs, including a survey in 2000, community forums in allareas of the County in 2005, a facilitated public process in 2006, as well as the mostrecent process which began in January of 2008.

The Core Values developed by the 2006 process are summarized on the following 2pages:


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The 2008 Public Process

As stated above Saguache County has hosted several public forums in recent yearsaimed at getting meaningful inputs from County residents.

Fundamental to the development of the Master Plan was a series of land useconcepts derived from the keypad polling process. Guiding concepts that wereexpressed during past forums were reaffirmed during this meeting. They included:

Efficient Growth Pattern & Service Provision An Intentional Future / Manage Growth (max. benefit w/ min negative

impacts) Sustainable Growth (clustered)/Good Stewardship Protect Scenic & Historic Resources Plan for Adequate Income-Generating activities Enhance Recreation / Tourism opportunities Protect Critical Natural Resources / Environmental & Habitat Protection/

Scenic Vistas Respect Existing Agriculture and its Heritage Protect our unique, sacred and revered places

MasterRate of Growth

A communitys perception of the rate of growth is a cornerstone of how the County perceivesits past and plans for its future. As shown below, nearly 60% of respondents felt that growthwas either about right or slow. This finding is important from the perspective of ensuringthat future growth should be sustainable and provide needed attributes to the community.

How would you rate County growth over the past 5 years?

TooSlow20.40%Slow9%AboutRight23.90%Fast35.80%TooFast25.40%


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Future Growth

Next the participants were asked a series of questions regarding future growth in the County.

When asked specifically what measures should the County take as change occurs in the future,over 85% of residents supported the orderly expansion of the community, with only 10%supporting slowing the rate of growth through policy intervention.

SAGUACHE COUNTY IS LIKELY TO CHANGE OVER THE NEXT DECADE. DO YOUTHINK SAGUACHE COUNTY SHOULD TAKE MEASURES TO:

10%

86%

4% SlowGrowth

Accommodatenewresidents

Stayoutofgrowth

Future Level of Service

Level of Service represents the relative perception of the community regarding how efficientpublic services such as fire, police, and ambulance are at their current rate. An importantfinding of the key pad polling was that residents strongly support that future development donot degrade existing levels of service, and support the notion that future growth should pay itsown way by addressing and mitigating impacts to public services.


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If future development results in a reduced level of service to existingresidents, would you support it?

Yes15.90%No84.10%

Open Space and Environmental Ethos

Saguache County and the entire San Luis Valley are located in one the most captivating

landscapes in the country - a jewel of the Mountain West. The County has a rich history ofagricultural production and is a mecca for outdoor enthusiasts. For example, over 97% ofrespondents felt that as growth occurs, the County should be an active participant in thepreservation and protection of open space. Environmental degradation and the loss ofagriculture and open space are primary concerns of those living in the County.

As the County grows, should it be active in protecting critical openspace?

Yes97.10No2.90

Opportunities for the Future

The residents of Saguache County see the viability and opportunities that futurewell-thought out growth can bring to the San Luis Valley, and that economic


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development and job creation can be facilitated without compromisingenvironmental protection and open space preservation, which are consideredparamount to residents. Both must constitute key components of the Future LandUse Map.

7%3%

9%

3%1%

11%

11%3%

34%

18%Strengthen

Enhance

PreserveAGProvide

Expand

Encourage

Attract

AdoptPreserveOpenSpaceProvideEconomicDev.

Establishment and Refinement of Goals, Policies and Strategies

The establishment of goals, policies and strategies are used in this context toarticulate an ideal future situation. For a plan to have integrity, goals must

accurately reflect the stated values of the citizens of Saguache County. Goals areconsidered a desired condition for the future and strategies are specific ways toobtain these goals. The establishment of goals provides the basis for determiningalternative land use scenarios and code modifications as necessary.


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Section III: Framework: Planning for Sustainability

What isSustainability?

Over 20 years ago (1987), the United Nations World Commission on Environmentand Development released a report, Our Common Future, which brought the term

sustainability into widespread use. In defining sustainability, the United NationsWorld Commission offered these five key concepts:

The needs of the future must not be sacrificed to the demands of the present.

Humanitys economic future is linked to the integrity of natural systems.

The present world system is not sustainable because it is not meeting theneeds of many, especially the poor.

Protecting the environment is impossible unless we improve the economicprospects of the Earths poorest peoples.

We must act to preserve as many options as possible for future generations,since they have the right to determine their own needs for themselves.

Sustainability is also referred to as taking a whole systems approach thatsuccessfully aligns environmental, economic and social equity concerns in a mannerthat results in multiple benefits.In the long run, sustainability means adapting human activities to the constraintsand opportunities of nature, while meeting the needs of both the present and thefuture.

The American Planning Association has identified the following four objectives inplanning for sustainability:

1. Reduce dependence upon fossil fuels, extracted underground metals and

minerals.2. Reduce dependence on chemicals and other manufactured substances that can

accumulate in Nature.

3. Reduce dependence on activities that harm life-sustaining ecosystems.

4. Meet the hierarchy of present and future human needs fairly and efficiently.

In summary, for the purposes of this Master Plan, sustainability is defined asaligning our built environment and socio-economic activities with both the naturalsystems that support life and citizens expressed core values.

Why plan sustainable communities?

Two current trends that demonstrate the need for planning healthy, safe, andsustainable communities are the increasing impact of greenhouse gases on the

worlds climate, and the decreasing supply of resources that support life.

Nearly our entire built environment is now powered by fossil fuels, which creates thegreenhouse gases that contribute to global warming. The increasingly manifestconsequences of global warming highlight the need to reduce the use of fossil fuels.


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Current research on ecological sustainability increasingly indicates that theworldwide use of resources is exceeding the Earths capacity for renewal. In the past30 years, human demand on natural resources has increased 50 percent while theability of natural systems to renew themselves has declined 30 percent (Living PlanetReport, 2000). Clearly if the developed and rapidly developing countries continuecurrent consumption and development habits, there will soon be nothing left to plan

for.

The Challenge

One of the toughest challenges for humans is to recognize the gaps between what wesay we value and want, and what our activities are actually creating. With theadoption of this plan, Saguache County residents are making a commitment tosustainable growth, even if it means moving away from historically acceptable and,for some, personally desirable practices While we surely want to maintain ouragricultural heritage we are aware that this is one reason we have so much openspace - we acknowledge also residents expressed desire for a more diverse economicbase and the inevitable development of at least some percentage of the Countys

abundant solar resources. We want to support and promote sustainableagriculture, and at the same time do a Master assessment of our land use patternsand planning for development that moves beyond agriculture only.

Guiding Principles

Planning for sustainability is an overarching theme of the Saguache County MasterPlan. Saguache County government is committed to leading by example, promotingpublic participation, and to intergovernmental and community partnerships thatprotect the natural systems that support life and improve our quality of life. Todesign a sustainable future, we will strive to:

1. Improve the vitality of our communities, economy, and environment by seeking

developments that provide multiple benefits.

2. Support energy conservation and efficiency and promote the use of renewableresources while optimizing use of water and all finite resources.

3. Steward our natural and agricultural assets responsibly.

4. Reduce the use and minimize the release of hazardous materials.

5. Increaseaffordable, well-designed, energy-efficient, and diverse housing choicesclose to job centers and shopping.

6. Foster businesses that createeconomic, environmental, and social benefits inalignment with our values.

7. Educate and prepare our workforce and residents, making high-quality education,workforce preparation, and lifelong learning opportunities available to allresidents of the county.

8. As they become feasible, participate in regional transportation efforts aimed atimproving efficiency and reducing our dependence on single-occupancy vehicles.

9. Respect ethnic, cultural, and socioeconomic diversity.


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10. Support public health, safety, and social justice.

The Saguache County Master Plan is intended to reflect and further elaborate onthese guiding principles.

Elements of Smart GrowthInterestingly, the current, widely-accepted parameters of Smart Growth reflectmuch of what Saguache County residents have been saying all along. The elementsof Smart Growth are geared to creating livable communities that meet the needs ofpeople while using less land and energy resources and preserving open space,agricultural land, scenic beauty and habitat for wildlife. These include:

1. Mix land uses

2. Take advantage of compact building design

3. Create a range of housing opportunities and choices

4. Create walkable neighborhoods, where appropriate

5. Foster distinctive, attractive communities with a strong sense of place6. Preserve open space, farmland, natural beauty, and critical environmental

areas

7. Strengthen and direct development towards existing communities

8. Provide a variety of transportation choices

9. Make development decisions predictable, fair and cost effective

10. Encourage community and stakeholder collaboration in developmentdecisions

Recognizing that the resource intensive development models of the last 60 years are

not sustainable, the Saguache County Planning Commission embraces SmartGrowth concepts.

As this Master Plan only covers the unincorporated areas of the County, we stronglyencourage each municipality within the County also to embrace these principles, inorder to ensure a coordinated, harmonious and sustainable development throughoutthe County. It will be up to the local planning bodies to determine how growth willoccur within the boundaries of local municipalities. This plan aims to establish landuse policies that will interface effectively with local plans, as well as establishparameters for growth and development throughout the County that are consistent

with our overarching goal of sustainability.


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SECTION IVNATURALELEMENTS

Introduction

Saguache County is comprised of high altitude, semi-arid valleys and surroundingmountainous alpine environments. It is essentially public and agricultural land.Nearly all of the activities that take place here are land based - ranching, farming,mining, logging, recreation and retreat - with just enough residential and less thanenough commercial to support these. Most commercial exchanges of Countyresidents take place in the counties to the north and south and west (Chaffee,Alamosa, Rio Grande, Gunnison) or by order and delivery. There is little industrialdevelopment.

Using available Geographic Information System (GIS) data from a variety of sources,

a Master mapping atlas of the County was prepared. These maps are bothscattered throughout and attached as an appendix to this Plan. In addition, theCounty has extensive maps detailing its 1041 designated areas Areas andActivities of State Interest. These areas were designated by the state in the 1970s,and have recently been updated and computerized, which will greatly assist thePlanning Commission in its current efforts to designate appropriate areas fordevelopment.


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Agricultural Land

The existence of large areas of Prime Farmland are shown on the map below. Theconcept favored by the Plan is that individual land owners have both the ability todevelop their property consistent with designated planning areas, remain inagricultural production or protect their land from incompatible developments.

Ranching and farming are the primary economic activity in the County. Thefollowing table summarizes the Countys commercial agricultural production for2008 from the USDAs National Agricultural Statistics Service. Other commoditiessuch as carrots, lettuce and spinach are also raised on a commercial scale, but noUSDA data was available on these.


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Commodity Practice Planted All

Purposes

Harvested Yield per

Acre

Production

Wheat

(Spring)

Irrigated 11,900

acres

11,000

acres

94.5 bushel 1,040,000

bushelBarley Irrigated 15,800

acres12,500

acres128 bushel 1,600,000

bushel

Hay (all) Irrigated 65,300acres

1.96 tons (dry) 128,000 tons

Potatoes Not reported 15,300acres

15,200acres

345hundredweight

5,215,000hundredweight

Recorded USDA data for 2009 indicates there are 18,500 cattle and calves in theCounty. No data was available for other livestock, nor the amount of beef produced.It should be noted that nearly all of the crops produced in the county are irrigated.

Everson Ranch protected by the Orient Land Trust


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Water

The majority of Saguache County derives its water from the Rio Grande Basin. Theportion of the county west of the Continental Divide is part of the Upper GunnisonBasin and its waters are tributaries to the Colorado River. A small portion in theNorth is part of the Arkansas River Basin. The Rio Grande is the largest river in the

area and has perennial flow through most of its length in Colorado and New Mexico.The river flows across the broad basin-fill deposits in the San Luis Valley inColorado and then flows through about 100 miles of deep canyon and smallintermountain basins in northern New Mexico. South of Santa Fe, N.M., the riverflows through a series of broad basins and narrow valleys to the State line insouthern New Mexico. The Rio Grande Compact represents a highly negotiatedagreement involving a complex set of measurements to determine the amount of RioGrande water that will be delivered to New Mexico and Texas. The Colorado River

west of the Divide flows through Utah, Nevada and California before reachingMexico, and its flows are subject to a separate compact. It would not be anexaggeration to say that had it not been for these compacts, wars would be foughtover water in this part of the country.

Most basins along the Rio Grande have surface drainage to the river and aretopographically open basins. The northern end of the San Luis Valley and mostother basins distant from the river have internal surface-water drainage and aretopographically closed basins that generally do not contribute stream flow to the RioGrande or its tributaries. Much of the stream flow in the more mountainousnorthern part of the Rio Grande is derived from snowmelt runoff in the mountains.Stream flow in the southern part of the river system is derived from upstream flow,ground-water discharge, and runoff from summer thunderstorms. Larger quantitiesof recharge generally occur along the higher mountains in the northern parts of theaquifer system.

While runoff produces most mountain-front recharge to the aquifer system, in somemountainous areas, thick and extensive layers of volcanic rocks are sufficientlypermeable to enable large volumes of water to flow through the rocks and directlyrecharge the basin-fill aquifers. The San Juan Mountains to the west and the SangreDe Cristo Mountains to the east of the San Luis Valley provide a contrast in thisregard. About one-half of the approximately 2,000,000 acre-feet per year flow of

water that enters the San Luis Valley from the San Juan Mountains is throughbedrock aquifers in extensive layers of volcanic rocks that extend from themountains into the basin fill. The much smaller drainage area of the Sangre deCristo Mountains is underlain by relatively impermeable sedimentary and crystallinerocks and yields only about 250,000 acre-feet per year of water to the valley. Almost

all this water is stream flow.

Discontinuous clay layers divide the aquifer underlying parts of the County into 2sections: the unconfined aquifer above and the confined aquifer below. Since thestudy of the unconfined aquifer began in 1976, a cumulative loss of more than one


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million acre-feet has been measured, with a large portion of that recorded after thedevastating drought reached its apex in 20021.

While the water provided by annual Colorado stream flows is ample, the seasonalnature of the flow is not consistent with the demand by Colorado citizens fordomestic, agriculture and industry uses. Nearly 2/3 of the annual water flow(measured in acre feet of water) occurs during the late spring/early summer runoff.During the winter months of December, January and February only 3% of annualflows occur.

Presently, Colorado reservoirs store the spring runoff from mountain snowpack foruse in the late summer and low flow winter months. This "reserved" water is storedfor use throughout the year by downstream users. A factor sometimes overlooked

when assessing the adequacy of rainfall in terms of water supply is evaporation. Inthe San Luis Valley the average rate of pan evaporation during a (summer) monthmay be as much as 10 times more than the average rate of precipitation for themonth. The rate of evaporation is so large due to high summer temperatures, low

relative humidity, abundant sunshine, and frequent wind2

. Water loss toevaporation has an important effect on ground-water quality in areas of irrigatedagriculture, near playas, and other areas of shallow water table. Evaporationremoves water from the aquifer or the soil but does not remove the minerals thatformerly were dissolved in the water. These minerals can accumulate in the soil toform alkali deposits or salt flats or can be flushed from the soil by infiltration ofprecipitation or irrigation water. Additional dissolved solids carried into the aquiferfrom such surface sources can form a zone of degraded ground-water quality at thetop of the aquifer.

Water Rights

The legal right to divert and use water in Colorado has been deliberated and definedfrom before the time of statehood in 1876. Article 16 of the Colorado constitutiondefines the water doctrine known as "prior appropriation", which has stood the testof time as Colorado developed from a frontier western state to the modern era of thelate 20th century. Since 1876, the constitution and subsequent water court rulingshave governed the use, diversion and storage of water in Colorado. "Priorappropriation shall give the better right as between those using the water for thesame purpose...." is a Colorado constitutional excerpt that is the basis for the first inuse, first in right doctrine of water appropriation. This Colorado water doctrine hasbecome one of the legal foundations upon which water is governed, managed anddistributed in Colorado. The appropriation doctrine envelops several interrelatedconcepts. The two major concepts are: 1) a water right is a right to the use of the

water; the right is acquired by appropriation; and 2) an appropriation is the act ofdiverting water from its source and applying it to a beneficial use.

The State Engineer's office in Colorado maintains records on water usage, diversionsand stream flows. Presently the state is divided into 7 water divisions, with 80districts. The San Luis Valley portion of the County is in Division 3, the far westernportion is in Division 4 and the Northeast corner is in Division 5 and District 28

1 Colorado Division of Water Resources2 USGS Groundwater Atlas of the U.S., HA 730_C


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covers Tomichi Creek area and Saguache County portions of the Cochetopa area.Colorado's water is administered according to the Colorado doctrine of priorappropriation, state law, water court decrees and interstate compacts.

As part of the Department of Natural Resources, the Division of Water Resourcesprovides specific services to citizens of the state including administration of laws inaccordance with court decrees and state legislation. The DWR has drafted new rulesthat are expected to be adopted later this year that will markedly change the use of

well water for irrigated agriculture3.

The Colorado Water Conservation Board (CWCB) was created in 1937 for thepurpose of aiding in the protection and development of the waters of the state. Theagency is responsible for water project planning and finance, stream and lakeprotection, flood hazard identification and mitigation, weather modification, riverrestoration, water conservation and drought planning, water information, and watersupply protection. There is a district for each major river basin. Operative withinthe County are the Rio Grande, Colorado, Upper Gunnison and Upper Arkansas

Water Conservation Districts.

Rio Grande and Gunnison Basin waters in the State of Colorado are currently over-allocated, with projected shortfalls of hundreds of thousands of acre feet by the year2030. Current agricultural practices in terms of water are not sustainable*. Tens ofthousands of acres of irrigated land need to be taken out of production in order tomake up the deficit, and to ensure our obligations under various water compacts aremet. The new DWR rules which are expected to be adopted later this year will re-classify use of well water for irrigation as a junior right. This will cause a significantshift in agriculture, as in the 60s and 70s, with the advent of center pivotsprinklers, many farmers got well permits for the center of the (quarter) section andhave been using groundwater, as opposed to or in conjunction with ditch water, for

irrigation. Region 3 DWR staff estimates that of the 600,000 irrigated acres in theValley, about 25% use solely ditch water, 20% use solely well water and 55% use acombination. The economy of Saguache County (and in fact the entire San LuisValley) is highly dependent on irrigated agriculture.

The DWR says it has been talking to farmers for several years about the impendingregulatory changes, and wants farmers directly involved in getting well water useunder control. The Division is encouraging farmers to set up sub-districts in orderthat farmers can pool efforts and gather the resources needed to set upaugmentation plans and acquire the necessary water. Landowners in the area southof Saguache Creek, as well as Villa Grove and Saguache are currently in the processof creating sub-districts.

The San Luis Valley Water Conservation District has secured a transbasinaugmentation source, but this wont reach beyond Center according to the DWRRegion 3 Director, who sees challenges ahead for other sub-districts securingadequate augmentation. Clearly the issue of water must be in the forefront ofCounty development decisions.

3 Interview with DWR Region 3 Director* For example, it takes 2 to 3 acre feet of water to produce an acre of alfalfa


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Wildlife

Saguache County is home to a myriad of wildlife, including elk, coyote, black bear,bald and golden eagles, lynx, pronghorn, mule deer, mountain lion, wolverine, ferret,mountain goat, fox, big horn sheep, Gunnison sage grouse, moose, badger,raccoons, weasels, geese, snakes, owls, ptarmigan, peregrine and many other birds.

The County is nearly 75% public land, including national forest, wildlife refuge,national park, wilderness, BLM and state land. There is significant riparian avianhabitat in both permanent and seasonal wetlands.

Maps of the various habitat areas for many of the species listed are included in theatlas that accompanies this Plan. Habitat, migration corridors and breedinggrounds/seasons are all factors affecting the what, where and when of constructionactivities in the County.

Threatened or Endangered Species

The County is home to a number of animal species that are listed as threatened,

endangered or of special concern by the Colorado Division of Wildlife and/or the USFish & Wildlife Service. The table below displays these species and their status:

SPECIES STATUS

Black-Footed Ferret Federal and State EndangeredLynx State Endangered/ Federal Threatened

Southwestern Willow Flycatcher Federal and State EndangeredWolverine State Endangered

Rio Grande Sucker (fish) State EndangeredBald Eagle State Threatened

Mexican Spotted Owl Federal ThreatenedAmerican Peregrine Falcon State Species of Special Concern

Gunnison Sage Grouse Mountain Plover

Rio Grande Chubb Rio Grande Cutthroat

Colorado Divisions of Wildlife, 10/15/07. US Fish & Wildlife Service, Colorado Office, 8/16/04.

Wetlands

Wetlands are defined as lands transitional between terrestrial and aquatic systemswhere the water table is usually at or near the surface or the land is covered byshallow water4. Wetlands cover only about 1.5 percent of Colorado (1 million acres)

and are of high ecological and economic value5. Wetlands provide an array ofecological goods and services which include: 1) habitat for rare hydric plants and

wildlife, 2) water quality improvements through retention of sediments andnutrients, 3) flood attenuation, 4) bank stabilization, 5) biochemical cycling

4Classification of Wetlands and Deepwater Habitats of the United States (Cowardin et al. 1979)

5US Geological Survey, 1996


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(nitrogen, phosphorus, carbon, etc.) and 6) a source of recreation, timber, and othernatural products for commercial use.

Although valuable, 50% of all Colorado wetlands have been converted and/ordrained over the last two centuries. Development activities in Colorado wetlands arenow regulated by Federal statutory prohibitions and State oversight. Federal law has

established "no net loss policy" for wetlands authorized by the Clean Water Act. Thegoal of the Clean Water Act to restore and maintain the chemical, physical andbiological integrity of the nation's surface waters includes wetlands. In an effort tocurb degradation of wetlands, Section 401 requires water quality certification by theUnited States Environmental Protection Agency for any project affecting wetlandsand Section 404 requires a developer to obtain a permit from the U.S. Army Corps ofEngineers (USACE) in order to develop in wetlands. The Corps will generally grant apermit if three sequential conditions are met by an applicant: 1) all practical steps toavoid adverse impacts to wetlands are taken 2) all unavoidable damage to wetlandsis minimized and 3) permanent destruction of wetlands is mitigated by creating anew wetland or by restoring a degraded one (usually in the same watershed).

According to the USACE and US Environmental Protection Agency, compensatorymitigation attempts to provide no net loss of wetlands. Thus, if development occursin Colorado wetlands requiring draining and/or degradation of natural wetlandsthan the developer will be required to fully mitigate for the damage occurring to thenatural wetlands.


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Conservation Areas

The Colorado Natural Heritage Program is a natural resource research programfunded and hosted by Colorado State University. The CNHP conducted an inventoryof the Closed Basin portion of the County in order to ascertain which are the mostbiologically important areas in terms of maintaining biodiversity6. As a result they

proposed 45 conservation sites which include all of the elements of concern found inthis part of Saguache County. The sites are classified in order of their biological orconservation significance, i.e. a site with a B1 biodiversity rank is the mostirreplaceable and in need of permanent protection, while a site with a B5 biodiversityrank is of general significance. Overall, of the 45 proposed conservation sites, one

was ranked as outstanding(B1), 13 very significant(B2), 17 significant(B3), 10moderate(B4) and 4 ofgeneral biodiversity significance(B5).

Of the 45 proposed conservation sites wholly or parted contained within the County,several stand out as extremely significant. Foremost is the Great Sand Dunes. Thissite has been given the highest biodiversity rank of B1, placing it as one of the mostimportant conservation sites in Colorado. The playa lakes landscape is also a very

important area, with four sites delineated, three very significant: Russell, Mishak,and San Luis Lakes/Sand Creek. The playa lake landscape is important forabundant nesting and migratory birds, plants, and plant communities. RussellLakes harbors one of the worlds largest known populations of the globally rareslender spiderflower.

Geologic features/hazards and topographic

The Rio Grande Rift is the principal geologic feature of the area. The rift affected

the configuration of the highlands that boundary of the San Luis Valley, which inturn has affected precipitation, runoff, groundwater recharge, source material ofthe basin fill, aquifer characteristics, and water quality. The rift is a northward-trending series of interconnected, down faulted and rotated blocks located betweenuplifted blocks to the east and west. There are 4 fault lines that run approximatelyN-NW through or into the County from the south. These are shown on a map inthe attached atlas. Various blocks have been displaced downward thousands offeet, and most of the rift has been filled with alluvium and volcanic rocks (basinfill). The thickness of the basin fill is unknown in most areas but is estimated to beas much as 30,000 feet in the San Luis Valley. Total vertical displacement acrosssome faults that border the rift exceeds 20,000 feet from the crest of the nearbymountains to the top of the equivalent rocks in the rift. Most basins of the rift are

bounded on the north and west by Tertiary and Quaternary volcanic rocks.Igneous, metamorphic, and sedimentary rocks of Precambrian, Paleozoic, andMesozoic ages form the eastern boundary of most basins.

6Saguache County, Closed Basin Biological Inventory Volume I: A Natural Heritage Assessment Final Report,1998


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Most of the bedrock formations that bound the basin are relatively impermeable.Although some volcanic rocks, solution-altered carbonate rocks, or extensivelyfractured beds can yield water in local areas, the bedrock as a whole has minimalpermeability and is considered to form an impermeable base to the Rio Grandeaquifer system.

Steep Slope and Ridgeline Development

Development on hillsides and steep slopes poses a high risk of erosion and anincreased risk of landslides both during and after construction. Sedimentationresulting from erosion can be particularly detrimental to stream water quality and

wildlife. The roads needed to access steep slope development are also problematicand are expensive to maintain. Failure to regulate development on steep slopes canresult in degradation of water quality, endangerment of public safety and welfarethrough the increased likelihood of landslides and excessive road maintenancecosts. Development on windward slopes is also particularly vulnerable to wildfirehazards. While the current LDC asks developers to identify any geologic hazards,assure soil suitability, etc., no standards are delineated for building on slopes,

although there are standards for any road that the County will be expected tomaintain.

Also, there has been concern expressed by residents over the years about protectingskylines and ridgelines from development, so that the visual imposition ofdevelopment is minimized and the natural lines sculpted by nature are maintained.

Wildfire

Wildfire represents the most likely to occur significant hazard in the County. Theareas of most concern vis--vis risks to human life and property are known as

wildland-urban interface (WUI) zones. There is only one WUI identified as a RedZone (high risk) area by the State Forest Service, and that is the area surroundingthe Town of Saguache, however the east side of the County is also especially at riskfor wildfire. Wildfire hazard areas are also identified on the Countys 1041 (areas ofstate interest) maps. As fire does not recognize jurisdictional boundaries, theCounty has intergovernmental agreements with federal and state land managers inthe event that a fire event encompasses both public and private lands.

The County last year completed a Community Wildfire Protection Plan for thewestern side of the County which contained a Master risk assessment and a numberof recommendations to mitigate potential losses. In addition, the County EmergencyManager disseminates information to property owners County-wide onprecautionary methods to reduce fire risks, as well as ensuring ongoing training forthe Countys fire fighters.

Night Sky Preservation

According to resident surveys, the brilliant clarity of the night sky here is one of themost consistently and reverently valued features of County life. The current LandDevelopment Code contains provisions for any necessary lighting to be shielded and


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directed downward. When we consider what kind of development we would like toattract, an irrefutable preference exists for activities that do not light up the night.

GOAL

Protect important natural resources of Saguache County, including

water (quantity and quality), air, soils, wildlife habitats and corridors,prime agricultural lands, open space, scenic vistas and recreationalareas.

Policy

Pursue measures aimed at protecting and improving the environmentalquality and resources of the County.

Strategies

Update all County maps to ensure inclusion and detailing of all lands withinthe County, with special attention to those areas west of the ContinentalDivide.

Ensure that all applicable standards (local, state and federal) are applied toexisting and future industrial development.

Complete a County Flood Plan to reduce potential property losses.

Actively monitor development, water rights and other activities that may affectthe Countys water resources.

Protect sensitive areas like prime agricultural land, riparian areas, wetlands

and wildlife habitat as the County grows.

Create policies to control the types of businesses allowed in various areas.

Promote educational programs regarding water conservation measures forresidential, agricultural and commercial land uses (sprinklers, EPA showerreduction devices, low-flow toilet rebates, low water demand landscaping, etc).

Encourage future park and green space areas to use non-potable irrigationsources.

Amend the Land Development Code to adopt standards for development on

slopes and to restrict ridgeline and skyline developments.

Develop and implement a plan for protecting the B1, B2 & B3 conservationsites profiled in the Colorado Natural Heritage Programs Closed BasinInventory study.

Prepare a Community Wildfire Protection Plan for eastern Saguache County


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GOAL

Encourage environmentally sound methods of using and disposing ofsolid and hazardous waste.

Policy

Develop programs that educate and encourage residents to reduce, reuse andrecycle.

Strategies

Advertise existing drop-off locations for recyclables and pursue options forincreasing recycling.

Educate residents about ways to reduce, reuse and recycle their solid waste.

Encourage composting and mulching of green yard waste in cooperation

with the CSU Extension Service.

Monitor waste management practices of mining and agricultural sites

Support and expand the Countys efforts to provide information to residentswhich explain the proper use and disposal of common household hazardouswaste.

Goals and strategies related to the reduction of fossil fuel use appear in subsequentsections of the Plan.

SECTION V: BUILT ELEMENTS

Chapter 1: Patterns of Development of the Built Environment

If we are going to fulfill our commitment to plan for sustainability and to Countyresidents call for the protection of agricultural land, open space and wildlife habitat,

we need to consider development patterns. Where do we want growth to occur? Arethere lands that need to be protected? What are they and how can we go about it?

Ironically, the personal tendencies that make people want to move to the wide openspaces of the American West for example the desire to have no neighbors withinsight - are some of the same that are threatening its existence. In a 2006 report, the

Environment Colorado Policy and Research Center said that between 1960 and1990, the land area developed into exurban homes and rural ranchettes grew threetimes faster than the population growth rate. A primary reason for this is that Statelaw exempts parcels of 35 acres or more from County subdivision regulations (CRS30-28-101(10)(b). Absent other regulatory tools, this exemption can impair both theability of counties to provide and pay for services and their ability to manage landuse within the county. Two million acres of agricultural land in Colorado was lost intracts sized just big enough to avoid subdivision regulation (35 acres) from 1972 to


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20007. The proliferation of thirty five acre+ ranchettes has long been an expressedconcern of Saguache County residents.

Everson Ranch protected by the Orient Land Trust photo: John Lorenz

Farming and ranching are the primary economic activities of the County. Ranchesin particular require large amounts of land to sustain livestock in an arid climate.

According to the American Farmland Trust (AFT), shifting demographics, sprawlingdevelopment and rising land prices all affect the viability of farming and ranching inthe Rocky Mountain region, where more than 350 acres of agricultural land areconverted to development every day. Eleven percent of Rocky Mountain ranchlandis vulnerable to conversion by 20208. Research indicates that rural sprawl has 5 to10 times the ecological footprint (natural resources consumed) of suburban orurban land use patterns.

The economic ramifications of this type of development are also well documented.Costs associated with rural sprawl include the cost of building and maintainingroads and providing emergency services. For every tax dollar they bring in, large lotrural developments in Colorado represent $1.65 in infrastructure costs7. A 2001

Saguache County study9 demonstrated that residential development costs theCounty more than it generates in revenue, and while these expenditures are, in mostplaces, covered by revenues generated by commercial development, in this County itis agriculture that is subsidizing the cost of residential development.

7 Losing Ground: Colorados Vanishing Agricultural Landscape, March 20067 Rocky Mountain Agricultural Landowners Guide to Conservation and Sustainability, 20068A Revenue/Cost Analysis of Community Service Provision in Saguache County, Colorado, Sept 2001


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Occasionally, 35-acre lots are developed in areas that are completely inaccessible tofire protection. While the County does inform prospective residents wanting to settlein remote locations that emergency (fire, ambulance) and road services can not bepromptly provided, this does not realistically eliminate the need to provide them.

The 2004 Picnic Rock fire (north of Ft Collins) provides a sobering example.10

In addition to encouraging Right to Farm regulations, which Saguache Countyalready has in place, the AFT Guide describes several opportunities that landownershave to reap financial benefits from their land while protecting and maintainingownership of it. These include federal initiatives such as Farm and RanchlandProtection, Forest Legacy and Grassland Reserve programs; and private optionssuch as agricultural conservation easements, estate planning and land trusts. TheState of Colorado has a program that allows a tax credit to be taken against stateincome taxes by an individual or entity donating a conservation easement. TheState also created the Great Outdoors Colorado Open Space Grant Program (GOCO),

which awards competitive grants for projects that protect and enhance Coloradowildlife, parks, rivers, trails, open spaces and agricultural land.

10Started by a 35-acre lot landowner burning trash on his property without a permit, this fire destroyed more than

9,000 acres of wildlands, 2 structures and caused numerous evacuations. It required 444 firefighting staff and 12aircraft to contain and extinguish. The total cost of the fire was approximately $2.3 million, of which the countysshare was around $100,000. Re-vegetation of the burned area will take many years.


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As can be seen from these twocharts, 6% of the existing

houses in the Countyconsume over 63% of theresidential land. On the otherend of the spectrum, over twothirds of County dwellingsoccupy less than 5% of theland devoted to residentialdevelopment

Finally, County residents have also expressed a strong interest in preservingviewsheds and the scenic vistas that so characterize ones experience of theCounty. Ensuring that these are protected will require some setbacks and designguidelines along selected sections of County roadways.


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Planning Options

The Saguache County Planning Commission is permitted authorized under CRS 30-28-111 to adopt a zoning plan, as follows:

The county planning commission of any county may . . . make a zoning plan

for zoning all or any part of the unincorporated territory within such county . . .for the regulation by districts or zones of the location, height, bulk, and size of

buildings and other structures, percentage of lot which may be occupied, the size

of lots, courts, and other open spaces, the density and distribution of population,

the location and use of buildings and structures for trade, industry, residence,

recreation, public activities, or other purposes, access to sunlight for solar

energy devices, and the uses of land for trade, industry, recreation, or other

purposes.

Currently, the unincorporated lands of Saguache County are all zoned agricultural.

The Land Development Code lists permitted uses for the zone, and other uses thatcan be permitted conditionally. The County has also adopted what are known as1041 Regulations that can be applied to Areas and Activities of State Interest, asdefined by State statute (CRS 24-65.1-101). If land being subdivided into 35-acrelots is in an area designated pursuant to 1041 powers, the county may requirecompliance with its 1041 regulations. The 21 categories defined as areas or activitiesof state interest include: geological, flood and wildfire hazard areas, historical andarcheological resource areas, and significant wildlife habitats. A local governmentcan designate specific areas within which to employ its 1041 powers. These are:

Mineral resource areas Natural hazard areas

Areas containing, or having a significant impact upon, historical, natural, orarchaeological resources of statewide importance; and Areas around key facilities11 in which development may have a material effect

upon the key facility or the surrounding community.

Given the dual priority interests of County residents for both preservation of ruralcharacter and protection of open space and foreconomic development, and therecent targeting of the San Luis Valley for industrial scale solar development, it maybe timely for the Planning Commission to work out and adopt a zoning plan aimedat maximizing mutual benefits of all stakeholders. The State Department of LocalAffairs has produced a model Land Use Code that could serve as a resource fordefining and setting parameters for other types of zones.

Goal

Accommodate compatible growth while preserving agricultural and range land,open space and wildlife habitat.

11 Airports, major facilities of a public utility, interchanges, mass transit facilities


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Policy

Encourage development that optimizes the use of existing infrastructure andconserves and protects natural resources.

Strategies

Collaborate with municipalities to identify urban growth areas within oradjacent to municipal boundaries.

Ask the Board of County Commissioners to work with state lawmakers toamend State subdivision laws to enable County review of all subdivisions.

Create an accessible information resource for landowners that highlight thedifferent programs and options available to assist them in reaping financialbenefit from their land while maintaining ownership and providing naturalresource protections.

Amend the County LDC to stipulate that only dwellings associated with farmsand ranches are a permitted use in the agricultural zone. Other dwellings

would require a conditional use review.

Review the adequacy of 1041 designated areas, and make adjustments asnecessary.

Initiate a site review process to assist landowners in choosing the best locationon their land for development to avoid natural hazards (flood, wildfire, erosion)and address emergency response parameters.

Initiate a rural road construction permit for any road accessing a Countymaintained road.

Adopt setbacks and site design guidelines in selected areas to enhance andprotect the aesthetic quality of community gateways and other high visibilitycorridors.

Create specific planning areas for high density residential, commercial, mixeduse and industrial developments with an eye to making productive use ofcurrently non-productive land, optimizing existing infrastructure andprotecting open space, wildlife habitat and agricultural and rangeland.

Policy

Encourage greater density residential development to preserve agriculturallands and open space and to help make housing more affordable.

Strategies

Encourage the preservation, renovation and creation of housing in existingneighborhoods.


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Review and amend subdivision/PUD regulations to encourage clusterdevelopment, infill and developments that optimize use of existinginfrastructure.

Policy

Encourage commercial development in identified zones in order to increaserevenue from this sector.

Strategies

Identify areas where commercial development is desirable.

Create incentives for businesses to locate in these zones.

Chapter 2: Energy & Green Building

Energy is essential to every sector of the economy and community,and the design ofthe built environment determines how much energy is used. How energy is obtainedand produced also has major impacts on individual and environmental health.Electricity generation from fossil fuels (coal, oil, and natural gas) is the single largestcontributor to greenhouse gas emissions.

Saguache County encourages the maximum, cost-effective utilization of renewableenergy sources into all new development, as well as retrofitting of existing structuresand systems. The County acknowledges the considerable energy potential thatexists here, and supports the appropriate scale development of renewable energysources. However given the costs and environmental impacts of any mode of energy

development, and in keeping with the premise that the most valuable kilowatt orthermal unit is the one that you dont need(referred to as negawatts), conservationmeasures must come before, or at least go hand-in-hand with, the development ofnew energy resources.

There are a number of conservation and renewable energy incentive programs thathave been initiated at both state and federal levels. These appear as Appendix C tothis Plan. Colorados Governors Energy Office (www.colorado.gov/energy/) providesa wealth of information, programs and partnership opportunities aimed atmaximizing the development of the states considerable renewable energy potential.

Current financing systems do not reflect the fact that while the initial investment in

home renewable energy systems are high, the long term benefits far outweigh thosecosts. By reducing the upfront costs, we can make clean energy more accessible tomore residents. The County could create a loan program either by using existingbond potential or by creating improvement districts for investment in renewableenergy, which allows homeowners to re-pay the loan as a special assessment on theproperty tax, generally over 20 years. This also means that if a property is sold, thenew owner takes up the repayment responsibility, eliminating the deterrent that ahomeowner faces in making a large initial investment, not knowing if it will berecoverable in the event of a sale.


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Investing in energy efficiency, distributed scale renewable energy production, andgreen building practices will reduce our ecological footprint and our emissioncontribution to greenhouse gases, increase the reliability of our energy supply,create jobs, and help keep dollars in our local economy. County policies andprograms can contribute to a more sustainable energyfuture by:

increasing energy efficiency and conservation prioritizing renewable resources and local production promoting green building design and materials

Other renewable energy opportunities are addressed in the Economic Developmentsection of this Plan.

GOAL

Increase the energy efficiency of the built environment in SaguacheCounty.

Policy

Energy efficiency must be a consideration for any new structures andadditions to existing structures built in Saguache County.

Strategies

Create an information and resource manual that informs residents, buildersand developers of the long term cost and environmental benefits of energyefficient design and lists suppliers and green building consultants (esp. local).

Review existing green building matrices to assess the possibility of adoptingsome sustainable building design standards for the County.

Amend development permit applications to include a description of energyefficient design components and annual projected energy costs for theproposed construction.

Research and initiate a County-sponsored loan program (insured by the state)for the installation of renewable energy systems and selected conservationmeasures that allows property owners to repay the loans as a specialassessment on their property taxes over a specified period of years.

Create and keep current a resource list for residents that describes all of theprograms (federal, state and local) available to assist them in reducing theiruse of fossil fuels.

Ensure that the County is taking maximum advantage of the programs andassistance available through the Governors Energy Office.


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CHAPTER 3: HOUSING

2007 data from the Colorado Department of Local Affairs (DoLA) puts the number ofhousing units in Saguache County at 3756 (1 for every 1.84 people). This numberdoes not include unfinished houses, of which there are a considerable number.

According to US Census data, new housing units in Saguache County increased at arate of 2.8% per year from 2000 - 2007, somewhat faster than the population. Thiswould seem reasonable exceptthat nearly 25% of all residential units in the Countywere unoccupied in 2000 - a very high vacancy rate - which would indicate thathousing supply has continued to outpace demand throughout the period.Nationwide the vacancy rate is 13.8%, and averages only about 12% in the westernUS. However 2000 data indicates that approximately 45% of vacant houses in theCounty were owned and retained for recreational or occasional use, reducing therate of unintended vacancies. At that time, 6% of vacant units were categorized asfor sale and not available for occupancy. While no hard updated data is available,that number would appear to be higher now. The US Census data leaves over 45%of vacant units uncategorized and unexplained, so no Master picture of housing

vacancies is currently available.

Just over 69% of occupied housing units are owner-occupied, indicative of theavailability of sufficient (though not necessarily affordable) rental units.

About half the structures in the County were built before 1980, and half since then(see graph below).

Construction by Decade

Built 1939 or earlier

Built 1940-1959

Built 1960-1969

Built 1970-1979

Built 1980-1989

Built 1990-1999

Built 2000 -2007

150 200 250 300 400 500 600 700

Affordability

In spite of excess supply, housing has become much less affordable for the majorityof County residents over the last decade. An industry standard to understand theaffordability of housing is the relationship between median housing prices andmedian household income (MHI). Using the most recent data available, the MHI forthe County in 2007 was $30,19312. The median single family home sales price was

12U.S Census data website

720

508

484

720

696

432

267

648


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$140,190 (year end 06), as compared to $73,900 in 2000 when the MHI was$25,495. So while income increased 18.4% between 2000 and 2007, the dataindicates that the cost of housing increased nearly 90%, which means that homeownership is less affordable for full time residents now than it was just a few yearsago.

This picture may not be quite as bleak as it looks. The number of home sales in theCounty is relatively small, so the sale of 2 or 3 high-end vacation homes (of whichthere are many) can easily skew the averages. The recent economic downturn hashalted the escalation of housing prices. We do not have data yet on its effect onincomes. While home ownership may be in reach for more than the smallpercentage of County residents that the data above indicates, it does not alter theconclusion that it is far less affordable than it was a decade ago.

Housing Assistance Currently there are 15 housing units subsidized under thefederal Section 8 program in Saguache and Crestone and 25 in Center. There is alsoa 12 unit HUD public housing complex in Saguache, and another 16 unit complexthat couldbe Section 8 (only 2 currently are) if the County received more vouchers.For the purposes of Section 8 or other subsidized housing reimbursement, a fairmarket rent for an area is established. The 2008 figure for fair market rent inSaguache County for a 2 BR unit is $555, including utilities. While this figure mayrepresent the actual market for some parts of the County (e.g. Center), in others (e.g.Crestone-Baca), the cost of a 2BR rental with utilities runs 40% to 80% more thanthe official FMV rate. This translates into few or no affordable or subsidized rentalunits in certain areas. This is confirmed by the Center Housing Authority Director,

who administers Section 8 for the whole County and indicated that there is a needfor about 100 additional subsidized units to meet the true housing needs ofSaguache County residents, and that she receives many requests for assistancefrom the more expensive housing markets. Another problem that the Director

reported is that many rental property owners in the lower cost housing markets arenot willing or able to maintain their properties to the standard required for Section 8participation. Both of these issues pose serious obstacles to the availability ofdecent affordable housing for lower income residents.

The standard formula used to determine affordability is 30% of income for eitherhouse payment or rent and utilities. Utility costs vary widely, depending on heatingfuel source and lifestyle. For the purposes of the exercise, an estimated average yearround utility cost of $230/mo. was used, inclusive of heat, electricity and

water/sewer. Applying the 30% rule results in only about 25% of the Countysresidents being able to afford an average single family home at current market rates,and over half unable to afford to rent.

Energy Efficiency

The less homes cost to heat, power and maintain, the more affordable they are overtime. How to build energy efficient structures has been known for decades and newtechnologies (as well as modifications to old ones) continue to increase our ability tocreate healthy, low impact shelter. It is the intent of Saguache County to make acommitment to our future by encouraging the maximum cost effective use of energyconservation tools and technologies.


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Issues

Clearly any Master plan needs to embrace the goals of safe, livable environments,high quality, sustainable future development and a housing mix diversified enoughto meet the actual needs of the Countys residents. Basic tenets of sustainabledevelopment would dictate that the majority of new housing developments would

take place within and adjacent to existing development - to a large extent within theincorporated areas, and therefore outside the scope of this Plan. Given the needs ofboth residents and the environment, the County strongly encourages eachmunicipality to consider both energy efficiency and affordability when creating newor rehabilitating existing units, in order to increase the availability of energy efficientand affordable housing for County residents.

Another long-standi

Draft Master Plan 1

Documents

Transcript of Draft Master Plan 1