Section 096-382-3 - Impacts to Scenic Character A wind energy development must not significantly compromise views from a Scenic Resource of State or National Significance (SRSNS) as defined in 35-A M.R.S. §3451(9) such that the development has an unreasonable adverse effect on the scenic character or existing uses related to scenic character of the SRSNS. When evaluating potential impacts to scenic character, the Department will take into consideration all relevant evidence, including but not limited to user intercept surveys and/or systematic field observations conducted and recorded using generally accepted professional standards, written public comments submitted by users of the SRSNS or other interested persons, oral statements made at Department public meetings held pursuant to 38 M.R.S. §345-A(5), and sworn testimony at public hearings held pursuant to Chapter 3 of the Department's Rules.
A.Review of scenic impacts of associated facilities. Impacts to scenic character from a wind energy development's associated facilities are generally evaluated in the manner set forth in the WEA, 35-A M.R.S. §3452(1) & (3). However, if the Department determines that application of the WEA evaluation criteria to the development may result in unreasonable adverse effects due to the scope, scale, location or other characteristics of the associated facilities, scenic impacts of the development's associated facilities will be evaluated solely under the standards of the Site Location of Development Act, 38 M.R.S. §484(3) or other applicable standards in the manner provided for evaluation of scenic impacts from development other than wind energy development. If an interested person wishes to submit information regarding the determination of which standards should be applied, that information must be received by the Department within 20 days of acceptance of the permit application as complete for processing. If the Department finds that it is necessary to apply the standards of the Site Location of Development Act or other applicable standards to the scenic impacts of the associated facilities, it shall make that determination within 30 days of its acceptance of the application as complete for processing ( 35-A M.R.S. §3452(2) ).B.Significance of a potentially affected SRSNS. When evaluating whether a proposed development would significantly compromise views from a SRSNS such that the development would have an unreasonable adverse effect on scenic character or existing uses related to scenic character of an SRSNS, the Department will take into consideration all relevant evidence in the record regarding the significance of the SRSNS. In this assessment, the Department will be guided by considerations including but not limited to the following. (1) Any assessment of the scenic character of the SRSNS through a formal assessment process such as the Maine's Finest Lakes Study, the Maine Wildland Lakes Assessment, a Coastal Scenic Inventory published by DACF, or other federal, state or local government assessment process.(2) If a property is designated as an SRSNS due to its listing on the National Register of Historic Places, evidence regarding the consideration of the scenic character or uses related to the scenic character of the property as factors in the listing process.(3) The character, landscape context, unique features, usage patterns, and other relevant characteristics of the SRSNS.(4) Evidence of the high scenic value of the viewshed from the SRSNS or of the protection of the viewshed through public ownership, conservation easements or other restrictions put in place for purposes specifically including protection of the scenic values of the area. Such evidence may increase the significance of an SRSNS.(5) Evidence of the degradation of the scenic character of the SRSNS by factors such as incompatible development in the viewshed. Such evidence may decrease the significance of an SRSNS.C.Existing character of the surrounding area. The existing character of the surrounding area will be taken into consideration by the Department when determining whether the proposed development would have an unreasonable adverse effect on scenic character or existing uses related to scenic character of the SRSNS. When evaluating the existing character of the surrounding area, the Department will take into consideration all relevant evidence, including but not limited to the following.(1) The visible aspects of the natural character of the viewshed of the SRSNS, including but not limited to: landscape scale, vegetation and forest cover types; variations in topography and geology; prominent natural features (cliffs, mountains); and waterbodies.(2) The type and amount of development in the viewshed of the SRSNS, including but not limited to: roads, buildings and other structures, utility lines, communication towers, and nighttime lighting. Areas of cutting and removal of trees for commercial logging or forestry management activities in the viewshed of the SRSNS, where the forest will be allowed to regenerate naturally or through silviculture activities, will not generally be considered incompatible development which detracts from the scenic character of the SRSNS for the purposes of this evaluation, but visible roads or permanent structures related to commercial logging or forestry management activities may be generally considered to be development which detracts from the scenic character of the SRSNS. The Department will assess specific evidence on this issue on a case-by-case basis.
D.Expectations of the typical viewer. The expectations of the typical viewer will be taken into consideration by the Department when determining whether the proposed development would have an unreasonable adverse effect on scenic character or existing uses related to scenic character of the SRSNS. When evaluating the expectations of the typical viewer, the Department will take into consideration all relevant evidence including but not limited to user intercept surveys, written public comments submitted by users of the SRSNS, oral statements made at Department public meetings held pursuant to 38 M.R.S. §345-A(5), and sworn testimony at public hearings held pursuant to Chapter 3 of the Department's Rules.(1) Viewer expectations will be considered to be high at an SRSNS which is valued for its setting in a naturally scenic landscape. Viewer expectations may be considered to belowered by substantive evidence of degradation of the scenic values of the SRSNS since its designation as a scenic resource, or a lack of scenic value in a particular location.(2) Viewer expectations will be considered to be low at an SRSNS which qualifies as an SRSNS for reasons not primarily related to its scenic value, e.g. historic sites which are listed on the National Register of Historic Places due to reasons unassociated with their scenic character.E.Purpose and context of the proposed activity. The purpose and context of the proposed wind energy development are taken into consideration by the Department as factors in the assessment of whether the proposed development would have an unreasonable adverse effect on scenic character or existing uses related to scenic character of an SRSNS. Generating energy from a renewable resource is a purpose encouraged in the enactment of the Wind Energy Act, and will be considered a factor mitigating some extent of scenic impacts; however, energy production alone will not be considered as a significant mitigating factor. The context of the proposed development will be considered both in the physical sense and in the practical sense. The physical context of the proposed development includes the topography and existing characteristics of the area. The practical context of the proposed development includes factors specific to the location of the proposed development, such as the magnitude and reliability of the wind resource present, and the proximity to transmission infrastructure. When considering the purpose and context of the proposed activity, the Department will take into consideration all relevant evidence, including but not limited to the following. (1) Data related to the magnitude and reliability of the wind resource at the proposed development site, and the potential energy output expected from the development, as compared with any alternative sites in Maine investigated by the applicant.(2) The location of the proposed development in relation to existing transmission lines, roads or other infrastructure.(3) The topography and existing characteristics of the area surrounding the proposed development.(4) The existence of any other permitted wind energy development in the viewshed of any affected SRSNS.(5) Evidence of any mitigation proposals, such as improved access to the affected SRSNS, or improvements to the quality of the resource.F.Public use and enjoyment of a potentially affected SRSNS. The extent, nature, and duration of public use of an SRSNS, and the likely effect of a proposed wind energy development on continued public use and enjoyment of the SRSNS, will be taken into consideration by the Department when determining whether the proposed development would have an unreasonable adverse effect on scenic character or existing uses related to scenic character of the SRSNS. The Department will take into consideration all relevant evidence to that effect, including but not limited to the following. (1) Evidence of the extent, nature, and duration of existing public uses of the SRSNS where the scenic character of the SRSNS is an important part of the enjoyment of the activity.(2) Evidence of the extent, nature and duration of existing public uses of the SRSNS where the natural, undeveloped character of the area surrounding the SNSRS is an important part of the enjoyment of the activity. For such uses, low use levels will not necessarily be found to decrease the significance of potential impacts to existing uses related to scenic character.(3) Evidence of tourism-related businesses or recreational clubs or organizations whose purpose or viability is related to the public use and enjoyment of the SRSNS.G.Scope and scale of the potential effect. When evaluating the scope and scale of the potential effect of views of proposed generating facilities on scenic character or existing uses related to scenic character of an SRSNS, the Department will take into consideration all relevant evidence to that effect, including but not limited to the following. (1) Evidence of the number of turbines and portions of turbines that would be visible from various viewpoints for users of the SRSNS. When a Visual Impact Assessment (VIA) is required or provided by an applicant, it must identify all areas of the SRSNS from which the project is visible using a bare terrain model, and must include photo simulations of views of the project from the SNSRS. A VIA that considers the screening effect of land cover may also be prepared using a digital surface model that measures the elevation of topographic elements, such as building roofs and forest canopies. A height of 40 feet may be assigned to forest cover in the absence of a true digital surface model.(2) Evidence of the distance to turbines in the viewshed from view points within the SRSNS. (a) There is a rebuttable presumption that placement of turbines within three miles of viewpoints within the SRSNS would cause a high impact to the scenic character of the SRSNS. This presumption may be rebutted by evidence showing that views of the turbines would be limited by intervening topographic features, or other mitigating factors.(b) Turbines beyond eight miles from the SRSNS are considered insignificant in the scenic impact assessment process ( 35-A M.R.S. §3452(3) ).(3) Evidence of the portion of the SRSNS from which there would be visibility of any of the generating facilities.(4) Evidence of the horizontal view angle encompassing all visible turbines in the proposed wind energy development from the most affected viewpoints in the SRSNS.H.Cumulative scenic impact or effect. When assessing the potential adverse scenic impact of a proposed wind energy development, the Department will take into consideration the cumulative scenic impact or effect of the proposed development under both daytime and nighttime conditions in conjunction with scenic impacts from other wind energy developments located within eight miles of each SRSNS addressed by the applicant's VIA, if one has been submitted. The Department will also take into consideration the cumulative impact of the proposed wind energy development on multiple SRSNSs. (1) When assessing the cumulative scenic impacts of multiple wind energy developments on a single SRSNS, the Department will take into consideration potential and actual scenic impacts from any wind energy developments that are existing, any wind energy developments that have been permitted pursuant to the WEA but not yet constructed, and any proposed wind energy developments for which an application has been determined to be complete for processing by the Department, that are located within eight miles of any portion of any SRSNS addressed by the applicant's VIA. Existing or permitted small-scale wind energy developments pursuant to 35-A M.R.S. §3456, or small-scale wind energy developments whose applications have been approved for processing by the Department, as well as any other existing nonresidential wind energy developments, will also be included in this assessment. The analysis will take into account the full build-out of any such existing, permitted, and proposed wind energy developments, and will consider impacts from any portion of those developments that is or would be within eight miles of any portion of any SRSNS within eight miles of the proposed development under review.(2) When multiple SRSNSs are related to each other by common use (i.e., a user of one SRSNS in a group is likely to use one or more other SRSNSs in that group during the same visit), physical connection, or relationship in the landscape, the Department will consider the cumulative impacts of the proposed wind energy development on these SRSNSs as a group, as well as individually, to the extent that the SRSNSs are located within eight miles of the proposed wind energy development.(3) An applicant's VIA must identify any areas of combined, sequential or successive observation, as defined in 35-A M.R.S. §3451, for each SRSNS within eight miles of the proposed wind energy development. When evaluating cumulative scenic impact or effect associated with sequential observation, the department will consider the distance between viewpoints on a linear route and other forms of development along the linear route that affect the expectations of the user of the SRSNS. When evaluating the significance of such impacts, the Department will consider all relevant evidence to that effect, including but not limited to photographic evidence of existing development and photo simulations of proposed development under both daylight and night time conditions.I.Unreasonable adverse effect on scenic character. In evaluating whether the development significantly compromises views from an SRSNS such that the development has an unreasonable adverse effect on the scenic character or existing uses related to scenic character of the SRSNS, the Department will consider evidence regarding the significance of the SRSNS; the existing character of the area surrounding the SRSNS; and the expectations of the typical user of the SRSNS, to inform a rating of the value of the SRSNS as low, medium, or high. The Department will also evaluate the evidence regarding the purpose and context of the proposed wind energy development; the extent, nature and duration of public uses of the SRSNS and the potential effect of the proposed development on that public use and enjoyment; the scope and scale of the potential impacts of the proposed development; and any cumulative impacts on the scenic character or existing uses related to scenic character of the SRSNS, to inform a rating of the significance of the impacts as low, medium, or high. In making the final determination of the reasonableness of an impact, the Department will be directed by the following considerations:
(1)High Value SRSNS. A Department finding of high or medium scenic impact to an SRSNS with high value will be considered to constitute an unreasonable adverse effect on the scenic character or existing uses related to scenic character of the SRSNS. A Department finding of low scenic impact to an SRSNS with high value will be considered to not constitute an unreasonable adverse effect on the scenic character or existing uses related to scenic character of the SRSNS.(2)Medium Value SRSNS. A Department finding of high scenic impact to an SRSNS with medium value will be considered to constitute an unreasonable adverse effect on the scenic character or existing uses related to scenic character of the SRSNS. A finding of medium scenic impact to an SRSNS with medium value will require further evaluation by the Department of the evidence to make a determination as to whether the proposed impact would be unreasonably adverse. A Department finding of low scenic impact to an SRSNS with medium value will be considered to not constitute an unreasonable adverse effect on the scenic character or existing uses related to scenic character of the SRSNS.(3)Low Value SRSNS. A Department finding of medium or low scenic impact to an SRSNS with low value will be considered to not constitute an unreasonable adverse effect on the scenic character or existing uses related to scenic character of the SRSNS. A Department finding of high scenic impact to an SRSNS with low value will require further evaluation by the Department of the evidence to make a determination as to whether the proposed impact would be unreasonably adverse.(4)Highly Visible Feature. A Department finding of high or medium impact to any SRSNS in accordance with this section will constitute a finding that the generating facilities are more than merely a highly visible feature in the landscape ( 35-A M.R.S. §3452) .(5)Multiple Impacts. When the Department finds that a proposed wind energy development would present multiple impacts in the medium and/or high range to multiple SRSNSs which are rated medium and/or high for value, the Department may combine these individual impacts to increase the total level of impact presented by the proposed development.(6)Multiple Resources. When the Department finds that a proposed wind energy development would present impacts to multiple medium and/or high value SRSNSs that are related to each other by common use, physical connection, or relationship in the landscape, the Department may increase the significance of the SRSNSs as a group.(7)Finding on Scenic Character. A Department finding that a proposed wind energy development would cause an unreasonable adverse effect on scenic character or existing uses related to scenic character on a single SRSNS is sufficient grounds for denial of the proposed wind energy development.06-096 C.M.R. ch. 382, § 3