Bemidji – Grand Rapids 230 kV 

Transmission Line Project 

Final Environmental Impact Statement 

PUC Docket Number: ET6/TL-07-1327 

September 2010 

Prepared by: 

Minnesota Department of Commerce 

Office of Energy Security 

and 

USDA Rural Development 

Rural Utilities Service 

Cooperating Agencies: 

U.S. Forest Service, Chippewa National Forest 

U.S. Army Corps of Engineers 

Leech Lake Band of Ojibwe, Division of Resource Management 
BLANK PAGE
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

Bemidji – Grand Rapids 230 kV Transmission Line Project 

Final Environmental Impact Statement 

Responsible State Agency: Minnesota Department of Commerce, Office of Energy 

Security 

Responsible Federal Agency (Lead): U.S. Department of Agriculture, Rural 

Development Utilities Program 

Cooperating Agencies: U.S. Army Corps of Engineers; U.S. Department of Agriculture, 

Forest Service, Chippewa National Forest; and the Leech Lake Band of Ojibwe, Leech 

Lake Division of Resource Management

Title: Bemidji-Grand Rapids 230 kV Transmission Line Project, Final Environmental 

Impact Statement 

Location: Beltrami, Hubbard, Cass and Itasca Counties, Minnesota 

Contacts: 

For further information about this For general information on the 

Environmental Impact Statement, Department of Agriculture’s process for 

contact: implementing the National Environmental

 Policy Act, contact:

Suzanne Lamb Steinhauer Stephanie A. Strength 

Project Manager, Energy Facility Perm. Environmental Protection Specialist/ 

Office of Energy Security RD, Engineering and Environmental 

 USDA Rural Development Utilities 

85 - 7th Place East, Suite 500 Mail Stop 1571 

St. Paul, MN 55101-2198 1400 Independence Ave. SW, Rm 

651-296-2888, or fax: 651-297-7891 Washington, DC 20250-1571 

 202-720-0468, or fax: 202-720-0820 

Abstract: 

This Environmental Impact Statement (EIS) prepared by the Minnesota Department of 

Commerce Office of Energy Security (OES) provides information about the potential 

environmental impacts of the proposed Bemidji-Grand Rapids Transmission Line 

Project, a 230 kV transmission line that would extend from the Wilton Substation located 

west of Bemidji in Beltrami County, to the Boswell Substation in Cohasset in Itasca 

County, Minnesota. Depending upon the route selected, the Project may also expand 

the existing Cass Lake Substation or construct a new substation in the Cass Lake area. 

Otter Tail Power Company, Minnesota Power, and Minnkota Power Cooperative (the 

Applicants) propose to construct and operate the high voltage transmission line and 

made a joint application to the Minnesota Public Utilities Commission (Commission) for 

a route permit. The route permitting process is governed by Minnesota Rules 7849.5010 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

– 7849.6500. The Applicants also approached the United States Department of Rural 

Utilities Service (RUS) for financial assistance to construct the Project. RUS has 

determined that it’s decision about whether to finance the Project would constitute a 

major federal action that may have a significant impact upon the environment, within 

the context of the National Environmental Policy Act of 1969 (NEPA). RUS serves as the 

lead federal agency for the NEPA environmental review of the Project. 

OES and RUS held six public scoping meetings during the week of August 11, 2008. 

These meetings were held in Blackduck on August 11, Cass Lake on August 12, Deer 

River on August 13, Bemidji on August 14 at 1:00pm and 5:00pm, and Walker on August 

15. 

OES and RUS held five Draft EIS public comment meetings during the week of 

March 15, 2010. These meetings were held in Bemidji on March 16, Deer River and 

Blackduck on March 17, and Cass Lake on March 18. The public was encouraged to 

provide oral comments at the public meetings and to submit written comments to the 

OES or Rural Utilities Service (RUS) by April 26, 2010. Comments received on the 

Draft EIS are included in Appendix J of this document. 

This EIS evaluates the environmental consequences that may result from the Proposed 

Action along four route alternatives, sub-alternatives/crossover segments, and detailed 

segments that comprise those alternatives. This EIS also analyzes the No-Build 

Alternative, under which the Commission would not approve the route permit 

application. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

i 

Table of Contents 

Executive Summary ................................................................................................................ES-1

Project Introduction ............................................................................................................ES-1

Co-Lead Agencies – Minnesota Office of Energy Security and the USDA Rural 

Utilities Service....................................................................................................................ES-1

Cooperating Federal Agencies ..........................................................................................ES-2

Chippewa National Forest.............................................................................................ES-2

U.S. Army Corps of Engineers......................................................................................ES-2

Leech Lake Band of Ojibwe...........................................................................................ES-3

Trust Responsibility........................................................................................................ES-3

Purpose and Need for Action............................................................................................ES-4

Regulatory Framework ......................................................................................................ES-5

Route Permit....................................................................................................................ES-5

Certificate of Need..........................................................................................................ES-5

National Environmental Policy Act .............................................................................ES-6

Clean Water Act ..............................................................................................................ES-6

Treaties of the United States Government with the Leech Lake Band of Ojibwe..ES-7

Public Scoping .....................................................................................................................ES-7

Proposed Action, Alternatives, and Scope of the EIS ....................................................ES-7

No-Build Alternative......................................................................................................ES-9

Route Alternative 1.........................................................................................................ES-9

Route Alternative 2.......................................................................................................ES-10

Route Alternative 3.......................................................................................................ES-10

Route Alternative 4.......................................................................................................ES-10

Potential Impacts...............................................................................................................ES-12

Mitigation Measures for Potential Impacts ...................................................................ES-26

Irreversible and Irretrievable Commitment of Resources...........................................ES-26

1. Introduction.......................................................................................................................... 1

1.1. Project Purpose and Need ..................................................................................... 2

1.2. Regulatory Framework .......................................................................................... 4

1.2.1. National Environmental Policy Act.................................................................. 4

1.2.2. Treaties of the United States Government with the Leech Lake Band of 

Ojibwe 4

1.2.3. Tribal Sovereignty............................................................................................... 4

1.2.4. Section 106 of the National Historic Preservation Act................................... 5

1.2.5. Clean Water Act .................................................................................................. 6

1.2.6. Minnesota Certificate of Need........................................................................... 6

1.2.7. Minnesota Route Permit..................................................................................... 7

1.3. Role of the EIS in Agency Review of the Project ................................................ 7

1.3.1. Commission ......................................................................................................... 8

1.3.2. Rural Utilities Service ....................................................................................... 10

1.3.3. Chippewa National Forest............................................................................... 10

1.3.4. U.S. Army Corps of Engineers ........................................................................ 12

1.3.5. Leech Lake Band of Ojibwe ............................................................................. 12

1.4. Scope of the EIS..................................................................................................... 13
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ii 

1.4.1. Public Scoping Process ..................................................................................... 13

1.4.2. Rural Utilities Service Pre-scoping Documents ............................................ 15

1.4.3. Advisory Task Force......................................................................................... 16

1.4.4. Agency and Tribal Review of Route Alternatives........................................ 17

1.4.5. Office of Energy Security Scoping Decision.................................................. 17

1.4.6. Rural Utilities Service Scoping Decision/Report ......................................... 17

1.5. Public Involvement............................................................................................... 17

2. Project Description............................................................................................................. 19

2.1. Project Alternatives .............................................................................................. 19

2.1.1. System Alternatives .......................................................................................... 19

2.1.2. Route Alternatives ............................................................................................ 20

2.2. Alternatives Considered in the EIS .................................................................... 23

2.2.1. No-Build Alternative ........................................................................................ 29

2.2.2. Route Alternative 1 ........................................................................................... 29

2.2.2.1. Transmission Line Route.............................................................................. 29

2.2.2.2. Substation Improvements ............................................................................ 32

2.2.3. Route Alternative 2 ........................................................................................... 32

2.2.3.1. Transmission Route ...................................................................................... 32

2.2.3.2. Substation Improvements ............................................................................ 34

2.2.4. Route Alternative 3 ........................................................................................... 35

2.2.4.1. Transmission Route ...................................................................................... 35

2.2.4.2. Substation Improvements ............................................................................ 36

2.2.5. Route Alternative 4 ........................................................................................... 36

2.2.5.1. Transmission Route ...................................................................................... 37

2.2.5.2. Substation Improvements ............................................................................ 39

2.3. Alternatives Considered but Not Evaluated .................................................... 39

2.3.1. New Generation Alternative ........................................................................... 40

2.3.2. Transmission System Alternative ................................................................... 41

2.3.3. Additional Route Alternatives ........................................................................ 42

2.3.3.1. Southern Route Alternative ......................................................................... 42

2.3.3.2. Non-CNF Route Alternative........................................................................ 42

2.3.4. Underground Transmission Line Alternative............................................... 43

2.4. Project Description................................................................................................ 44

2.4.1. Transmission Design ........................................................................................ 45

2.4.2. Substation Design.............................................................................................. 52

2.4.2.1. Wilton Substation.......................................................................................... 52

2.4.2.2. Boswell Substation ........................................................................................ 52

2.4.2.3. New or Expanded Substation in the Cass Lake Area .............................. 53

2.4.2.4. Nary Breaker Station..................................................................................... 53

2.4.3. Property Acquisition......................................................................................... 54

2.4.3.1. Transmission Line Right-of-Way Acquisition........................................... 54

2.4.3.2. Substation Property Acquisition................................................................. 55

2.4.4. Preconstruction Activities................................................................................ 56

2.4.5. Transmission Line Construction Procedures ................................................ 56

2.4.6. Substation Construction Procedures .............................................................. 60

2.4.7. Restoration Procedures .................................................................................... 61
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

iii 

2.4.8. Transmission Line Maintenance and Operation........................................... 61

2.4.9. Substation Maintenance and Operation ........................................................ 62

2.4.10. Construction Schedule and Workforce .......................................................... 62

2.4.11. Future Plans and Abandonment..................................................................... 62

2.5. Comparison of Alternatives ................................................................................ 62

2.5.1. Federally Preferred Alternative ...................................................................... 63

3. Affected Environment, Impacts, and Mitigation........................................................... 64

3.1. Aesthetics ............................................................................................................... 66

3.1.1. Affected Environment ...................................................................................... 67

3.1.1.1. Overview of the Study Area........................................................................ 67

3.1.1.2. Route Alternative 1 ....................................................................................... 72

3.1.1.3. Route Alternative 2 ....................................................................................... 72

3.1.1.4. Route Alternative 3 ....................................................................................... 73

3.1.1.5. Route Alternative 4 ....................................................................................... 74

3.1.1.6. Leech Lake Reservation................................................................................ 74

3.1.1.7. Chippewa National Forest........................................................................... 74

3.1.2. Direct/Indirect Effects...................................................................................... 78

3.1.2.1. No-Build Alternative .................................................................................... 81

3.1.2.2. Route Alternative 1 ....................................................................................... 81

3.1.2.3. Route Alternative 2 ....................................................................................... 85

3.1.2.4. Route Alternative 3 ....................................................................................... 88

3.1.2.5. Route Alternative 4 ....................................................................................... 90

3.1.2.6. Leech Lake Reservation................................................................................ 93

3.1.2.7. Chippewa National Forest........................................................................... 94

3.1.3. Mitigation........................................................................................................... 95

3.2. Air Quality and Climate ...................................................................................... 98

3.2.1. Affected Environment ...................................................................................... 98

3.2.1.1. Climate: Precipitation and Temperature ................................................... 99

3.2.1.2. Air Quality ..................................................................................................... 99

3.2.2. Direct/Indirect Effects.................................................................................... 101

3.2.2.1. No-Build Alternative .................................................................................. 101

3.2.2.2. Route Alternatives ...................................................................................... 102

3.2.3. Mitigation......................................................................................................... 105

3.3. Geology and Soils ............................................................................................... 107

3.3.1. Affected Environment .................................................................................... 107

3.3.1.1. Topography.................................................................................................. 107

3.3.1.2. Geology......................................................................................................... 108

3.3.1.3. Soils ............................................................................................................... 108

3.3.2. Direct/Indirect Effects.................................................................................... 113

3.3.2.1. No-Build Alternative .................................................................................. 113

3.3.2.2. Route Alternatives and Segment Alternatives........................................ 113

3.3.2.3. Leech Lake Reservation.............................................................................. 116

3.3.2.4. Chippewa National Forest......................................................................... 117

3.3.3. Mitigation......................................................................................................... 119

3.4. Water Resources.................................................................................................. 121

3.4.1. Affected Environment .................................................................................... 121
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

iv 

3.4.1.1. Surface Waters ............................................................................................. 121

3.4.1.2. Water Quality .............................................................................................. 127

3.4.1.3. Groundwater................................................................................................ 128

3.4.2. Direct/Indirect Effects.................................................................................... 129

3.4.2.1. Surface Water............................................................................................... 130

3.4.2.2. Groundwater................................................................................................ 138

3.4.3. Mitigation......................................................................................................... 139

3.5. Floodplains .......................................................................................................... 142

3.5.1. Affected Environment .................................................................................... 142

3.5.2. Direct/Indirect Effects.................................................................................... 143

3.5.2.1. No-Build Alternative .................................................................................. 143

3.5.2.2. Route Alternative 1 ..................................................................................... 143

3.5.2.3. Route Alternative 2 ..................................................................................... 144

3.5.2.4. Route Alternative 3 ..................................................................................... 145

3.5.2.5. Route Alternative 4 ..................................................................................... 145

3.5.2.6. Leech Lake Reservation.............................................................................. 146

3.5.2.7. Chippewa National Forest......................................................................... 147

3.5.3. Mitigation......................................................................................................... 147

3.6. Wetlands .............................................................................................................. 149

3.6.1. Affected Environment .................................................................................... 149

3.6.1.1. National Wetlands Inventory Wetlands .................................................. 150

3.6.1.2. Public Water Inventory Wetlands............................................................. 156

3.6.2. Direct/Indirect Effects.................................................................................... 158

3.6.2.1. No-Build Alternative .................................................................................. 166

3.6.2.2. Route Alternative 1 ..................................................................................... 166

3.6.2.3. Route Alternative 2 ..................................................................................... 167

3.6.2.4. Route Alternative 3 ..................................................................................... 168

3.6.2.5. Route Alternative 4 ..................................................................................... 168

3.6.2.6. Leech Lake Reservation.............................................................................. 169

3.6.2.7. Chippewa National Forest......................................................................... 171

3.6.3. Mitigation......................................................................................................... 173

3.7. Biological Resources........................................................................................... 177

3.7.1. Affected Environment .................................................................................... 177

3.7.1.1. Vegetation Cover......................................................................................... 177

3.7.1.2. Noxious Weeds............................................................................................ 188

3.7.1.3. Fauna............................................................................................................. 193

3.7.2. Direct/Indirect Effects.................................................................................... 196

3.7.2.1. Vegetation Cover......................................................................................... 196

3.7.2.2. Noxious Weeds............................................................................................ 209

3.7.2.3. Fauna............................................................................................................. 210

3.7.3. Mitigation......................................................................................................... 216

3.7.3.1. Vegetative Cover......................................................................................... 216

3.7.3.2. Noxious Weeds............................................................................................ 217

3.7.3.3. Fauna............................................................................................................. 218

3.8. Species of Concern.............................................................................................. 220

3.8.1. Affected Environment .................................................................................... 220
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

v 

3.8.1.1. Birds .............................................................................................................. 222

3.8.1.2. Mammals...................................................................................................... 231

3.8.1.3. Reptiles ......................................................................................................... 236

3.8.1.4. Invertebrates ................................................................................................ 237

3.8.1.5. Plants............................................................................................................. 238

3.8.1.6. Route Alternative 1 ..................................................................................... 250

3.8.1.7. Route Alternative 2 ..................................................................................... 251

3.8.1.8. Route Alternative 3 ..................................................................................... 251

3.8.1.9. Route Alternative 4 ..................................................................................... 252

3.8.1.10. Leech Lake Reservation............................................................................ 252

3.8.1.11. Chippewa National Forest....................................................................... 255

3.8.2. Direct/Indirect Effects.................................................................................... 255

3.8.2.1. No-Build Alternative .................................................................................. 256

3.8.2.2. General Impacts on Species of Concern................................................... 256

3.8.2.3. Route Alternative 1 and Associated Segment Alternatives .................. 258

3.8.2.4. Route Alternative 2 and Associated Segment Alternatives .................. 259

3.8.2.5. Route Alternative 3 and Associated Segment Alternatives .................. 259

3.8.2.6. Route Alternative 4 ..................................................................................... 261

3.8.2.7. Leech Lake Reservation.............................................................................. 262

3.8.2.8. Chippewa National Forest......................................................................... 263

3.8.3. Mitigation......................................................................................................... 263

3.9. Cultural Resources and Values......................................................................... 265

3.9.1. Introduction ..................................................................................................... 265

3.9.2. Geographic Scope............................................................................................ 266

3.9.2.1. Study Area.................................................................................................... 267

3.9.3. Consultation..................................................................................................... 267

3.9.3.1. Early Coordination...................................................................................... 267

3.9.3.2. Consultation................................................................................................. 268

3.9.4. Cultural Resources History of the Study Area ........................................... 272

3.9.4.1. Introduction ................................................................................................. 272

3.9.4.2. Background .................................................................................................. 273

3.9.5. Recorded Cultural Resources ........................................................................ 276

3.9.5.1. Archeological Resources ............................................................................ 277

3.9.5.2. Traditional Resources ................................................................................. 278

3.9.5.3. Built Resources ............................................................................................ 280

3.9.5.4. Summary ...................................................................................................... 280

3.9.6. Direct/Indirect Effects.................................................................................... 281

3.9.6.1. No-Build Alternative .................................................................................. 282

3.9.6.2. Route Alternative 1 ..................................................................................... 283

3.9.6.3. Route Alternative 2 ..................................................................................... 283

3.9.6.4. Route Alternative 3 ..................................................................................... 284

3.9.6.5. Route Alternative 4 ..................................................................................... 285

3.9.7. Mitigation......................................................................................................... 285

3.10. Land Use .............................................................................................................. 289

3.10.1. Affected Environment .................................................................................... 289

3.10.1.1. Study Area.................................................................................................. 289
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

vi 

3.10.1.2. Zoning and Land Use ............................................................................... 292

3.10.1.3. Land Cover................................................................................................. 294

3.10.2. Direct/Indirect Effects.................................................................................... 299

3.10.2.1. No-Build Alternative ................................................................................ 299

3.10.2.2. Route Alternatives 1, 2, 3, and 4.............................................................. 299

3.10.2.3. Leech Lake Reservation............................................................................ 304

3.10.2.4. Chippewa National Forest....................................................................... 305

3.10.3. Mitigation......................................................................................................... 305

3.11. Socioeconomics ................................................................................................... 307

3.11.1. Affected Environment .................................................................................... 307

3.11.1.1. Population Characteristics ....................................................................... 308

3.11.1.2. Housing Characteristics ........................................................................... 310

3.11.1.3. Employment Characteristics.................................................................... 313

3.11.1.4. Income Characteristics ............................................................................. 319

3.11.2. Direct/Indirect Effects.................................................................................... 321

3.11.2.1. No-Build Alternative ................................................................................ 337

3.11.2.2. Route Alternative 1 ................................................................................... 337

3.11.2.3. Route Alternative 2 ................................................................................... 339

3.11.2.4. Route Alternative 3 ................................................................................... 340

3.11.2.5. Route Alternative 4 ................................................................................... 342

3.11.2.6. Leech Lake Reservation............................................................................ 343

3.11.2.7. Chippewa National Forest....................................................................... 345

3.11.3. Mitigation......................................................................................................... 345

3.11.3.1. Natural Resource-Based Economies....................................................... 345

3.11.3.2. Subsistence-Based Economies ................................................................. 346

3.11.3.3. Local and Regional Economies................................................................ 346

3.11.3.4. Taxes ........................................................................................................... 347

3.11.3.5. Property Values......................................................................................... 347

3.11.3.6. Homes and Businesses ............................................................................. 347

3.12. Environmental Justice ........................................................................................ 348

3.12.1. Affected Environment .................................................................................... 348

3.12.1.1. Regional Definition ................................................................................... 348

3.12.1.2. Demographic Overview........................................................................... 349

3.12.1.3. Subsistence Activities ............................................................................... 355

3.12.2. Direct/Indirect Effects.................................................................................... 359

3.12.2.1. No-Build Alternative ................................................................................ 362

3.12.2.2. Route Alternative 1 ................................................................................... 362

3.12.2.3. Route Alternative 2 ................................................................................... 364

3.12.2.4. Route Alternative 3 ................................................................................... 367

3.12.2.5. Route Alternative 4 ................................................................................... 370

3.12.2.6. Leech Lake Reservation............................................................................ 371

3.12.2.7. Chippewa National Forest....................................................................... 372

3.12.3. Mitigation......................................................................................................... 372

3.13. Recreation and Tourism..................................................................................... 375

3.13.1. Affected Environment .................................................................................... 375

3.13.1.1. Dispersed Recreational Activities ........................................................... 378
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

vii 

3.13.1.2. Developed Recreational Activities.......................................................... 381

3.13.1.3. Leech Lake Reservation............................................................................ 384

3.13.2. Direct/Indirect Effects.................................................................................... 389

3.13.2.1. No-Build Alternative ................................................................................ 389

3.13.2.2. Route Alternatives and Segment Alternatives...................................... 390

3.13.2.3. Leech Lake Reservation............................................................................ 403

3.13.2.4. Chippewa National Forest....................................................................... 403

3.13.3. Mitigation......................................................................................................... 404

3.14. Agriculture........................................................................................................... 406

3.14.1. Affected Environment .................................................................................... 406

3.14.1.1. Agriculture ................................................................................................. 406

3.14.1.2. Prime Farmland......................................................................................... 409

3.14.2. Direct/Indirect Effects.................................................................................... 409

3.14.2.1. No-Build Alternative ................................................................................ 410

3.14.2.2. Route Alternatives and Segment Alternatives...................................... 410

3.14.2.3. Route Alternative 1 ................................................................................... 413

3.14.2.4. Route Alternative 2 ................................................................................... 413

3.14.2.5. Route Alternative 3 ................................................................................... 414

3.14.2.6. Route Alternative 4 ................................................................................... 415

3.14.2.7. Leech Lake Reservation............................................................................ 415

3.14.2.8. Chippewa National Forest....................................................................... 417

3.14.3. Mitigation......................................................................................................... 417

3.15. Forestry................................................................................................................. 419

3.15.1. Affected Environment .................................................................................... 419

3.15.1.1. Leech Lake Reservation............................................................................ 423

3.15.1.2. Chippewa National Forest....................................................................... 423

3.15.2. Direct/Indirect Effects.................................................................................... 423

3.15.2.1. No-Build Alternative ................................................................................ 425

3.15.2.2. Route Alternative 1 ................................................................................... 425

3.15.2.3. Route Alternative 2 ................................................................................... 426

3.15.2.4. Route Alternative 3 ................................................................................... 427

3.15.2.5. Route Alternative 4 ................................................................................... 427

3.15.2.6. Leech Lake Reservation............................................................................ 427

3.15.2.7. Chippewa National Forest....................................................................... 429

3.15.2.7. State Forests ............................................................................................... 436

3.15.3. Mitigation......................................................................................................... 436

3.16. Mining .................................................................................................................. 438

3.16.1. Affected Environment .................................................................................... 438

3.16.1.1. Route Alternative 1 ................................................................................... 441

3.16.1.2. Route Alternative 2 ................................................................................... 442

3.16.1.3. Route Alternative 3 ................................................................................... 442

3.16.1.4. Route Alternative 4 ................................................................................... 442

3.16.2. Direct/Indirect Effects.................................................................................... 443

3.16.2.1. No-Build Alternative ................................................................................ 443

3.16.2.2. Route Alternatives and Segment Alternatives...................................... 443

3.16.3. Mitigation......................................................................................................... 443
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

viii 

3.17. Community Services .......................................................................................... 445

3.17.1. Affected Environment .................................................................................... 445

3.17.2. Direct/Indirect Effects.................................................................................... 448

3.17.2.1. No-Build Alternative ................................................................................ 449

3.17.2.2. Route Alternatives 1, 2, 3, and 4.............................................................. 449

3.17.2.3. Leech Lake Reservation............................................................................ 450

3.17.2.4. Chippewa National Forest....................................................................... 450

3.17.3. Mitigation......................................................................................................... 451

3.18. Utility Systems .................................................................................................... 452

3.18.1. Affected Environment .................................................................................... 452

3.18.1.1. Communications Networks..................................................................... 452

3.18.1.2. Existing Oil and Natural Gas Pipelines ................................................. 453

3.18.1.3. Existing Electric Transmission Lines...................................................... 454

3.18.2. Direct/Indirect Effects.................................................................................... 454

3.18.2.1. No-Build Alternative ................................................................................ 456

3.18.2.2. Route Alternatives and Segment Alternatives...................................... 456

3.18.2.3. Route Alternative 1 ................................................................................... 461

3.18.2.4. Route Alternative 2 ................................................................................... 463

3.18.2.5. Route Alternative 3 ................................................................................... 466

3.18.2.6. Route Alternative 4 ................................................................................... 467

3.18.3. Mitigation......................................................................................................... 469

3.18.3.1. Omnidirectional Signals........................................................................... 469

3.18.3.2. Microwave (Unidirectional) Signals....................................................... 470

3.18.3.3. Oil and Natural Gas Pipelines................................................................. 470

3.18.3.4. Electric Transmission Lines ..................................................................... 472

3.19. Traffic and Transportation ................................................................................ 473

3.19.1. Affected Environment .................................................................................... 473

3.19.1.1. Federal, State, and County Roads........................................................... 473

3.19.1.2. Railways ..................................................................................................... 476

3.19.1.3. Airports....................................................................................................... 477

3.19.1.4. River and Lake Navigation...................................................................... 478

3.19.1.5. Leech Lake Reservation............................................................................ 478

3.19.1.6. Chippewa National Forest....................................................................... 479

3.19.2. Direct/Indirect Effects.................................................................................... 479

3.19.2.1. No-Build Alternative ................................................................................ 483

3.19.2.2. Route Alternative 1 and Associated Segment Alternatives ................ 483

3.19.2.3. Route Alternative 2 and Associated Segment Alternatives ................ 485

3.19.2.4. Route Alternative 3 and Associated Segment Alternatives ................ 488

3.19.2.5. Route Alternative 4 and Associated Segment Alternatives ................ 490

3.19.2.6. Leech Lake Reservation............................................................................ 493

3.19.2.7. Chippewa National Forest....................................................................... 493

3.19.3. Mitigation......................................................................................................... 493

3.19.3.1. MnDOT....................................................................................................... 494

3.19.3.2. High-Voltage Transmission Line and Railway Compatibility ........... 495

3.20. Safety and Health................................................................................................ 497

3.20.1. Affected Environment .................................................................................... 497
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ix 

3.20.1.1. Electric and Magnetic Fields.................................................................... 497

3.20.1.2. Construction Equipment and Activities ................................................ 507

3.20.2. Direct/Indirect Effects.................................................................................... 508

3.20.2.1. No-Build Alternative ................................................................................ 508

3.20.2.2. Route Alternatives and Segment Alternatives...................................... 508

3.20.3. Mitigation......................................................................................................... 513

3.20.3.1 Construction Equipment and Activities ................................................. 513

3.20.3.2 Electrical Safety .......................................................................................... 514

3.21. Noise..................................................................................................................... 516

3.21.1. Affected Environment .................................................................................... 516

3.21.2. Direct/Indirect Effects.................................................................................... 518

3.21.2.1. No-Build Alternative ................................................................................ 518

3.21.2.2. Route Alternatives 1, 2, 3, and 4 and Segment Alternatives ............... 519

3.21.3. Mitigation......................................................................................................... 523

4. Cumulative Effects........................................................................................................... 524

4.1. Projects Evaluated............................................................................................... 524

4.1.1. Enbridge Energy Pipeline Expansions......................................................... 526

4.1.2. MnDOT Roadway Expansion ....................................................................... 527

4.1.3. U.S. Forest Service Projects ............................................................................ 527

4.1.3.1. Cuba Hill Resource Management Project................................................ 528

4.1.3.2. Lower East Winnie Vegetation Management Project ............................ 528

4.1.3.3. Boy River 2 Resource Management Project............................................. 529

4.1.3.4. Upper East Winnie Vegetation Management Project ............................ 530

4.1.3.5. Continental Divide Resource Management Project ............................... 531

4.1.3.6. NNIS Plant Management Program........................................................... 532

4.1.3.7. Lydick Resource Management Project..................................................... 532

4.1.3.8. North Winnie Semi-private Non-motorized Area Boundary Change and 

Trail Project .................................................................................................................. 533

4.1.4. St. Regis Superfund Site ................................................................................. 533

4.1.5. Utility Upgrade Projects................................................................................. 534

4.2. Cumulative Effects Methodology and Analysis............................................. 536

4.2.1. Aesthetics ......................................................................................................... 536

4.2.2. Air Quality ....................................................................................................... 537

4.2.3. Geology and Soils............................................................................................ 538

4.2.4. Water Resources and Floodplains ................................................................ 539

4.2.5. Wetlands........................................................................................................... 540

4.2.6. Biological Resources and Species of Concern ............................................. 542

4.2.6.1. Vegetation .................................................................................................... 542

4.2.6.2. Fauna............................................................................................................. 544

4.2.7. Cultural Resources.......................................................................................... 546

4.2.8. Land Use........................................................................................................... 547

4.2.9. Socioeconomics................................................................................................ 550

4.2.9.1. Construction................................................................................................. 550

4.2.9.2. Operation...................................................................................................... 551

4.2.10. Environmental Justice..................................................................................... 552

4.2.11. Recreation and Tourism ................................................................................. 553
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

x 

4.2.12. Agriculture....................................................................................................... 554

4.2.13. Forestry............................................................................................................. 555

4.2.14. Mining............................................................................................................... 556

4.2.15. Community Services....................................................................................... 557

4.2.16. Public Utilities ................................................................................................. 557

4.2.17. Traffic and Transportation............................................................................. 557

4.2.18. Safety and Health............................................................................................ 559

4.2.19. Noise ................................................................................................................. 560

4.3. Cumulative Effects Summary ........................................................................... 560

5. Comparison of Alternatives ........................................................................................... 567

5.1. Comparative Impacts of Alternatives.............................................................. 567

5.2. Federally Preferred Alternative ........................................................................ 581

5.3. Mitigation of Impacts ......................................................................................... 584

5.4. Irreversible and Irretrievable Commitment of Resources ............................ 592

5.5. Relationship between Short-term Uses of the Environment and the 

Maintenance and Enhancement of Long-term Productivity.......................................... 593

6. Regulatory and Permit Requirements .......................................................................... 595

7. Agencies and Tribes Contacted ..................................................................................... 601

7.1. Cooperating Agencies ........................................................................................ 601

7.2. Federal Agencies Contacted.............................................................................. 601

7.3. Minnesota Agencies Contacted ........................................................................ 601

7.4. Tribes Contacted ................................................................................................. 601

8. Distribution List ............................................................................................................... 603

8.1. Federal Agencies................................................................................................. 603

8.2. Tribal Governments and Agencies................................................................... 603

8.3. Minnesota State Agencies.................................................................................. 603

8.4. Local Units of Government ............................................................................... 604

8.5. Local Libraries..................................................................................................... 604

9. References ......................................................................................................................... 605

10. List of Preparers........................................................................................................... 634

FIGURES IN TEXT 

Figure ES-1 Alternative Overview Map 

Figure 1-1 Bemidji Area 

Figure 1-2 Minnesota Route Permitting Process 

Figure 2-1 Applicant-Identified Routes 

Figure 2-2 Federal Macrocorridors Identified 

Figure 2-3 Typical 230 kV H-Frame 

Figure 2-4 Typical 230 kV Single Pole Structure 

Figure 2-5 Typical 3-Pole Guyed Structure 

Figure 2-6 Typical 230/115 kV Single Pole Double Circuit Structure 

Figure 2-7 H-Frame 230-115/69 kV Structure 

Figure 3.20-1 Electromagnetic Spectrum 

Figure 3.20-2 Typical EMF Levels for Power Transmission Lines 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

xi 

FIGURES IN APPENDIX C 

Figure 2.2-1 Alternative Overview Map 

Figure 2.2-1a Wilton Area Map 

Figure 2.2-1b Alternative Route Segments D, F, K, L, and M 

Figure 2.2-1c Cass Lake Substation Area Map 

Figure 2.2-1d Alternative Route Segments C, P, and Q 

Figure 3.1-1 Scenic Integrity Objectives Map 

Figure 3.3-1 Soils Map 

Figure 3.4-1 Surface Waters/Wetlands Map 

Figure 3.8-1 Sensitive Resources Map 

Figure 3.10-1 Land Cover Map 

Figure 3.12-1 Census Block Map 

Figure 3.12-2 Minority Population Map 

Figure 3.12-3 Population Below Poverty Level Map 

Figure 3.13-1 Recreational Areas Map 

Figure 3.15-1 CNF Management Areas Map 

Figure 3.16-1 Aggregate Resource Location Map 

Figure 3.19-1 Utility Infrastructure 

Figure 3.19-2 Transportation Infrastructure 

Figure 4.1-1 Cumulative Effects Map 

APPENDICES 

Appendix A RUS and OES Scoping Decisions 

Appendix B Scoping Comment Summary 

Appendix C Resource Maps/Figures 

Appendix D Detailed Route Alternative Maps 

Appendix E Visual Assessment 

Appendix F Detailed Cover Type Tables 

Appendix G Biological Assessment and Evaluation 

Appendix H Substation Design 

Appendix I Draft Avian Mitigation Plan 

Appendix J Comment Response Document 

Appendix K Draft Programmatic Agreement 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

xii 

BLANK PAGE
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

xiii 

List of Acronyms and Abbreviations 

AADT annual average daily traffic 

ac acres 

AC alternating current 

ACSR aluminum conductor steel reinforced 

ADT average daily traffic 

AES Alternatives Evaluation Study 

AM amplitude-modulated 

AMP Avian Mitigation Plan 

APE Area of Potential Effect 

AREMA American Railway Engineering and Maintenance-of-Way 

Association 

ASR Antenna Structure Registration 

ATV all-terrain vehicle 

BA/BE Biological Assessment/Biological Evaluation 

B-GR Bemidji-Grand Rapids 

BIA Bureau of Indian Affairs 

BJI Bemidji Regional Airport 

BMP Best Management Practice 

BNSF Burlington Northern Santa Fe 

BP before present 

CAA Clean Air Act 

CEQ Council on Environmental Quality 

CFR Code of Federal Regulations 

CNF Chippewa National Forest 

CNFLRMP Chippewa Nation Forest Land Resource Management Plan 

CO carbon monoxide 

CO2 carbon dioxide 

CSAH County State-Aid Highway 

dB decibels 

dBA A-weighted decibels 

EA environmental assessment 

EDRR Early Detection Rapid Response 

EF Experimental Forest 

EFP Energy Facility Permitting 

EIS Environmental Impact Statement 

ELF electromagnetic field 

EMF Electric and Magnetic Fields 

EO Executive Order 

EPA U.S. Environmental Protection Agency 

ER Environmental Report 

ERM Environmental Resources Management 

ERP OES Energy Regulatory Planning 

ESA Endangered Species Act 

FAA Federal Aviation Administration 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

xiv 

FCC Federal Communications Commission 

FEMA Federal Emergency Management Agency 

FHWA Federal Highway Administration 

FIRM Flood Insurance Rate Maps 

FLPMA Federal Land Policy and Management Act 

FM frequency-modulated 

FR Federal Register 

FSSS U.S. Forest Service Sensitive Species 

ft feet 

FY fiscal year 

GAP Geographic Analysis Program 

GHG Greenhouse Gas 

GIA Grant-in-Aid 

GIS Geographic Information Systems 

GPS Global Positioning System 

HDD horizontal directional drilling 

HDR HDR Engineering, Inc. 

HVTL high voltage transmission line 

IARC International Agency for Research on Cancer 

kHz kilohertz 

kV kilovolt 

LAU Lynx analysis unit 

LE Landscape Ecosystem 

LEP limited English proficiency 

LGU local government unit 

LIC Local Indian Council 

LLBO Leech Lake Band of the Ojibwe 

LLDRM Leech Lake Division of Resource Management 

LLHSP Leech Lake Heritage Sites Program 

LLR Leech Lake Reservation 

LOS level of service 

MA Management Areas 

MBTA Migratory Bird Treaty Act 

MDA Minnesota Department of Administration 

MEQB Minnesota Environmental Quality Board 

mi miles 

mG milliGauss 

MHB Mississippi Headwaters Board 

MMBF million board feet 

MN Minnesota 

MnDNR Minnesota Department of Natural Resources 

MnDOT Minnesota Department of Transportation 

MnDEED Minnesota Department of Employment and Economic Development 

MPCA Minnesota Pollution Control Agency 

mph miles per hour 

MRCC Midwestern Regional Climate Center 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

xv 

MRI magnetic resonance imaging 

MRPC Mississippi River Parkway Commission 

MVA mega volt ampere 

MW megawatt 

NAAQS National Ambient Air Quality Standards 

NADP National Acid Deposition Program 

NAGPR Native American Graves Protection and Repatriation 

NDEX North Dakota Export 

NEMA National Electrical Manufacturers Association 

NEPA National Environmental Policy Act 

NERC North America Reliability Council 

NESC National Electrical Safety Code 

NFS National Forest Service 

NHIS Natural Heritage Information System 

NHPA National Historic Preservation Act 

NIEHS National Institute of Environmental Health Sciences 

NO2 nitrogen dioxide 

NPDES National Pollutant Discharge Elimination System 

NRCS Natural Resources Conservation Service 

NRHP National Register of Historic Places 

NWI National Wetland Inventory 

O3 ozone 

OAHP Office of Archaeology and Historic Preservation 

OAQPS Office of Air Planning and Standards 

OES Office of Energy Security 

OHV off-highway vehicle 

OHWL ordinary high water level 

OSA Office of the State Archaeologist 

OSHA Occupational Safety and Health Act 

PA Programmatic Agreement 

PAHs polycyclic aromatic hydrocarbons 

Pb lead 

PCP pentachlorophenol 

PM10 particulate matter less than or equal to 10 microns in diameter 

ppm parts per million 

PSD Prevention of Significant Deterioration 

PUC Minnesota Public Utilities Commission 

PWI Public Waters Inventory 

RE riparian emphasis 

RF radio frequency 

RFSS Regional Forester Sensitive Species 

ROC Region of Comparison 

ROD Record of Decision 

ROW right-of-way 

RTC Reservation Tribal Council 

RTE rare, threatened, and endangered 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

xvi 

RU recreation use 

RUS U.S. Department of Agriculture – Rural Utilities Service 

SFIA Sustainable Forest Incentive Act 

SGR State Game Refuge 

SHPO State Historic Preservation Office 

SIO Scenic Integrity Objective 

SMS Scenery Management System 

SNA Scientific and Natural Area 

SO2 sulfur dioxide 

SPCC Spill Prevention, Control, and Countermeasure 

SR State Route 

SSURGO Soil Survey Geographic 

SWCD Soil and Water Conservation District 

SWPPP Storm Water Pollution Prevention Plan 

TCP Traditional Cultural Property 

TES threatened, endangered, and sensitive 

THPO Tribal Historic Preservation Officer 

TMDL Total Maximum Daily Load 

μT micro Teslas 

UB Unique Biological, Aquatic, Geological, or Historical Management 

Area 

USACE U.S. Army Corps of Engineers 

USC U.S. Code 

USCB U.S. Census Bureau 

USDA U.S. Department of Agriculture 

USDOT U.S. Department of Transportation 

USEPA U.S. Environmental Protection Agency 

USFS U.S. Forest Service 

USFWS U.S. Fish and Wildlife Service 

USGS U.S. Geological Service 

VIA Visual Impact Assessment 

VMS Visual Management System 

VOR Very High Frequency Omnidirectional Radio Range 

VQOs Visual Quality Objectives 

WHO World Health Organization 

WMA Wildlife Management Area 

WSR Eligible Scenic River 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-1 

Executive Summary 

Executive Summary 

This Executive Summary provides a summary of the proposed project and alternatives 

evaluated as well as a summary of findings of the document, highlighting conclusions, 

areas of controversy and issues to be resolved. 

Project Introduction 

Otter Tail Power Company, Minnesota Power, and Minnkota Power Cooperative (the 

Applicants) propose to construct a 230 kilovolt (kV) transmission line between the 

Wilton Substation, located west of Bemidji, Minnesota, and the Boswell Substation in 

Cohasset, Minnesota as well as upgrades to both the Wilton and Boswell substations (the 

Project). Depending upon the route selected, the Project may also expand the existing 

Cass Lake Substation, construct a new substation in the Cass Lake area, and/or 

construct a new Nary Breaker Station. 

Co-Lead Agencies – Minnesota Office of Energy Security and the 

USDA Rural Utilities Service 

High voltage transmission lines constructed in Minnesota require a route permit 

from the Minnesota Public Utilities Commission (Commission). The route 

permitting process is governed by Minnesota Rules part 7850. The Applicants 

made a joint application to the Commission for a route permit for the Project. As 

part of the permitting process for the high voltage transmission line, the 

Minnesota Department of Commerce Office of Energy Security (OES) prepared 

this Environmental Impact Statement (EIS) for the Project. 

Minnkota Power Cooperative also has approached the United States Department of 

Agriculture Rural Utilities Service (RUS) for financial assistance to construct the Project. 

RUS has determined that the agency’s decision about whether to finance the Project 

would constitute a major federal action that may have a significant impact upon the 

environment within the context of the National Environmental Policy Act of 1969 

(NEPA). Thus, RUS serves as the lead federal agency for the NEPA environmental 

review of the Project. RUS also is responsible for ensuring compliance with Section 106 

of the National Historic Preservation Act (NHPA), upholding Treaties of the United 

States with the Leech Lake Band of Ojibwe (LLBO) and meeting their trust obligations to 

the LLBO, and for initiating informal consultation with the U.S. Fish and Wildlife 

Service (USFWS) under Section 7 of the Endangered Species Act (ESA) to determine the 

likelihood of effects on federally listed species. 

As co-lead agencies, OES and RUS prepared this EIS in compliance with the 

requirements of NEPA and the Council on Environmental Quality regulations for 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-2 

Executive Summary 

implementing NEPA (40 CFR 1500 -1508). This EIS was prepared to meet the following 

key objectives: 

• Identify and assess potential impacts on the natural and human environment 

that would result from the Project; 

• Identify and assess the potential impacts of the Project on the Federal Treaties 

and Trust Obligation to the Leech Lake Band of Ojibwe; 

• Meeting Consultation Requirements for Section 106 of the NHPA; 

• Describe and evaluate reasonable alternatives, including a No-Build Alternative, 

to the Project that would avoid or minimize adverse effects to the environment; 

and 

• Identify specific mitigation measures to minimize environmental impacts. 

Cooperating Federal Agencies 

In addition to the co-lead agencies, the U.S. Forest Service (USFS) Chippewa National 

Forest (CNF), the U.S. Army Corps of Engineers (USACE), and the Leech Lake Band of 

Ojibwe Division of Resources Management (LLDRM) agreed to assist the RUS as 

cooperating agencies in preparing this EIS. The roles of these agencies are described 

below. 

Chippewa National Forest 

The Applicants have applied to USFS CNF for a Special Use Permit to construct and 

operate the Project on National Forest Service (NFS) lands. The Forest Supervisor is 

responsible for management and evaluation of the occupation and use of NFS lands and 

may grant a special use on those lands in accordance with the Federal Land Policy and 

Management Act (FLPMA) of 1976. The USFS must also meet the U.S. Government 

Treaty and trust obligations to the Leech Lake Band of Ojibwe. The Forest Supervisor of 

the CNF must determine whether to issue a special use permit for the Project. Any 

action taken by the Forest Supervisor must be consistent with the objectives of the CNF 

Land and Resource Management Plan (Forest Plan), as revised in 2004. 

U.S. Army Corps of Engineers 

The Applicants would apply to the U.S. Army Corps of Engineers (USACE) for a permit 

for the Project under Sections 404 of the Clean Water Act and Section 10 of the 1899 

Rivers and Harbor Act. Section 404 of the Clean Water Act regulates the placement of 

dredge and/or fill material in the waters of the United States, including adjacent 

wetlands. Section 10 regulates the placement of structures in, on, or over navigable 

waters of the U.S. The USACE must determine whether or not to issue a Section 404 and 

Section 10 permit for the Project. The USACE must also meet the U.S. Government 

Treaty and trust obligations to the Leech Lake Band of Ojibwe. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-3 

Executive Summary 

Leech Lake Band of Ojibwe 

The Applicants have requested that the Leech Lake Reservation Tribal Council (RTC) 

permit the Project to cross the proclamation boundaries of the Leech Lake Reservation 

(LLR). The Applicants have designed all of the Route and Segment Alternatives to 

avoid crossing on or over tribal trust land (Otter Tail Power et al., 2008a). The Tribe 

retains treaty rights for all lands, regardless of land ownership or management, within 

the LLR boundaries. The LLBO is responsible for issuing the appropriate approval and 

authorizations for activities to cross lands upon which it retains treaty rights and 

easements or authorizations for activities on lands under its jurisdiction. Not all land 

inside the LLR boundaries is managed by the Tribe, but rather includes a patchwork of 

multiple owners and managers, including tribal trust land, tribal fee land, state land, 

federal land, county land, and private ownership. 

The Leech Lake Division of Resource Management (LLDRM) is responsible for 

overseeing the development of land leases, easements, and Allotments Tribal and Band 

lands approved by the RTC and the Bureau of Indian Affairs (BIA). The LLDRM also 

works with the BIA and owners of tribal titled lands that the Project would cross to 

obtain their consent and easements or other agreements. The LLDRM analyzes 

proposed projects for their effect on never relinquished hunting, fishing, and gathering 

treaty rights of the LLBO on lands within the LLR. The LLDRM’s review also includes 

impacts to gathering activities for tribally important species including but not limited to 

wild rice, blueberries, and sweetgrass. For the purpose of this EIS document the LLBO 

assumes the role of a Federal Entity, while still remaining a sovereign government. 

The Director of the LLDRM has authority to participate in the environmental review of 

projects and to prepare joint or separate Environmental Assessment (EA) or EIS 

documents for those projects that occur on lands within the LLR boundaries. The 

LLDRM Director has decided to be a full cooperating agency in this EIS. This EIS, and 

the other environmental documents issued in connection with the Project, will assist the 

LLDRM Director in making a decision about the merits of this Project and whether or 

not to sign a decision notice for the Project, and to prepare any necessary easements and 

other permits needed to cross the reservation. This EIS will be used to provide 

information sufficient to make a decision on the request to obtain permission to cross the 

reservation, and any easements, Allotments, Tribal or Band lands, and to receive 

Reservation Resolution. 

Trust Responsibility 

American Indian lands in the lower 48 States comprise over 45 million acres of reserved 

lands and an additional 10 million in individual allotments (USFWS, 2010). These lands 

contain sacred and cultural sites and many natural resources that are used by tribes for 

cultural and subsistence activities. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-4 

Executive Summary 

As representatives of the federal government, federal agencies have a responsibility to 

manage natural resources in adherence with the following objectives: 

• reflects Federal trust responsibility toward Indian tribes 

• respects tribal rights 

• acknowledges the treaty obligations of the United States toward tribes 

• uses the government-to-government relationship in dealing with tribes 

• protects natural resources that the Federal government holds in trust for tribes (USFWS, 

2010). 

Within the Project area, RUS and the federal cooperating agencies have a trust 

responsibility to manage natural resources in accordance with the objectives noted 

above and with consideration to the specific land use policies of the Leech Lake Band of 

Ojibwe. Where the Project would result in long-term impacts to natural resources 

within the Leech Lake Reservation, federal agencies have the responsibility to mitigate 

such impacts. 

Purpose and Need for Action 

The Applicants propose to construct and operate the Project to meet projected future 

electric demand and to maintain electric transmission reliability standards in accordance 

with the requirements of the North American Reliability Council (NERC). In addition to 

meeting the future needs of the Bemidji area, the Project is intended to maintain regional 

transmission reliability for the larger northwestern Minnesota and eastern North Dakota 

region. The area is susceptible to low voltage conditions if the Winger – Wilton 230 kV 

transmission line is out of service during winter peak load conditions (Otter Tail Power 

et al., 2008a). 

The electric power demand in the Bemidji area is growing at a rate of approximately 2 

percent per year (Otter Tail Power et al., 2008a). Although interim measures to improve 

the electric transmission system have been taken, such as adding voltage support, the 

peak load is anticipated to reach 296 MW by the winter of 2011-2012, or approximately 

135 percent of the system’s maximum load-serving capability of 220 MW (Otter Tail 

Power et al., 2008a). The Applicants estimate that the peak load would reach 

approximately 360 MW by winter 2022-2023 (Otter Tail Power et al., 2008a). Without 

improvements to address this deficit, the area would be in a situation of local loadserving inadequacy, meaning that in the event of the loss of local transmission 

capability, the area could be subject to brownouts or blackouts. 

The Project also would facilitate the addition of new generation sources in the region by 

increasing the transfer of additional capacity from the North Dakota Export boundary to 

the Twin Cities metropolitan area. At the time of this EIS, there are no specific 

generation projects and therefore the assessment of the impacts of new generation is not 

included in this EIS. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-5 

Executive Summary 

Regulatory Framework 

The following sections summarize the primary framework that provides the regulatory 

basis for each federal and state agency’s role in approving the Applicants’ Project and 

guides the permitting process. 

Route Permit 

The Commission has the responsibility for routing transmission lines capable of 

operating at or above 100 kV in Minnesota. The Applicants have applied to the 

Commission for a Route Permit for the Project. The Project is considered a High Voltage 

Transmission Line under Minnesota Statute 216E (Minnesota Power Plant Siting Act) 

and requires a route permit from the Commission. When the Commission issues a route 

permit, zoning, building, and land use regulations are preempted per Minnesota Statue 

216E.10, subd. 1. 

The Commission’s route permit determination must be guided by the state’s goals to 

conserve resources, minimize environmental impacts, minimize human settlement and 

other land-use conflicts, and ensuring the state’s electric energy security through 

efficient, cost-effective power supply and electric transmission infrastructure (Minn. 

Stat. 213E.03, subd. 7a). These criteria are more fully developed in MN Rules 7849.5910. 

The process contains several opportunities for public involvement throughout the 

process. 

As part of this permitting process, the OES prepares an EIS to provide information to the 

Commission, to assist in its decision about the route permit for the Project. The EIS 

contains information about the human and environmental impacts of the Project and 

selected alternatives, and addresses mitigation measures for anticipated impacts. 

Certificate of Need 

Because the Project is considered a Large Energy Facility under Minnesota Statute 

216B.2421, a Determination of Need for the Project also is required from the 

Commission. The Certificate of Need process is designed to evaluate the level of need, 

as well as the alternatives available to satisfy that need. The Certificate of Need process 

is the only proceeding under Minnesota Statute in which a no-build alternative and the 

size, type, timing, system configuration, and voltage of a proposed project would be 

considered. The Commission determines the basic type of facility (if any) to be 

constructed, the size of the facility, and the timing of the facility (e.g., the projected inservice date). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-6 

Executive Summary 

The Certificate of Need process is governed by Minnesota Rules 7849.1000-2100. The 

OES prepares an Environmental Report analyzing the human and environmental 

impacts of each proposed large energy facility that have come before the Commission 

for a determination of need. The Applicants applied for a Certificate of Need for the 

proposed transmission line on March 17, 2008. The Environmental Report prepared for 

the Project was released on April 30, 2009. The Commission issued an order 

determining the need for the Project on July, 14, 2009. 

National Environmental Policy Act 

NEPA requires federal agencies to integrate environmental values into their decisionmaking processes by considering the environmental impacts of, and reasonable 

alternatives to, their proposed actions. For major federal actions that have the potential 

to cause significant adverse impacts on the environment, NEPA requires agencies 

undertaking the action to prepare an EIS. 

RUS has determined that providing financial assistance for the construction and 

operation of the Project constitutes a major federal action that may significantly affect 

the quality of the natural and human environment. Therefore, the EIS process is 

underway in accordance with 7 CFR 1794 Subpart G - Procedure for Environmental 

Impact Statement. In addition, RUS prepared this EIS for use by decision-makers in 

determining whether or not to provide assistance for construction and operation of the 

Project in the form of a loan to Minnkota Power Cooperative, one of the Applicants. 

Clean Water Act 

Clean Water Act Section 404 authorization is required for the Project, because its 

construction would require discharge of dredged and/or fill material into waters of the 

United States. As a cooperating agency in preparation of this EIS, and the agency 

responsible for determining whether to issue a permit for wetland impacts associated 

with the Project, it is the USACE’s intention to utilize and incorporate the EIS as part of 

its review of the Project. Receipt a Section 404 permit and adherence to the terms and 

conditions of the permit, including any associated compensatory mitigation and best 

management practices to reduce sedimentation and erosion control, would 

demonstrate the Project’s compliance with the Clean Water Act. Specific permit 

conditions, including the quantity or extent of compensatory mitigation and specific 

best management practices, would be determined by the USACE after a Project 

alternative has been selected. Field inspections of the Project would evaluate and 

verify compliance with permits and the Clean Water Act. The Project has been 

designed to span water bodies. As such, direct impacts to surface water quality 

standards from the placement of structures are not anticipated. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-7 

Executive Summary 

Treaties of the United States Government with the Leech Lake Band 

of Ojibwe 

The United States entered into a number of treaties with the Leech Lake Band of Ojibwe 

under which the LLBO retained rights to many of the resources on the LLR. All Federal 

agencies have trust obligations to assure that this Project does not infringe or negate the 

LLBO’s ability to exercise these retained treaty rights. 

Public Scoping 

Both the Power Plant Siting Act and NEPA require that agencies responsible for 

preparing environmental review documents involve the public in environmental review 

of projects. Through the scoping process, OES and RUS invited federal, state, and local 

units of government; Native American tribes; organizations; and individuals interested 

in the Project to comment on the Project proposed by the Applicants and to identify 

issues and concerns to be addressed in the EIS. 

Both OES and RUS are required to schedule at least one public meeting in the area of the 

proposed Project. The purpose of the meeting is to inform the public about the Project 

and to solicit public input into the scope of the environmental review. A “scope” is a 

determination of what needs to be assessed in the environmental review to fully inform 

decision-makers and the public about the possible impacts of a project or potential 

alternatives. 

The OES Energy Facilities Permitting Unit and RUS held public information meetings in 

Blackduck, Cass Lake, Deer River, Bemidji, and Walker in August 2008. Approximately 

120 people attended the public information meetings. In addition to the oral comments 

received at the public information meetings, more than 120 written comments were 

received by the close of the public comment period on September 30, 2008. Following 

the close of the comment period, OES staff reviewed the public comments about the 

scope of the environmental review and the rules governing the content of an EIS (site 

rule). Based upon that review, the Director of the OES issued a Scoping Decision on 

March 31, 2009. 

Proposed Action, Alternatives, and Scope of the EIS 

The Applicants propose constructing a 230 kV electric transmission line from Minnkota 

Power Cooperative’s Wilton Substation located just west of Bemidji, Minnesota, to 

Minnesota Power’s Boswell Substation in Cohasset, Minnesota, northwest of Grand 

Rapids, Minnesota. The Bemidji area includes the communities of Bagley to the west, 

Walker to the south, and Blackduck to the northeast, as well as a large portion of the 

Leech Lake Reservation. This section provides an overview of the alternatives evaluated 

in the EIS, as well as the potential impacts and mitigation measures. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-8 

Executive Summary 

The Applicants presented information on two routes in their June 4, 2008, Route Permit 

Application. Both of these routes are generally in the vicinity of U.S. Highway 2. Route 

Alternative 1, identified by the Applicants as their preferred route, generally follows the 

Great Lakes Gas Transmission Company pipeline and a 115 kV transmission line rightsof-way. Route Alternative 2, the Applicants’ Alternate Route, generally follows U.S. 

Highway 2 and the Enbridge pipeline rights-of-way. Under Minnesota Statute 216E.03, 

the EIS must evaluate alternatives proposed by the Applicants. 

The federal agencies consider both of the Applicant-proposed routes to be located 

within one study area, referred to as a “Macrocorridor” in their screening materials. The 

Applicants prepared an Alternative Evaluation Study and a Macrocorridor Study Report in 

accordance with RUS guidelines. At the request of the CNF, RUS, and LLDRM three 

additional Macrocorridors were developed by the Applicants to evaluate whether 

potentially routing along one of these corridors might merit further investigation. These 

four Macrocorridors (referred to as the Central, North, South and non-CNF) were 

identified and noticed in area newspapers and in direct mail notification to 

approximately 11,000 potentially affected landowners. 

Based on the scoping response and further analysis detailed in the Scoping 

Decision/Report, the federal agencies require that the EIS must evaluate a viable route 

alternative different from the two route alternatives originally proposed by the 

Applicants. In conjunction with the Applicants, OES staff developed 1,000-foot routes 

within each of the additional three “macrocorridors” and compiled a variety of social 

and environmental data on each of the routes. Staff from OES, LLBO, and federal 

partner agencies reviewed more detailed social and environmental information for the 

five routes (i.e., the two Applicant-proposed routes and one in each of the additional 

three macrocorridors). It was concluded that one additional route, located in the North 

macrocorridor and hereafter referred to as Route Alternative 3, should be fully 

evaluated in the EIS. This route avoids the heart of the Chippewa National Forest and 

largely avoids the Leech Lake Reservation. 

During this review process, a number of concerns related to Route Alternative 1 were 

identified by agencies participating in the environmental review. The agencies 

identified potentially significant impacts to traditional cultural, biological, and 

socioeconomic resources along this route alternative. Additionally, impacts to the “Ten 

Section” area or the Pike Bay Experimental Forest would require a Forest Plan 

Amendment. Although several flaws were identified with this route alternative, 

Minnesota Statute 216E.03, subdivision 5, requires the evaluation of all routes proposed 

by the Applicant. More information on these concerns is provided in the RUS Scoping 

Decision/Report (Appendix A) and in the public comment summary (Appendix B). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-9 

Executive Summary 

Table ES-1: Summary of Route Alternatives 

No-Build 

Alternative 

Route 

Alternative 

1 

Route 

Alternative 

2 

Route 

Alternative 

3 

Route 

Alternative 

4 

Meets Identified Purpose and 

Need for Project No Yes Yes Yes Yes 

Route Length (miles) N/A 69 68 116 70 

Transmission 

Lines N/A 18 9 91 21 

Pipelines N/A 61 48 8 54 

Existing Linear 

Features (miles) 

Highways N/A 25 60 32 34 

Length of new Corridor (miles) N/A 5.2 2.6 5.1 7.7 

New Corridor as a % of Route N/A 7.5 % 3.8 % 4.4% 11% 

Cass Lake Substation N/A New 

(4 acres) 

Expand 

(2.2 acres) N/A Expand (2.2 acres) 

Nary Breaker Station N/A 

Yes, 

Depending 

upon Route 

(2.5 acres) 

N/A N/A N/A

Wilton Substation N/A 

Add new 

Equipment; 

no expansion 

Add new 

Equipment; 

no expansion 

Add new 

Equipment; 

no expansion 

Add new 

Equipment; 

no 

expansion 

Boswell Substation N/A Expand 

(1.3 acres) 

Expand 

(1.3 acres) 

Expand 

(1.3 acres) 

Expand 

(1.3 acres) 

Transmission Line Cost 

(with Adders) ($million)1 N/A $54.5 $52.8 $91.6 $55.8 

Estimated Total Project 

Cost ($ million)1 N/A $65.4 $60.5 $94.1 $63.5 

1. Source: Lindholm, 2010.

No-Build Alternative 

Under the No-Build Alternative the Project would not be constructed. No land would 

be used for transmission or substation facilities, and there would be no changes to the 

existing environment in the Study Area. The No-Build Alternative does not meet the 

identified purpose and need for the Project. A No-Build Alternative is evaluated in 

this document in accordance with the Council on Environmental Quality NEPA 

regulations (40 CFR 1502.14) requiring review of a no-action alternative. 

Route Alternative 1 

This route, referred to as Route 1 in the Route Permit Application, is approximately 69 

miles long and generally follows the Great Lakes Gas Transmission Company pipeline 

and an 115 kV transmission line ROWs. This alternative would add equipment to the 

Wilton Substation and expand the Boswell Substation by approximately 1.3 acres to 

accommodate additional equipment. Under this alternative, a new 4-acre 230 kV 

substation would be constructed in Pike Bay Township in Cass County. Under certain
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-10 

Executive Summary 

Segment Alternatives associated with Route Alternative 1, a new breaker station may 

be constructed near the existing Nary Breaker station. There are 12 Segment 

Alternatives associated with Route Alternative 1. 

Route Alternative 2 

This route, referred to as Route 2 in the Route Permit Application, was proposed by the 

Applicants as an alternate route in their application to the Commission. This route is 

approximately 68 miles long and generally follows U.S. Highway 2 and the Enbridge 

pipeline ROWs. As with Route Alternative 1, this alternative would also entail 

additional 230 kV equipment to the Wilton Substation and would expand the Boswell 

Substation by approximately 1.3 acres to permit the addition of 230 kV equipment. 

Under this Route Alternative, the existing Cass Lake Substation would be expanded by 

approximately 2.2 acres to accommodate new 230 kV equipment. There are 11 Segment 

Alternatives associated with Route Alternative 2. 

Route Alternative 3 

This route follows existing pipeline, transmission, and road ROWs for most of its 116 

miles. The route follows a series of transmission lines and roads between the Wilton 

Substation, northeast to the Blackduck area, east and then south to Deer River, and then 

southeast to the Boswell Substation. This route avoids a major gateway to the Chippewa 

National Forest and avoids bisecting the Leech Lake Reservation. This alternative 

would include improvements to the Wilton Substation and would expand the Boswell 

Substation by approximately 1.3 acres, but no additional substations or breaker stations 

would be constructed or expanded. There are four Segment Alternatives associated 

with Route Alternative 3. 

Route Alternative 4 

This route, identified by the Applicants during the Draft EIS comment period as their 

preferred route, is a combination of Route Alternatives 1 and 2 and incorporates 

Segment Alternatives F and K. The route is approximately 69.5 miles long and 

follows Route Alternative 1 for 38.1 miles (55% of its length) and Route Alternative 2 

for 25.7 miles (37% of its length). As with Route Alternatives 1 and 2, this alternative 

would also entail adding 230 kV equipment to the Wilton Substation and would 

expand the Boswell Substation to permit the addition of 230 kV equipment. Under 

this Route Alternative, the existing Cass Lake Substation would be expanded by 

approximately 2.2 acres to accommodate new 230kV equipment. 

Route and Segment Alternatives are shown below in Figure ES-1. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

ES-11 

Executive Summary 

Figure ES-1: Route and Segment Alternative Overview Map
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-12 

Executive Summary 

Potential Impacts 

Potential direct and indirect impacts were identified and evaluated for each aspect of the 

natural and built environments potentially affected by the Project. These potential 

impacts of the Project Route Alternatives and the No-Build Alternative are summarized 

in Table ES-2, below. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

ES-13 

Executive Summary 

Table ES-2: Comparative Impacts of Route Alternatives 

Resource Route Alternative 1 and 

associated Segment 

Alternatives 

Route Alternative 2 and 

associated Segment 

Alternatives 

Route Alternative 3 and 

associated Segment 

Alternatives 

Route Alternative 4 and 

associated Segment 

Alternatives 

Treaty Trust ResourcesDirect impacts Long-term loss of an 

important gathering area for tribal members. 

Some long-term loss of gathering opportunities for tribal members. 

Minimal loss of gathering opportunities for tribal members due to avoidance of the LLR. 

Some long-term loss of gathering opportunities fotribal members.

AestheticsDirect impacts Loss of scenic resources; 

loss of trees would change view; contrast to surrounding landscape. Conversion of 580 acres of forested area. Impact to spiritual and significant cultural area of the Leech Lake Band of Ojibwe; Aniishiinaabe cultural and spirituality is tied to land and the surrounding environment so any disturbance to this visual or aesthetics of Route Alternative 1 corridor would have a direct affect to the Leech Lake People. Impacts to Ten Section management area. 

Loss of scenic resources; loss of trees would change view; contrast to surrounding landscape. Conversion of 432 acres of forested area. Alternative 2, which follows U.S. 2, would be visible to visitors and residents due to less forest cover to shield views and would be located near more recreational areas. The Route Alternative largely avoids areas of significant spiritual and cultural importance, including the portion of the Ten Section management area used for gathering and other tribal activities.

Loss of scenic resources; loss of trees would change view; contrast to surrounding landscape. Conversion of 812 acres of 

forested area. The Route Alternativelargely avoids areas of significant spiritual and cultural importance.

Loss of scenic resources; loss of trees would changview; contrast to surrounding landscape. Conversion of 575 acres oforested area. Alternative 4, which follows U.S. 2 from Cass Lake to Ball Club, would be visible to visitors and residents due to less forest cover to shield views and would be located near more recreational areas. The Route Alternative largely avoids areas of significant spiritual and cultural importance, including the portion of the Ten Section management area used fogathering and other tribal activities. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

ES-14 

Executive Summary 

Air Quality and Climate Direct Impacts Fugitive dust and vehicle 

emissions during construction. 

Fugitive dust and vehicle emissions during construction. 

Fugitive dust and vehicle emissions during construction. Alternative 3 would result in the greatest duration of construction effects due to its length. 

Fugitive dust and vehicle emissions during construction. 

Indirect Impacts Minor decrease in carbon 

sequestration potential due to loss of existing trees. 

Minor decrease in carbon sequestration potential due to loss of existing trees. 

Minor decrease in carbon sequestration potential due to loss of existing trees, although potential loss of trees and carbon sequestration is approximately twice the anticipated loss of trees and carbon sequestration potential for Route Alternatives 1, 2, or 4. 

Minor decrease in carbon sequestration potential due to loss of existing trees. 

Geology and SoilsTopography No effect. No effect. No effect. No effect. Geology No effect. No effect. No effect. No effect. 

Soils would be disturbed during construction; erosion and compaction are possible. 

Soils would be disturbed during construction; erosion and compaction are possible. 

Soils would be disturbed during construction; erosion and compaction are possible. 

Soils would be disturbed during construction; erosion and compaction are possible. 

Soils 

Temporary soil impacts from transmission line structures for entire route are 879 acres 

and long-term impacts are 3 acres. 

Temporary soil impacts from transmission line structures for entire route are 919 acres 

and long-term impacts are 3 acres. 

Temporary soil impacts from transmission line structures for entire route are 1,373acres and long-term impacts are 5 acres. 

Temporary soil impacts from transmission line structures for entire route are 904 acres and longterm impacts are 3 acres. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

ES-15 

Executive Summary 

Temporary soil impacts to LLR from transmission line structures are 618 acres and long-term impacts are 2 acres. 

Temporary soil impacts to LLR from transmission line structures are 632 acres and long-term impacts are 2 acres. 

Temporary soil impacts to LLR from transmission line structures are 4 acres and long-term impacts are 0 acres. 

Temporary soil impacts to LLR from transmission linstructures are 636 acres and long-term impacts are 2 acres. 

Temporary soil impacts to CNF from transmission line structures are 531 acres and long-term impact is 1 acre. Long-term impacts from substation construction and expansion could range up to 7.8 acres. 

Temporary soil impacts to CNF from transmission line structures are 486 acres and long-term impact is 1 acre. Long-term impacts from substation construction and expansion are 3.5 acres. 

Temporary soil impacts to CNF from transmission line structures are 837 acres and long-term impact are 3 acres. Long-term impacts from substation construction and expansion are 1.3 acres. 

Temporary soil impacts to CNF from transmission line structures are 538 acres and long-term impact is 1 acre. Long-term impacts from substation construction and expansion are 3.5 acres.

Water Resources

No major effect. If water bodies cannot be spanned, shore erosion, sedimentation, and changes in turbidity may occur. 

No major effect. If water bodies cannot be spanned, shore erosion, sedimentation, and changes in turbidity may occur. 

No major effect. If water bodies cannot be spanned, shore erosion, sedimentation, and changes in turbidity may occur. 

No major effect. If water bodies cannot be spannedshore erosion, sedimentation, and changes in turbidity may occur. 

Crosses 4 water basins and 6 water courses along entire route. 

Crosses 2 water basins and 7 water courses along entire route. 

Crosses 9 water basins and 27 water courses along entire route. 

Crosses 5 water basins and 10 water courses along entire route. 

Crosses 3 water basins and 5 water courses on the LLR. 

Crosses 1 water basins and 3 water courses on the LLR. 

Avoids the LLR. Crosses 4 water basins 

and 4 water courses on thLLR. 

Surface Water 

Crosses 4 water basins and 5 water courses on CNF. 

Crosses 2 water basins and 2 water courses on CNF. 

Crosses 8 water basins and 15 water courses on CNF. 

Crosses 4 water basins and 1 water course on CNF. 

Groundwater No major effect. No major effect. No major effect. No major effect. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

ES-16 

Executive Summary 

Floodplains

No major effect. If water bodies cannot be spanned, erosion or sedimentation may result in a loss of surrounding floodplains. 

No major effect. If water bodies cannot be spanned, erosion or sedimentation may result in a loss of surrounding floodplains. 

No major effect. If water bodies cannot be spanned, erosion or sedimentation may result in a loss of surrounding floodplains. 

No major effect. If water bodies cannot be spannederosion or sedimentation may result in a loss of surrounding floodplains. 

Direct Effects 

Possible location of 8 structures in the FEMA designated areas. 

Possible location of 4 structures in the FEMA designated areas. 

Possible location of 46 structures in the FEMA designated areas with 16 in the CNF. 

Possible location of 8 structures in the FEMA designated areas. 

Wetlands

Potential loss or conversion of wetlands. 

Potential loss or conversion of wetlands. 

Potential loss or conversion of wetlands. The highest amount of wetland type conversion would occur for Alternative 3. 

Potential loss or conversion of wetlands. 

Potential effects to NWI wetlands: temporary impacts to 83 acres, wetland conversion of 209 acres, and <1 acre of long-term impacts along entire route. 

Potential effects to NWI wetlands: temporary impacts to 59 acres, wetland conversion of 166 acres, and <1 acre of long-term impacts along entire route. 

Potential effects to NWI wetlands: temporary impacts to 101 acres, wetland conversion of 269 acres, and <1 acre of long-term impacts along entire route. 

Potential effects to NWI wetlands: temporary impacts to 91 acres, wetland conversion of 226 acres, and <1 acre of longterm impacts along entire route. 

Direct Effects 

113 structures are estimated in NWI wetlands. 

93 structures are estimated in NWI wetlands. 

120 structures are estimated in NWI wetlands. 

112 structures are estimated in NWI wetlands

Indirect Effects 

Conversion of wetland types may result in a change in wildlife species composition, diversity, and abundance. 

Conversion of wetland types may result in a change in wildlife species composition, diversity, and abundance. 

Conversion of wetland types may result in a change in wildlife species composition, diversity, and abundance. 

Conversion of wetland types may result in a change in wildlife species composition, diversity, anabundance. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

ES-17 

Executive Summary 

Biological ResourcesDirect Effects Conversion of existing 

vegetation communities (1,048 acres). Disturbance of intact diverse native plant communities. Introduction or spread of noxious weeds in cleared ROWs. Short-term impacts to wildlife from conversion of forested habitat. Long-term conversion of wildlife habitat in areas that remain cleared and increased long-term fragmentation and edge effect (5.2 miles of new corridors). Would establish a long-term ROW in canopy forest. 

Conversion of existing vegetation communities (1,018 acres). Disturbance of intact diverse native plant communities. Introduction or spread of noxious weeds in cleared ROWs. Short-term impacts to wildlife from conversion of forested habitat. Long-term conversion of wildlife habitat in areas that remain cleared and increased long-term fragmentation and edge effect (2.6 miles of new corridors). 

Conversion of existing vegetation communities (1,759 acres). Disturbance of intact diverse native plant communities. Introduction or spread of noxious weeds in cleared ROWs. Short-term impacts to wildlife from conversion of forested habitat. Long-term conversion of wildlife habitat in areas that remain cleared and increased long-term fragmentation and edge effect (5.1 miles of new 

corridors). 

Conversion of existing vegetation communities (1,064 acres). Disturbance of intact diverse native plant communities. Introduction or spread of noxious weeds in cleared ROWs. Short-term impacts to wildlife from conversion oforested habitat. Long-term conversion of wildlife habitat in areas that remain cleared and increased long-term fragmentation and edge effect (7.7 miles of new corridors).
Bemidji – Grand Rapids Transmission Line 

Final EIS 

ES-18 

Executive Summary 

Species of ConcernDirect Effects Potential for habitat 

conversion. Destruction of non-motile plant species, if located within ROW. Disturbance of intact diverse native plant communities. Affect to Ten Section Area by converting forested land and resulting in habitat conversion and edge effect. 

MnDNR and LLDRM have determined Route Alternative 1 would jeopardize the only known one-flowered broomrape population in Northern Minnesota. 

Potential for habitat conversion. Destruction of non-motile plant species, if located within ROW. Disturbance of intact diverse native plant communities. Affects periphery of Ten Section Area by converting forested land and resulting in habitat conversion and edge effect. 

Potential for habitat conversion. Destruction of non-motile plant species, if located within ROW. Disturbance of intact diverse native plant communities. 

Potential for habitat conversion. Destruction of non-motile plant species, if located within ROW. Disturbance of intact diverse native plant communities. Affects periphery of Ten Section Area by convertinforested land and resulting in habitat conversion and edge effect. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

ES-19 

Executive Summary 

Cultural Resources and Values including TCPsDirect Effects Potential loss or disturbance 

of cultural resources or sites. Total of 41 known cultural properties located within route (14 historic; 25 prehistoric; 2 multicomponent). Potential impacts on the viewshed of historical structures or landscapes. Potential to disturb unrecorded archaeological sites. Long-term loss of TCPs and locations where resources

are gathered. Impact to the vitality of the spiritual well-being of tribal residents who use TCPs. Presence of transmission line would alter cultural experience in areas identified as culturally significant, including Ten Section and Guthrie Till Plain areas. 

Potential loss or disturbance of cultural resources or sites. Total of 38 known cultural properties located within route (25 historic; 11 prehistoric; 2 multicomponent). Potential impacts on the viewshed of historical structures or landscapes. Potential to disturb unrecorded archaeological sites. Long-term loss of TCPs and locations where resourcesare gathered. Impact to the vitality of the spiritual well-being of tribal residents who use TCPs. 

 Potential loss or disturbance of cultural resources or sites. Total of 33 known cultural properties located within route (27 historic; 6 prehistoric; 0 multicomponent). Potential impacts on the viewshed of historical structures or landscapes. Potential to disturb unrecorded archaeological sites. 

Potential loss or disturbance of cultural resources or sites. Total of 19 known cultural properties located within route (8 historic; 10 prehistoric; 1 multicomponent). Potential impacts on the viewshed of historical structures or landscapes. Potential to disturb unrecorded archaeologicasites. Long-term loss of TCPs and locations where resources are gathered. Impact to the vitality of the spiritual well-being of tribal residents who use TCPs.

Land UseDirect Effects Temporary and long-term 

loss of land use by private owners. 

Temporary and long-term loss of land use by private owners. 

Temporary and long-term loss of land use by private owners. 

Temporary and long-term loss of land use by private owners. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

ES-20 

Executive Summary 

Temporary and long-term land impacts within ROW: 882 acres of which 580

acres of forested land will have long-term impacts. 

Temporary and long-term land impacts within ROW: 922 acres of which 432 acres of forested land will have long-term impacts. 

Temporary and long-term land impacts within ROW: 1,378 acres of which 812acres of forested land will have long-term impacts. 

Temporary and long-term land impacts within ROW: 907 acres of which 575 acres of forested land will have long-term impacts. 

Conversion of 4 acres for new Cass Lake substation. Additional acreage may be required for possible expansion at Nary Junction. 

Conversion of 2.2 acres for expansion of Cass Lake Substation. Acreage is owned by Otter Tail Power. 

Conversion of 2.2 acres foexpansion of Cass Lake Substation. Acreage is owned by Otter Tail Power

Total LLR temporary and long-term impacts: 620 acres; 433 acres of longterm forested land impacts. 

Total LLR temporary and long-term impacts: 634acres; 338 acres of longterm forested land impacts. 

Total LLR temporary and long-term impacts: 4 acres; 1 acre of long-term forested land impacts. 

Total LLR temporary and long-term impacts: 638 acres; 420 acres of longterm forested land impacts. 

Total CNF temporary and long-term impacts: 532acres; 389 acres of longterm forested land impacts. 

Total CNF temporary and long-term impacts: 487acres; 275 acres of longterm forested land impacts. 

Total CNF temporary and long-term impacts: 840 acres; 581 acres of longterm forested land impacts. 

Total CNF temporary and long-term impacts: 539 acres; 383 acres of longterm forested land impacts. 

Indirect Effects Potential for increased 

trespassing through creation of easements. 

Potential for increased trespassing through creation of easements. 

Potential for increased trespassing through creation of easements. 

Potential for increased trespassing through creation of easements. 

SocioeconomicsDirect Effect Short-term influx of income 

during construction and increased tax base (property taxes from the Applicant) during operation of the project. 

Short-term influx of income during construction and increased tax base (property taxes from the Applicant) during operation of the project. 

Short-term influx of income during construction and increased tax base (property taxes from the Applicant) during operation of the project. 

Short-term influx of income during construction and increased tax base (property taxes from the Applicant) during operation of the project. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

ES-21 

Executive Summary 

 Economic benefit to 

businesses and surrounding communities through increased electrical capacity and reliability. Potential decrease in property values. 3 homes located within feasible ROW evaluated; 26 homes located within 200 feet of either side of the feasible centerline evaluated. 580 acres of forest land lost 

from timber harvesting. Greatest potential for impacts to subsistence uses from conversion and fragmentation of habitat and introduction of invasive species. Potentially affects up to 664 acres of total ROW within the LLR. 

Economic benefit to businesses and surrounding communities through increased electrical capacity and reliability. Potential decrease in property values. 15 homes located within feasible ROW evaluated; 69 homes located within 200 feet of either side of the feasible centerline evaluated. 432 acres of forest land lost from timber harvesting. Moderate potential for impacts to subsistence uses from conversion and fragmentation of habitat and introduction of invasive species. Potentially affects up to 656 acres of total ROW 

within the LLR. 

Economic benefit to businesses and surrounding communities through increased electrical capacity and reliability. Potential decrease in property values. Greatest potential to directly affect residences. 25 homes located within feasible ROW evaluated; 127 homes located within 200 feet of either side of the feasible centerline evaluated.812 acres of forest land lost from timber harvesting. Least potential for impacts to subsistence uses from conversion and fragmentation of habitat and introduction of invasive species. Potentially affects up to 4 acres of total ROW within the LLR. 

Economic benefit to businesses and surrounding communities through increased electrical capacity and reliability. Potential decrease in property values. Least potential to directly affect residences. No homes located within feasible ROW evaluated; 15 homes located within 200 feet of either side of the feasible centerline evaluated. 575 acres of forest land lost from timber harvesting. Moderate potential for impacts to subsistence uses from conversion and fragmentation of habitat and introduction of invasive species. Potentially affects up to 672 acres of total ROW within the LLR. 

Indirect Effects Increased timber sales in the 

vicinity of the project during construction, but loss of future timber resources. 

Increased timber sales in the vicinity of the project during construction, but loss of future timber resources. 

Increased timber sales in the vicinity of the project during construction, but loss of future timber resources. 

Increased timber sales in the vicinity of the project during construction, but loss of future timber resources. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

ES-22 

Executive Summary 

Environmental JusticeDirect Effects Indirect Effects 

Crosses the homeland of Minority Community. Will result in long-term loss of gathering lands and temporary disruption to hunting and gathering will occur during construction. Long-term aesthetic impacts to a Minority Community. Aesthetic intrusion would alter cultural experience in areas identified as culturally significant, including Ten Section and Guthrie Till Plain areas. 

Crosses the homeland of Minority Community. Will result in long-term loss of gathering lands and temporary disruption to hunting and gathering will occur during construction. Long-term aesthetic impacts to a Minority Community. 

Largely avoids the LLR. Will result in loss of a small amount of gathering lands and temporary disruption to hunting and gathering will occur during construction. 

Crosses the homeland of Minority Community. Will result in long-term loss of gathering lands and temporary disruption to hunting and gathering will occur during constructionLong-term aesthetic impacts to a Minority Community.

Recreation and TourismDirect Effects Removal of forested land 

within the LLR and CNF. Possible location of the ROW within the Bemidji Slough or Bemidji State Game Refuge. Potential Bemidji Slough impacts: 5 acres temporarily and 675 square feet longterm. Potential Bemidji State Game Refuge impacts: 65 acres temporarily and 0.2 acres long-term. 

Removal of forested land within the LLR and CNF. Possible location of the ROW within the Bemidji State Game Refuge. Potential Bemidji State Game Refuge impacts: 124 acres temporarily and 0.3 acres long-term. 

Removal of forested land within the LLR and CNF. Possible location of the ROW within the Bemidji Slough or Bemidji State Game Refuge. Potential Bemidji Slough impacts: 4.3 acres temporarily and 561 square feet long-term. Potential Bemidji State Game Refuge impacts: 111 acres temporarily and 0.3 acres long-term. 

Removal of forested land within the LLR and CNF. Possible location of the ROW within the Bemidji Slough or Bemidji State Game Refuge. Potential Bemidji Slough impacts: 5 acres temporarily and 675 square feet long-term. Potential Bemidji State Game Refuge impacts: 65 acres temporarily and 0.2 acres long-term 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

ES-23 

Executive Summary 

Indirect Effects Changes to vegetation and 

land cover within easement may impact wildlife habitat and affect hunting areas. Creation of easements may increase the opportunities for OHV/snowmobile trails outside the CNF. Within the CNF, OHV/snowmobile trails would be identified on a forest-wide basis as connectors to other routes. It is not anticipated that any of the Route Alternatives would provide connector routes.

Unexpected noise levels (during construction) or viewshed changes may affect non-motorized recreational activities. 

Changes to vegetation and land cover within easement may impact wildlife habitat and affect hunting areas. Creation of easements may increase the opportunities for OHV/snowmobile trails outside the CNF. Within the CNF, OHV/snowmobile trails would be identified on a forest-wide basis as connectors to other routes. It is not anticipated that any of the Route Alternatives would provide connector routes.Unexpected noise levels (during construction) or viewshed changes may affect passive recreational activities. 

Changes to vegetation and land cover within easement may impact wildlife habitat and affect hunting areas. Creation of easements may increase the opportunities for OHV/snowmobile trails outside the CNF. Within the CNF, OHV/snowmobile trails would be identified on a forest-wide basis as connectors to other routes. It is not anticipated that any of the Route Alternatives would provide connector routes.

Unexpected noise levels (during construction) or viewshed changes may affect passive recreational activities. 

Changes to vegetation and land cover within easement may impact wildlife habitat and affect hunting areas. Creation of easements may increase the opportunities for OHV/snowmobile trails outside the CNF. Within the CNF, OHV/snowmobile trails would be identified on a forest-wide basis as connectors to other routes. It is not anticipated that any of the Route Alternatives would provide connector routes. Unexpected noise levels (during construction) or viewshed changes may affect passive recreationaactivities.
Bemidji – Grand Rapids Transmission Line 

Final EIS 

ES-24 

Executive Summary 

AgricultureDirect Effects Loss of agricultural land (52 

acres temporarily and 0.7 acres long-term) and prime farmland (1.3 acres longterm). Largest loss of agricultural and farmland on LLR. Potential interference with agricultural activities (maneuvering equipment around poles and aerial spraying). 

Loss of agricultural land (31 acres temporarily and 0.3 acres long-term) and prime farmland (0.7 acres longterm). Potential interference with agricultural activities (maneuvering equipment around poles and aerial spraying). 

Loss of agricultural land (119 acres temporarily and 2 acres long-term) and prime farmland (3.6 acres longterm). No affect to agricultural/farmland on LLR. 

Potential interference with agricultural activities (maneuvering equipment around poles and aerial spraying).

Loss of agricultural land (47 acres temporarily and 0.6 acres long-term) and prime farmland (0.3 acres long-term). Potential interference with agricultural activities (maneuvering equipment around poles and aerial spraying). 

Forestry

Long-term loss of forested land and timber resources. 

Long-term loss of forested land and timber resources. 

Long-term loss of forested land and timber resources. 

Long-term loss of forested land and timber resources

Conversion of about 580acres of forested area to managed shrub and grasslands along entire route; 433 acres in LLR; 389

acres in CNF. 4 acres of forest land lost for new Cass Lake substation. 

Conversion of about 432acres of forested area to managed shrub and grasslands along entire route; 336 acres in LLR; 275

acres in CNF. 

Conversion of about 812

acres of forested area to managed shrub and grasslands along entire route; 1 acre in LLR; 581acres in CNF. 

Conversion of about 575 acres of forested area to managed shrub and grasslands along entire route; 420 acres in LLR; 383 acres in CNF. 

Lost opportunity for silvicultural research in Pike Bay Experimental Forest. 

Direct Effects 

Affect to Ten Section Area by converting forested land and result in loss of old growth. 

Affect to periphery of Ten 

Section Area by converting forested land and result in loss of old growth. 

Affect to periphery of Ten Section Area by convertinforested land and result in loss of old growth. 

Mining No major effect. No major effect. No major effect. No major effect. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

ES-25 

Executive Summary 

Community Services

No major effect. No major effect. No major effect. No major effect. 

Utility SystemsDirect Effects Potential interference with 

omnidirectional and unidirectional antenna, resulting in TV and radio interference. Electrical interference on underground pipelines. 

Potential interference with omnidirectional and unidirectional antenna, resulting in TV and radio interference. Electrical interference on underground pipelines. 

Potential interference with omnidirectional and unidirectional antenna, resulting in TV and radio interference. Electrical interference on underground pipelines. 

Potential interference with omnidirectional and unidirectional antenna, resulting in TV and radio interference. Electrical interference on underground pipelines.

Traffic and TransportationDirect Effects Short-term road traffic and 

rail delays during construction. Electrical interference to railroads. 

Short-term road traffic and rail delays during construction. Electrical interference to railroads. 

Short-term road traffic and rail delays during construction. Electrical interference to railroads. 

Short-term road traffic and rail delays during construction. Electrical interference to railroads.

Indirect Effects Loss of living snow fences 

along highways, resulting in snow drift for drivers. Follows 25 miles of existing highway ROW. Potential conflicts with future roadway expansion. 

Loss of living snow fences along highways, resulting in snow drift for drivers. Follows 60 miles of existing highway ROW. Potential conflicts with future roadway expansion. 

Loss of living snow fences along highways, resulting in snow drift for drivers. Follows 32 miles of existing highway ROW. Potential conflicts with future roadway expansion. 

Loss of living snow fences along highways, resulting in snow drift for drivers. Follows 34 miles of existing highway ROW. Potential conflicts with future roadway expansion

Safety and Health

No effect. No effect. No effect. No effect. 

NoiseDirect Effects Noise generated from 

operation of construction equipment. 

Noise generated from operation of construction equipment. 

Noise generated from operation of construction equipment. 

Noise generated from operation of construction equipment. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-26 

Executive Summary 

Mitigation Measures for Potential Impacts 

The HVTL route permit would require the implementation of mitigation measures to 

prevent or minimize both short-term and long-term impacts to resources from 

construction and operation of the Project. Additional mitigation measures were agreed 

to by the Applicants in the Application for a Route Permit, submitted in June 2008. 

Mitigation measures for each resource area are summarized in Table ES-3, below. 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 

Irreversible and Irretrievable Commitment of Resources 

Irreversible commitment of resources refers to the loss of future options for resource 

development or management, especially of nonrenewable resources such as cultural 

resources. 

The construction of the Project would require the irretrievable commitment of nonrecyclable building materials and fuel consumed by construction equipment. Under 

certain Route Alternatives and Route Segments, as identified in applicable sections of 

the EIS, the Project would require the irreversible and irretrievable commitment of old 

growth forest, including the Ten Section area and Pike Bay Experimental Forest. In 

addition, Route Alternative 1 could result in the loss of the Orabanche uniflora species, 

for which an incidental take permit from the USFWS may be required. The loss of these 

resources would result in a loss of traditional gathering opportunities for the Leech 

Lake Band of Ojibwe.
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-27 

Executive Summary 

Table ES-3: Summary of Mitigation Measures 

Resource Mitigation Measures 

Limits imposed in the HVTL permit for the removal of vegetation and trees. 

HVTL permit requirements for cleanup of construction waste. 

HVTL permit requirement to span water bodies when possible. 

ROW, access roads, temporary work spaces, and other private lands restoration required by the 

HVTL permit and as agreed upon in the vegetative management plan. 

Communication with landowners regarding specific pole placement. 

Use of uniform structure designs to the extent practicable that blend into the natural 

environment (i.e., wooden structures). 

Placement of structures to minimize their visibility from highways, waterways, and trail 

crossings.

Limit number and placement of construction staging areas. Use Enbridge cleared ROW when

possible. 

Cross water bodies in the same location as existing transmission lines. 

Double-circuit the Project with existing transmission or distribution lines to the extent 

practicable and consistent with engineering or system reliability criteria. 

Parallel existing transmission line and pipeline easement to the extent possible. 

Reduce height of the structures, as feasible, to minimize impacts within areas of high scenic 

importance. Use of H-frame structures for the Mississippi River crossing near Ball Club would 

have a lower profile than single pole structures. 

Mitigation specific to maintaining Scenic Integrity Objectives on CNF lands, including 

planting to reduce visibility of the corridor from roadways, maintaining a “no mow” zone 

at the edge of the ROW, and removal of mitigation vegetation from outside the ROW 

while retaining the appearance of remaining plants. 

Special landscaping/plantings will be considered at trails and other recreational uses 

where aesthetics can be improved. 

Aesthetics 

Assist CNF and LLDRM with dump site cleanup in areas of concern. 

Use of Best Management Practices (BMPs) to control fugitive dust during construction: monitor 

dust generation; operate vehicles at reduced speeds; and use of water and dust abatement 

methods. 

Maintain construction vehicles consistent with EPA requirements to use ULSD fuel in all 

on/off road construction equipment. 

Limit burning of vegetative and construction debris for the entire project. Use alternative 

methods such as chipping the debris for mulching, for use as a fuel source, or other uses. 

No burning of slash or construction piles on or near the boundaries of the Leech Lake 

Reservation, in order to reduce the potential for Black Carbon and other emissions, absent a 

burning permit from the appropriate authorities. 

Restoration of the natural landscape would commence shortly upon cessation of construction 

activities, as is typically required as a condition of the HVTL permits issued by the Commission. 

Air Quality and 

Climate 

Decreases in terrestrial carbon sequestration from the clearing of ROW could be 

substantially offset by the re-planting of new growth vegetation. 

HVTL permit requirement to re-grade areas disturbed to construction to reflect topography 

existing before construction. 

Avoid disturbance of soils and excavation in steeply sloped areas. 

Soil and Geology 

Implementation of Soil Erosion and Sediment Control Plan, required by the HVTL permit. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-28 

Executive Summary 

Resource Mitigation Measures 

Development of BMPs under a Storm Water Pollution Prevention Plan (SWPPP), including 

installation of silt fencing, weed-free straw bales or ditch blocks and/or covering bare soils with 

weed-free mulch, plastic sheeting, or fiber rolls to protect drainage ways and streams from 

sediment runoff from exposed soils.

Restore compacted soils to their native state through tillage operations. 

Limit setup and staging sites to previously disturbed areas to the extent practicable. 

Identification of wet organic soils through mapping and, if necessary on-site investigations and 

soil borings. 

To the extent practicable, complete construction in the wet organic soils when the ground is 

frozen. 

Develop procedures for the proper storage and disposal of all hazardous and non-hazardous 

wastes generated during construction. 

Use controlled staging areas for refueling and hazardous material loading/unloading. 

Revegetate all disturbed areas once construction is complete. Seed mixes could be specified 

based upon site characteristics and in accordance with regulatory permits. 

If topsoil is removed from the CNF, which may affect surficial topography, it must be 

salvaged and reused in accordance with the 2004 Forest Plan. 

In the event that previously contaminated soils are discovered during construction, the 

Applicants could stop work immediately, contact the appropriate state or tribal agency, and 

consult with the agency with respect to an acceptable plan of action. 

HVTL permit requirement to span all water bodies to the extent possible. 

Plant or seed non-agricultural areas disturbed by transmission line structures to prevent runoff. 

Ensure that native seed mixes from the plants already indigenous to the immediate area of 

disturbance are used for the seeding. 

HVTL permit could require the Project to co-locate with existing transmission facilities along 

certain segments of a permitted route. 

Development of BMPs under a SWPPP or Section 404 permit, including location of structures 

and disturbed areas away from water bodies; location of fueling activities and fuel and chemical 

storage away from water bodies; installation of sediment and erosion control; use of turbidity 

control methods; spread topsoil and seed in a timely manner; avoid use of fertilizer, pesticides, 

or herbicides near water bodies; implement procedures to minimize and control inadvertent fluid 

returns during horizontal direction drilling (if used). 

Compensatory mitigation if required under the Section 404 permit could include the restoration, 

establishment, enhancement, or preservation of wetlands or other aquatic resources to off-set 

Project impacts. 

Water Resources 

The license to cross state lands and public waters issued by MnDNR may require 

adherence to MnDNR invasive species standards, restriction of the use of certain 

pesticides, use of native species for revegetation, avoidance of in-stream work during 

fish spawning times, and creation of access roads to state lands if they become isolated 

as a result of the Project. 

HVTL permit requirement to return floodplain contours to their pre-construction profile if 

disturbed during construction. 

Floodplains 

HVTL permit requirement to span all water bodies and associated floodplains to the extent 

possible. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-29 

Executive Summary 

Resource Mitigation Measures 

Plant or seed non-agricultural areas disturbed by transmission line structures to prevent runoff. 

Use native seed mixes from the indigenous plants and plant indigenous plants located in the 

immediate disturbed soil area; ensure seeding and/or plantings are done in a time congruent 

with seeding and growth of the area, not during a time that would preclude germination or 

rooting. 

Use construction techniques to minimize run-off into floodplains during construction. 

HVTL permit requirement to span wetlands to the extent possible. 

Development of BMPs under a SWPPP, NPDES permit, License to Cross Public Waters permit, 

Public Waters work permit, Section 404 Clean Water Act permit, and Section 10 permit, 

including location of fueling activities and fuel and chemical storage away from water bodies; 

installation of sediment and erosion control; use of turbidity control methods; spreading of 

topsoil and seed in a timely manner; avoiding use of fertilizer, pesticides, or herbicides near 

wetlands; implementing procedures to minimize and control inadvertent fluid returns during 

horizontal direction drilling (if used). 

Schedule construction during frozen ground conditions. 

Access wetlands through the shortest route resulting in the least amount of physical impact to 

the wetland during construction. 

Assemble structures on upland areas before transporting into wetlands. 

Use of construction mats and specially designed all terrain vehicles to minimize impacts within 

wetlands when construction during winter (frozen) months is not possible. 

Wetlands 

Restore wetlands as required by the USACE St. Paul District to replace wetland functions and 

values lost due to regulated activities pursuant to Section 404 of the Clean Water Act and St. 

Paul District Policy for Wetland Compensatory Mitigation in Minnesota, and in concert with other 

district policies and guidance. 

Reseed disturbed areas following construction with a LLDRM/CNF/MnDNR approved native 

species seed mix to restore native vegetation cover. Seed mix will be developed in conjunction 

with appropriate resource agencies taking into consideration culturally important species. 

Develop a LLDRM/CNF/MnAg approved noxious weed management program, including a 

noxious weed and vegetation management plan. 

Conduct a field review of ROW and construction staging sites prior to construction to identify 

areas that contain noxious weeds. Construction equipment in these areas should be 

avoided or cleared of noxious weeds prior to construction as feasible. 

Power-wash or manually remove material from construction vehicles prior to the start of 

construction and if equipment has traveled from an area contaminated by noxious weeds to an 

uncontaminated area. 

Siting the Project within or adjacent to existing ROWs to minimize impacts to wildlife habitat. 

Limit clearing and maintenance of the ROW within previously forested areas to the extent 

practicable. 

Install marked transmission line shield wires to the extent practicable within major avian flyways. 

Develop an Avian Mitigation Plan (AMP). 

Biological 

Resources 

Nesting platforms on Project structures for eagles and osprey will be provided in 

designated areas. 

Placement of the ROW within the 1,000-foot-wide route to avoid known species of concern, 

active nesting locations, and active breeding locations. 

Species of 

Concern 

Conduct ROW clearing outside of the breeding season. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-30 

Executive Summary 

Resource Mitigation Measures 

Notify appropriate agencies if previously unknown nesting/breeding sites are identified during 

construction. 

If taking of a species occurs, compensatory mitigation may include funding of state 

acquisition of certain sites, funding survey work, and/or funding habitat research. 

Refrain from construction and logging within 0.3 mile of active Northern goshawk nests 

during breeding season. 

Avoid identified archaeological and historic resources through adjustment of the ROW within the 

selected 1,000-foot-wide route. 

Use single pole structures within the city of Cass Lake to minimize visual and aesthetic 

impacts to the viewshed of historical properties.

Implement BMPs for water resources (see above) to minimize potential effects to wild rice. 

Mitigation on CNF lands: 

The CNF will work with LLDRM and the Applicants to develop, fund and implement a 

program to assess suitable mitigation and contingency sites; develop, fund, and 

implement establishment of mitigation sites; and implement adaptive management as 

needed to achieve site-specific goals. 

The CNF will develop mitigation criteria in conjunction with the LLDRM with input from 

the tribal community in a form and location(s) acceptable to the LLDRM. 

Suitable mitigation, and locations for these projects, will be identified prior to the 

installation of the 230kV transmission line; and these mitigation projects must be 

initiated within five years of the initiation of transmission line construction. 

If suitable mitigation projects or locations for these projects cannot be identified on 

areas already approved through the NEPA, the CNF will initiate NEPA on additional 

locations within one year of the completion of the transmission line construction on the 

CNF. 

The CNF will work with the Applicants to find a means of meeting the financial, logistical, 

and staffing requirements to make the mitigation successful. 

Cultural 

Resources 

Mitigation on CNF lands will be in the form of providing for traditional gathering 

opportunities and products. Mitigation projects will be deemed to be successful when 

determined by the CNF in collaboration with the LLDRM on an annual basis. Projects 

that have been identified include: 

• Blueberry management, consisting of intensive and moderate enhancement on no 

less than 800 acres by brushing, burning and/ or pine thinning. This project would 

include establishment of harvestable blueberry and adaptive management as needed 

to achieve site-specific goals. 

• Sugar Maple/basswood ecosystem Management, consisting of protection or 

enhancement of no less than 200 acres by using methods including, but not limited 

to, creating single or few-tree openings, single tree girdling, and, as necessary, deer 

enclosures. This project would include establishment of sugar bush characteristics, 

and adaptive management as needed to achieve site-specific goals. 

• Sweet grass Management, consisting of plantings in openings of no less than 10 

acres. This project requires researching methods of propagation, acquiring local 

seeds or plants, and maintaining suitable openings for habitat. Some sweet grass 

may be maintained in intensively managed plots while some will be maintained in 

more natural locations and densities. This project would include establishment of 

harvestable sweet grass and adaptive management as needed to achieve sitespecific goals. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-31 

Executive Summary 

Resource Mitigation Measures 

• Berry patch Management, consisting of protection or enhancement on no less than 

35 acres of multiple species of fruiting shrubs and vines. Management would 

consist of but not be limited to establishing and maintaining areas suitable for 

traditional harvesting of berries. This project would include establishment of 

harvestable diverse traditional fruits and adaptive management as needed to achieve 

site-specific goals. 

Co-locate the Project along existing ROWs, including highways, railways, existing transmission 

lines, and pipelines. 

Communicate with MnDNR LLDRM, and CNF to identify and avoid sensitive forested or open 

areas. 

Reseed state and federal forested land with a seed mix recommended by the appropriate 

agency’s management. Seed mix will be developed in conjunction with appropriate resource 

agencies (LLDRM, CNF, MnDNR) taking into consideration culturally important species. 

Limit construction staging and lay-down areas to previously disturbed areas.

Use the minimum necessary width and length for transmission line access roads. 

Communicate with private land owners regarding exact placement of structures and disturbed 

areas. 

Adjust conductor spans to avoid sensitive land use areas.

Limit construction activities to the ROW, unless access permission is obtained from adjacent 

landowners. 

Land Use 

Repair or replace fences, gates, and similar improvements that are removed or damaged during 

Project construction. 

Communicate with landowners regarding exact placement of structures and disturbed areas. 

Minimize house displacement through flexibility in the route alignment. 

Use the minimum necessary width and length for transmission line access roads. 

Limit construction activities to the ROW, unless access permission is obtained from adjacent 

landowners. 

Easement payments to landowners are required to compensate landowners for loss of use of 

the utility easement on their property. 

Co-locate the Project along existing ROWs, including highways, railways, existing transmission 

lines, and pipelines, to avoid crossing additional, undisturbed properties and affecting property 

values. 

Socioeconomics 

Employ, through participating agreements or contract use, Leech Lake Band Members to 

the maximum extent possible on all aspects of the project considering the TERO (Tribal 

Employment Rights Office) ordinance. Use LLBO temporary employment program when 

practical. 

Communicate with private landowners regarding exact placement of structures and disturbed 

areas. 

The Applicants could develop mitigation measures in conjunction with the LLDRM for 

loss of traditional gathering opportunities on all lands not covered by federal mitigation.

Environmental 

Justice 

To prevent long-term disruption to hunting and gathering resources, the HVTL permit would 

require restoration of the rights-of-way, temporary work spaces, access roads, and other lands 

affected by constructions. The HVTL permit could require the Applicants to work with the 

MnDNR, LLDRM, CNF, landowners, and local wildlife management programs to restore and 

maintain the rights-of-way to provide a useful and functional habitat for plants, nesting birds, 

small animals, and migrating animals to minimize habitat fragmentation. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-32 

Executive Summary 

Resource Mitigation Measures 

The Applicants will work with the LLDRM and LLBO members to allow them to collect 

and transplant (in whole or in part) traditionally important plants from the entire ROW 

before construction. A communication plan will be developed that will provide LLBO 

members clear and timely information as to when ROW (on CNF-owned land) would not 

be available for gathering activities (which may include transporting plants of concern) 

because of construction. Information will be presented to LLDRM to provide at LIC 

meetings, in the local newspaper, on the LLBO website, etc. 

Applicants will work to provide opportunities including, but not limited to, contracts-forservice to the LLDRM Plant Resource Department to conduct long-term monitoring and 

management of the HVTL ROW on the LLR to reduce non-native invasive species and 

enhance native, traditionally important plants. 

Span water bodies, wetlands, and floodplains to the extent possible, to minimize effects on wild 

rice resources. 

Co-locating the Project along existing ROWs, including highways, railways, existing 

transmission lines, and pipelines, to avoid previously undisturbed recreation areas and wildlife 

habitat. 

Communicate with private landowners and resource management agencies regarding exact 

placement of structures and disturbed areas. 

Placement of barriers and signs at or near road crossings to limit unauthorized off-highway 

vehicle (OHV) or other vehicle traffic on ROWs. 

Conduct construction at water access points during winter months, when use of such areas for 

recreation tourism is minimal, to the extent practicable. 

Align the Project ROW perpendicular rather than parallel to existing trails to the extent 

practicable to minimize impacts to recreation trails. 

Post signs during construction to provide residents and visitors with advance notice of what 

recreational activities may be affected during construction. 

Recreation and 

Tourism 

Provide alternate routes for recreation, where possible. 

HVTL permit required Agricultural Mitigation Plan. 

Communicate with private landowners regarding placement of structures and disturbed areas to 

minimize effects on farming operations. 

Co-locating the Project along existing ROWs, including highways, railways, existing 

transmission lines, and pipelines, to avoid previously undisturbed agricultural land. 

Use of a single pole structure for placement on agricultural land if placement of H-frame 

structures cannot be sited to minimize impacts to farming operations.

Compensate landowners for crop damage and soil compaction that occurs during Project 

construction. 

Agriculture 

HVTL permit requires restoration of ROW and disturbed areas, including restoration of 

compacted soils per the Agricultural Impact Mitigation Plan. 

Limits imposed in the HVTL permit for the removal of vegetation and trees. 

Limits imposed in the HVTL permit for the creation of temporary easements for access roads 

and construction/staging areas. The HVTL permit could require that these areas be selected to 

minimize tree removal. 

Plant tree seedlings as appropriate to restore wooded temporary work areas not within 

the Project’s permanent ROW.

Forestry 

Conduct construction activities on CNF lands in accordance with the Forest-Wide Management 

Directions, as provided in the 2004 Final Forest Plan. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-33 

Executive Summary 

Resource Mitigation Measures 

Offer timber harvested from the Project to the local community for use as firewood. Applicants 

are encouraged to provide timber harvested from the Project to the Leech Lake Band of 

Ojibwe. Specific dropsite locations for wood placement will be identified in conjunction 

with LLBO. Wood left at dropsites should be placed in piles, easily accessible for 

firewood gatherers.

Mining No mitigation measures identified. 

Community 

Services No mitigation measures identified. 

Proper maintenance, preventative maintenance, and selection of hardware for the transmission 

line to reduce interference and utility interruption. 

HVTL permit condition requiring the correction of interference to communication systems that 

the transmission line causes or creates. 

Modifying receiving antennae to correct radio interference. 

Detune transmission line structures if necessary to eliminate interference with AM radio 

broadcast stations.

Design and place structures away from AM radio antenna to avoid blocking/ interference. 

Communicate with local radio broadcasting stations to confirm that blocking interference does 

not occur due to structure placement. 

Modification or replacement of antenna or amplifier for residents that experience TV signal 

interference. 

Reduction of AC interference on pipelines through reducing the impedance of the transmission 

structure grounds, grounding the pipeline in conjunction with de-couplers, burying gradient 

control wires along the pipeline or ground mats under aboveground facilities (such as at valves), 

and the use of dead fronts at test stations. 

Conduct computer modeling of AC interference to ensure that property mitigation is designed 

and installed prior to energizing the transmission line. 

Schedule planned service disruptions that are necessary during construction activities with the 

affected owners of existing transmission lines. Provide advance notice of service disruption to 

electric customers. 

Conduct computer modeling to ensure a proper safe distance between the Project and 

pipeline is maintained to reduce the potential for ignition during a simultaneous failure 

on both lines. 

Use a one-call utility locator service to identify existing utility lines prior to construction. 

Utility Systems 

Ensure that utility repair crews are present or on-call during construction activities to respond to 

unplanned incidents that may result in an interruption to electric service. 

Construct transmission line in accordance with National Electric Safety Code (NESC) guidelines 

for the required clearances between transmission lines and transportation structures. 

HVTL permit requirement to comply with MnDOT and all applicable road authorities’ 

management standard and policies, including written notice of construction to MnDOT and 

applicable road authorities. 

HVTL permit requirement to restore the ROW, temporary work spaces, access roads, 

abandoned ROW, and other lands affected during construction, including living snow fences. 

File a “Notice of Proposed Construction of Alteration” with the FAA and provide an opportunity 

for the FAA to comment about compatibility of the Project with airport operations. 

Traffic and 

Transportation 

Obtain MnDOT and county permits as applicable for transmission line crossings of roadways. 

Use of ROW along the National Highway System requires approval of the Federal Highway 

Administration. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

ES-34 

Executive Summary 

Resource Mitigation Measures 

Implement traffic control measures during construction, which could include flag persons, 

barriers, and flashing lights. 

Install temporary wood pole “guard structures” to safeguard the public and construction workers 

during removal of existing conductors or stringing of new overhead conductors over highways. 

Grounding tracks and communication cables on existing rail lines to prevent interference. 

Use of taller structures where the Project crosses the railroad to increase clearance between 

passing trains and conductors. 

Consolidate the Project with existing transmission line to reduce the number of railroad 

crossings. 

Use BMPs to minimize the potential for spills or leaks from equipment during construction, 

including frequent inspections of equipment; requiring portable spill containment kits for 

construction equipment; ensuring that equipment operations are present at the nozzle at all 

times when fueling is in progress; and prohibiting the refueling of equipment in wetlands. 

Use of protective devices (e.g., breakers and relays) that would de-energize the transmission 

line in the event of an emergency. 

Use of fences at substations to prevent access. 

Construct the Project in accordance with NESC standards regarding clearance, grounding, utility 

crossing, strength of materials, and ROW widths. 

Ground metal buildings, fences, and other large, permanent conductive objects in close 

proximity or parallel to the line to prevent electric field discharge. 

Minimize the length of the transmission line that parallels or is co-located with distribution of 

local service conductors to minimize the potential for stray voltage. 

Safety and Health 

Educating local livestock operations about techniques to reduce the potential for insulated 

electric fences to pick up an induced charge from the transmission line. 

HVTL permit requirement for the Project to meet Minnesota noise standards. 

Limit construction to daytime work hours. 

Noise Equip heavy equipment with sound attenuation devices, such as mufflers. 

Minimize noise impacts from substation through design, including setbacks from sensitive noise 

receptors, layout and landscaping choices, and use of low noise transformers. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

1 

1. Introduction 

1. Introduction 

Otter Tail Power Company, Minnesota Power, and Minnkota Power Cooperative 

(Applicants) propose to construct a 230 kilovolt (kV) transmission line between the 

Wilton Substation, located west of Bemidji, Minnesota, and the Boswell Substation in 

Cohasset, Minnesota as well as upgrades to both the Wilton and Boswell substations 

(Project). Depending upon the route selected, the Project may also expand the existing 

Cass Lake Substation or construct a new substation in the Cass Lake area. 

High voltage transmission lines constructed in Minnesota require a route permit from 

the Minnesota Public Utilities Commission (Commission). The route permitting process 

is governed by Minnesota Rules part 7850. The Applicants made a joint application to 

the Commission for a Route Permit for the Project. As part of the permitting process for 

a high voltage transmission line, the Minnesota Department of Commerce Office of 

Energy Security (OES) prepares an Environmental Impact Statement (EIS) on the Project. 

The Route Permit application, actions by the Commission, and certain procedural 

documents related to the Minnesota route permitting process may be accessed at 

http://energyfacilities.puc.state.mn.us/Docket.html?Id=19344 and on the Commission’s 

eDockets website available on the Commission's website at 

http://www.puc.state.mn.us/. Click on the "Search eDockets" button, then enter the 

year "07" and the sequence number "1327." 

Minnkota Power Cooperative has approached the United States Department of 

Agriculture Rural Utilities Service (RUS) for financial assistance to construct the Project. 

RUS has determined that the agency’s determination of whether to finance the Project 

would constitute a major federal action that may have a significant impact upon the 

environment within the context of the National Environmental Policy Act of 1969 

(NEPA). RUS serves as the lead federal agency for the NEPA environmental review of 

the Project. 

As co-lead agencies OES and RUS prepared this EIS in compliance with the 

requirements of NEPA and the Council on Environmental Quality regulations for 

implementing NEPA (40 CFR 1500 -1508). RUS must also meet treaty and trust 

obligations of the Federal Government to the Leech Lake Band of Ojibwe (LLBO). This 

EIS was prepared to meet the following key objectives: 

• Identify and assess potential impacts on the natural and human environment 

that would result from the Project; 

• Identify and assess the potential impacts of the Project on the Federal Treaties 

and Trust Obligation to the Leech Lake Band of Ojibwe; 

• Describe and evaluate reasonable alternatives, including a No-Build alternative, 

to the Project that would avoid or minimize adverse effects to the environment; 

and 

• Identify specific mitigation measures to minimize environmental impacts. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

2 

1. Introduction 

 

In addition to the co-lead agencies, the U.S. Forest Service (USFS) Chippewa National 

Forest (CNF), the U.S. Army Corps of Engineers (USACE), the Leech Lake Division of 

Resource Management (DRM), and the Leech Lake Band of Ojibwe Indians (LLBO) 

agreed to assist RUS as cooperating agencies in preparing this EIS. 

The Purpose and Need for the Project is described in Section 1.1. The Regulatory 

environment within which the Project is proposed is described in Section 1.2. The role of 

the EIS in each agency’s decision is described in Section 1.3. 

1.1. Project Purpose and Need 

The Applicants propose to construct and operate the Project to meet projected future 

electric demand and to maintain electric transmission reliability standards in accordance 

with the requirements of the North American Reliability Council (NERC). The Project 

would also facilitate the addition of new generation sources in the region by increasing 

the transfer of additional capacity from the North Dakota Export boundary to the Twin 

Cities metropolitan area. At the time of this EIS, there are no specific generation projects 

and therefore the assessment of the impacts of new generation is not included in this 

EIS. 

NERC is the international regulatory authority for reliability of the bulk power system in 

North America. The United States Federal Energy Regulatory Commission has granted 

NERC the legal authority to enforce Reliability Standards with all users, owners, and 

operators of the bulk power system in the United States, and made compliance with 

those standards mandatory and enforceable. 

The need for improvements to maintain electric transmission reliability in the Bemidji 

area, as well as the larger northwestern Minnesota and eastern North Dakota region has 

been the subject of several studies since 2002. These studies are summarized in the 

Alternative Evaluation Study prepared by RUS (see Section 1.2) and in the Environmental 

Report prepared for the Project by OES. 

The Bemidji area (shown in Figure 1-1) includes the communities of Bagley to the west, 

Walker to the south, and Blackduck to the northeast, as well as a large portion of the 

Leech Lake Reservation. In addition to meeting the future needs of the Bemidji area, the 

Project is intended to maintain regional transmission reliability for the larger 

northwestern Minnesota and eastern North Dakota region. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

3 

1. Introduction 

Figure 1-1: Bemidji Area 

The Bemidji area is currently served by three transmission lines (the Winger–Wilton 230 

kV line, the Winger-Bagley-Solway-Wilton 115 kV line, and the Badoura-Akely-BemidjiWilton 115 kV line) and one generator (Otter Tail Power’s 40 megawatt [MW] Solway 

Generating Station). 

The area is susceptible to low voltage conditions if the Winger–Wilton 230 kV 

transmission line is out of service during winter peak load conditions (Office of Energy 

Security, 2009). The electric power demand in the Bemidji area is growing at a rate of 

approximately 2 percent per year (Office of Energy Security, 2009). Although interim 

measures to improve the electric transmission system have been taken, such as adding 

voltage support, the peak load is anticipated to reach 296 MW by the winter of 2011-

2012, or approximately 135 percent of the system’s maximum load-serving capability of 

220 MW (Office of Energy Security, 2009). The Applicants estimate peak load to reach 

approximately 360 MW, or 164 percent of the system’s maximum load serving capacity, 

by winter 2022-2023 (Office of Energy Security, 2009). Without improvements to 

address this deficit, the area would be in a situation of local load-serving inadequacy, 

meaning that in the event of the loss of local transmission capability, the area could be 

subject to brownouts or blackouts. 

Portions of the Red River Valley and eastern North Dakota have been identified as areas 

for the potential development of wind energy generation sources. Although the Project 

would facilitate the addition of new generation sources in the region, specific 

generation, wind or otherwise, are not associated with this Project. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

4 

1. Introduction 

1.2. Regulatory Framework 

This section summarizes principle federal and state regulations affecting the permitting 

process and the required environmental documentation for the Project. The Project 

would be subject to additional federal, state, and local regulations and permit conditions 

identified in Section 6. 

1.2.1. National Environmental Policy Act 

NEPA requires federal agencies to integrate environmental values in their decisionmaking processes by considering the environmental impacts of, and reasonable 

alternatives to, their proposed actions. For major federal actions that have the potential 

to cause significant adverse impacts on the environment, NEPA requires agencies 

undertaking the action to prepare an EIS. 

RUS has determined that providing financial assistance for the construction and 

operation of the Project constitutes a major federal action that may significantly affect 

the quality of the natural and human environment. Therefore, the EIS process is 

underway in accordance with 7 CFR 1794 Subpart G - Procedure for Environmental 

Impact Statement. 

1.2.2. Treaties of the United States Government with the Leech 

Lake Band of Ojibwe 

The United States entered into a number of treaties with the Leech Lake Band of Ojibwe 

under which the LLBO retained rights to many of the resources on the LLR. All Federal 

agencies have trust obligations to assure that this Project does not infringe or negate the 

LLBO’s ability to exercise these retained treaty rights. 

1.2.3. Tribal Sovereignty 

The LLBO retains sovereignty over lands within their reservation boundaries. The 

sovereignty applies to all lands within the reservation boundaries, regardless of land 

ownership. 

Only Congress may decide to abandon the status of lands considered Indian country. 

Settlement by non-Indians does not withdraw land from Indian country status. Even 

land owned in fee simple by non-Indians as well as towns incorporated by nonIndians are still within Indian country if they are within the boundaries of a 

reservation or a dependent Indian community. (Minnesota House Research, 2007) 

The Applicants have requested that the Leech Lake Reservation Tribal Council (RTC) 

permit the Project to cross the proclamation boundaries of the Leech Lake 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

5 

1. Introduction 

Reservation. The Applicants have designed all of the Route and Segment 

Alternatives to avoid crossing on or over tribal trust land (Otter Tail Power et al., 

2008a). The Tribe retains treaty rights for all lands, regardless of land ownership or 

management, within the LLR boundaries. The LLBO is responsible for issuing the 

appropriate approval and authorizations for activities to cross lands upon which it 

retains treaty rights and easements or authorizations for activities on lands under its 

jurisdiction. Not all land inside the LLR boundaries is managed by the Tribe, but 

rather includes a patchwork of multiple owners and managers, including tribal trust 

land, tribal fee land, state land, federal land, county land, and private ownership. 

1.2.4. Section 106 of the National Historic Preservation Act 

Section 106 of the National Historic Preservation Act (NHPA), 16 U.S.C. § 470f, requires 

federal agencies to take into account the effect of their undertakings on historic 

properties and to provide the Advisory Council on Historic Preservation (ACHP) with a 

reasonable opportunity to comment on such undertakings. This federal statutory 

requirement is implemented by a regulation, “Protection of Historic Properties” (36 CFR 

Part 800), promulgated by the ACHP. RUS may provide financial assistance for the 

construction and operation of the Project, thereby making it an undertaking subject to 

review under Section 106 and its implementing regulations. 

Along with RUS, two other agencies have a compliance responsibility under Section 106 

for the Project. The USACE may issue a permit under Section 404 of the Clean Water 

Act for the Project, thereby making it an undertaking subject to review under Section 106 

and its implementing regulation. In addition, the CNF is considering a special use 

permit to construct and operate the Project on NFS lands. Issuance of such a permit is 

an undertaking subject to review under Section 106 and its implementing regulation. 

In accordance with 36 CFR § 800.2(a)(2), RUS, USACE, and CNF may designate a lead 

agency for the purposes of review under Section 106. The lead agency shall act on 

behalf of all of the agencies, fulfilling their respective responsibilities under Section 106 

and its implementing regulation. 

Pursuant to 36 CFR § 800.8(a), federal agencies are encouraged to coordinate compliance 

with Section 106 and its implementing regulation with the steps taken to meet the 

requirements of NEPA. In doing so, RUS is conducting public participation, analysis 

and review in such a way that the purposes of NEPA and Section 106 of NHPA are met. 

The analyses and review presented in this EIS have been developed to enable RUS to 

identify historic properties and resolve any adverse effects to them. In addition, RUS is 

using its NEPA public involvement procedures to satisfy the public participation 

requirement of Section 106 pursuant to 36 CFR § 800.2(d). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

6 

1. Introduction 

1.2.5. Clean Water Act 

Clean Water Act Section 404 authorization is required for the Project, because its 

construction would require discharge of dredged and/or fill material into waters of the 

United States. As a cooperating agency in preparation of this EIS, and the agency 

responsible for determining whether to issue a permit for wetland impacts associated 

with the Project, it is the USACE’s intention to utilize and incorporate the EIS as part of 

its review of the Project. Receipt of a Section 404 permit and adherence to the terms 

and conditions of the permit, including any associated compensatory mitigation and 

best management practices to reduce sedimentation and erosion control, would 

demonstrate the Project’s compliance with the Clean Water Act. Specific permit 

conditions, including the quantity or extent of compensatory mitigation and specific 

best management practices, would be determined by the USACE after a Project 

alternative has been selected. Field inspections of the Project would evaluate and 

verify compliance with permits and the Clean Water Act. The Project has been 

designed to span water bodies. As such, direct impacts to surface water quality 

standards from the placement of structures are not anticipated. 

1.2.6. Minnesota Certificate of Need 

Because the Project is considered a Large Energy Facility under Minnesota Statute 

216B.2421, a determination of need for the Project is required from the Commission. The 

Applicants applied for a Certificate of Need for the proposed transmission line on March 

17, 2008. The Certificate of Need process is designed to evaluate the level of need, as 

well as the alternatives available to satisfy that need. The Certificate of Need process 

does not evaluate specific routes; more detailed evaluation of routes, including human 

and environmental impacts and mitigation, is contained in the Route Permitting process 

described in Section 1.2.7. The Certificate of Need process is the only proceeding under 

Minnesota Statute in which a no-build alternative and the size, type, timing, system 

configuration, and voltage of a proposed project would be considered. The Commission 

determines the basic type of facility (if any) to be constructed, the size of the facility, and 

the timing of the facility (e.g., the projected in-service date). 

As part of the Commission’s review of certificate of need applications, the OES prepares 

an Environmental Report to meet the environmental review requirements for the large 

energy project certificate of need determination identified in Minnesota Rule 7849.1000 – 

2100. Minnesota Rule 7849.1500, subpart 1B identifies the alternatives to a proposed 

project that must be evaluated in the Environmental Report. The Environmental Report

prepared for the Certificate of Need application describes the proposed Project and the 

applicable regulatory framework, general impacts, and mitigation measures for 

environmental issues based upon the size, type, and timing of the proposed Project 

within the study area. System alternatives may have the capability to alleviate the need 

for all or some of the Project. The Environmental Report prepared for the Project was 

released on April 30, 2009, and may be found at 

http://energyfacilities.puc.state.mn.us/Docket.html?Id=19344. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

7 

1. Introduction 

The Commission found that there is a need for a transmission project linking the Wilton 

and Boswell substations and issued an order determining the need for the Project on 

July 14, 2009. The need decision did not identify a route for the Project. 

1.2.7. Minnesota Route Permit 

The Project is considered a High Voltage Transmission Line under Minnesota Statute 

216E (Minnesota Power Plant Siting Act) and requires a Route Permit from the 

Commission because the transmission line is capable of operating at or above 100 kV. 

Because the Commission has determined the need for the Project in the Certificate of 

Need process (Section 1.2.6), the Commission must now determine where the Project 

will be constructed and appropriate permit conditions that will minimize human and 

environmental impacts from the Project. 

When the Commission issues a route permit, zoning, building, and land use regulations 

are preempted per Minnesota Statue 216E.10, subd. 1. The Commission’s issuance of a 

Route Permit for the Project permits the Applicants to exercise the power of eminent 

domain to acquire land for this Project pursuant to Minnesota Statute § 216E.12, if they 

are not able to reach agreements with landowners. 

The Route Permit issued by the Commission will identify where the Project will be 

constructed. The Route Permit will identify the right-of-way (ROW) for which the 

Applicants have the right-to-acquire for the Project. The ROW width may vary 

throughout the route, depending upon the engineering and routing constraints. In some 

areas, the Route Permit may identify a precise route, for instance a 125-foot ROW to be 

located on the north side of a road, while in other areas the Route Permit may specify the 

width of ROW but designate a larger route to allow the Applicants to negotiate with 

landowners. 

The Route Permit will also define the Project that is being permitted. If the Applicants 

wish to, at some point in the future, upgrade the transmission line to a greater voltage, 

or add another transmission line of more than 100 kV, the Applicants would need to 

apply to the Commission for a permit for a new transmission line. 

As part of this permitting process, the OES prepares an EIS. The EIS contains 

information about the human and environmental impacts of the Project and selected 

alternatives, and addresses mitigation measures for anticipated impacts. 

1.3. Role of the EIS in Agency Review of the Project 

The EIS prepared for the Project will be used by Agencies responsible for review, 

permitting, and issuing Decision Notices on the Project. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

8 

1. Introduction 

1.3.1. Commission 

The Commission’s proposed action is a decision as to whether to issue a Route Permit 

for the Project. The Commission has the responsibility for routing transmission lines 

capable of operating at or above 100 kV in Minnesota. The Applicants have applied to 

the Commission for a Route Permit for the Project. The Commission is required to make 

a decision about the permit application. 

The Commission’s Route Permit determination must be guided by the state’s goals to 

conserve resources, minimize environmental impacts, minimize human settlement and 

other land-use conflicts, and ensure the state’s electric energy security through efficient, 

cost-effective power supply and electric transmission infrastructure (Minn. Stat. 213E.03, 

subd. 7a). These criteria are more fully developed in MN Rules part 7850. The route 

permitting process is shown in the schematic in Figure 1-2. The process contains several 

opportunities for public involvement throughout the process. 

Applications for high voltage transmission line route permits under the full 

permitting process require a public contested-case hearing upon completion of the 

Draft EIS. The hearing must be conducted by an Administrative Law Judge (ALJ) 

from the Office of Administrative Hearings pursuant to the contested case procedures 

of Minnesota Statute, Chapter 14. The purpose of the public hearing is to receive 

comments from members of the public and to compile the record for the Commission 

to consider in making a final decision on the transmission line route permit request. 

Combined public and evidentiary hearings for the Project were held between April 21 

and 23, 2010 at locations in Blackduck, Bemidji, Cass Lake, and Deer River. The ALJ 

will prepare a report and make a recommendation to the Commission on which route 

to authorize and on any appropriate permit conditions. The Commission will make a 

final decision on the route permit at a subsequent Commission hearing. 

Additional description on public involvement in the process appears in Section 1.5. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

9 

1. Introduction 

Figure 1-2: Minnesota Route Permitting Process 

This EIS will provide information to the Commission for use in its decision about the 

Route Permit for the Project. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

10 

1. Introduction 

1.3.2. Rural Utilities Service 

The RUS’s proposed action is a decision as to whether to provide financing for 

construction and operation of the Project to Minnkota Power Cooperative, one of the 

Applicants. 

As lead federal agency, RUS is responsible for ensuring compliance with NEPA, Section 

106 of the National Historic Preservation Act (NHPA), upholding Treaties of the United 

States with the Leech Lake Band of Ojibwe and meeting their trust obligations to the 

Band, and for initiating informal consultation with the U.S. Fish and Wildlife Service 

(USFWS) under Section 7 of the Endangered Species Act (ESA) to determine the 

likelihood of effects on federally listed species. In addition, RUS coordinates with the 

cooperating and assisting agencies to ensure compliance with Federal environmental 

laws, statutes, regulations, and Executive Orders that apply to RUS programs, including 

but not limited to: 

• Treaties of the United States with the Leech Lake Band of Ojibwe; 

o Treaty with Chippewa July 29th, 1837; 

o Treaty with Chippewa October 4th, 1842; 

o Treaty with Chippewa, Pillager August 21st, 1847; 

o Treaty with Chippewa September 30th, 1854; 

o Treaty with Chippewa February 22nd, 1855; 

o Treaty with Chippewa, Mississippi, Pillager, Lake Winnibigoshish May 

7th, 1863; 

o Treaty with Chippewa, Mississippi, Pillager, Lake Winnibigoshish May 

7th, 1864; 

• EO 11988 - Floodplain Management; 

• EO 11990 - Protection of Wetlands; 

• EO 12898 - Federal Actions to Address Environmental Justice in Minority 

Populations and Low-Income Populations; 

• the Native American Graves and Repatriation Act; and 

• the Farmland Protection Policy Act. 

RUS will consider information provided in the EIS in making its determination about 

whether to extend funding to the Minnkota Power Cooperative for its ownership 

portion of the Project. 

1.3.3. Chippewa National Forest 

The Applicants have applied to the USFS CNF for a Special Use Permit to construct and 

operate the Project on National Forest Service (NFS) lands. The Forest Supervisor of the 

CNF must determine whether to issue a Special Use Permit for the Project. The USFS 

must also meet the U.S. Government Treaty and trust obligations to the Leech Lake 

Band of Ojibwe. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

11 

1. Introduction 

The Forest Supervisor is authorized to approve or deny certain special uses on NFS 

lands. The Forest Supervisor is responsible for management and evaluation of the 

occupation and use of NFS lands and may grant a special use on those lands in 

accordance with the Federal Land Policy & Management Act (FLPMA), as amended in 

1976. 

The Forest Supervisor’s decision must comply with other applicable laws and 

regulations, including but not limited to: 

• Treaties of the United States with the Leech Lake Band of Ojibwe; 

o Treaty with Chippewa July 29th, 1837; 

o Treaty with Chippewa October 4th, 1842; 

o Treaty with Chippewa, Pillager August 21st, 1847; 

o Treaty with Chippewa September 30th, 1854; 

o Treaty with Chippewa February 22nd, 1855; 

o Treaty with Chippewa, Mississippi, Pillager, Lake Winnibigoshish May 

7th, 1863; 

o Treaty with Chippewa, Mississippi, Pillager, Lake Winnibigoshish May 

7th, 1864; 

• Endangered Species Act of 1973; 

• Clean Water Act, as amended in 1972; 

• National Historic Preservation Act; 

• Archaeological Resource Protection Act; 

• Native American Graves Protection and Repatriation Act; 

• National Environmental Policy Act of 1969; 

• Rangeland Renewable Resources Planning Act of 1974; 

• Multiple Use Sustained Yield Act of 1960; 

• National Forest Management Act; 

• Federal Land Policy & Management Act, as amended in 1976; and 

• EO 13112 – Invasive Species. 

In addition to compliance with the above laws and regulations, any action taken by the 

Forest Supervisor must be consistent with the objectives of the CNF Land and Resource 

Management Plan (Forest Plan), as revised in 2004. 

The Project would comply with objective O-SU-1 from the 2004 Forest Plan. This 

objective states: 

“Generally provide for utility transmission corridors and communications sites. Emphasize 

the use of common corridors and multiple use sites when granting appropriate right of 

ways.” (USDA, 2004) 

The Energy Policy Act of 2005 directs federal agencies to establish procedures to ensure 

that corridors for oil, gas, and hydrogen pipelines and electricity transmission and 

distribution facilities on federal land are identified and designated as necessary. The Act 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

12 

1. Introduction 

also directs federal agencies to expedite applications to construct or modify such 

pipelines and facilities within such corridors: 

 

“...(1) ensure that additional corridors for oil, gas, and hydrogen pipelines and electricity 

transmission and distribution facilities on Federal land are promptly identified and 

designated as necessary; and (2) expedite applications to construct or modify oil, gas and 

hydrogen pipelines and electricity transmission and distribution facilities within such 

corridors, taking into account the designation of such corridors. (d) Considerations—In 

carrying out this section, the Secretaries shall take into account the need for upgraded and 

new electricity transmission and distribution facilities to (1) improve reliability; (2) relieve 

congestions; and (3) enhance the capability of the national grid to deliver electricity....” 

(Public Law 109-58, August 8, 2005). 

This EIS will assist the Forest Supervisor in making a decision regarding the issuance of 

a Special Use Permit to construct and operate the Project in observance of the 

aforementioned laws, regulations, and plans. The Forest Supervisor’s jurisdiction to 

make such a decision is limited to those parcels of land that are managed by the USFS. 

1.3.4. U.S. Army Corps of Engineers 

The Applicants would apply to the USACE for a permit for the Project under Section 404 

of the Clean Water Act and Section 10 of the 1899 Rivers and Harbor Act. Section 404 of 

the Clean Water Act regulates the placement of dredge and/or fill material in the waters 

of the United States, including adjacent wetlands. Section 10 regulates the placement of 

structures in, on, or over navigable waters of the U.S. The USACE must determine 

whether or not to issue a Section 404 and Section 10 permit for the Project. This EIS will 

assist the USACE in making a decision about the Section 404 permit for the Project. The 

USACE must also meet the U.S. Government Treaty and trust obligations to the Leech 

Lake Band of Ojibwe. 

1.3.5. Leech Lake Band of Ojibwe 

The Applicants have requested that the Leech Lake Reservation Tribal Council (RTC) 

permit the Project to cross the proclamation boundaries of the Leech Lake Reservation. 

The Applicants have designed all of the Route and Segment Alternatives to avoid 

crossing on or over tribal trust land (Otter Tail Power et al., 2008a). The Tribe retains 

treaty rights for all lands, regardless of land ownership or management, within the LLR 

boundaries. The LLBO is responsible for issuing the appropriate approval and 

authorizations for activities to cross lands upon which it retains treaty rights and 

easements or authorizations for activities on lands under its jurisdiction. Not all land 

inside the LLR boundaries is managed by the Tribe, but rather includes a patchwork of 

multiple owners and managers, including tribal trust land, tribal fee land, state land, 

federal land, county land, and private ownership. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

13 

1. Introduction 

The LLDRM is responsible for overseeing the development of land leases, easements, 

and Allotments for Tribal and Band lands approved by the RTC and the Bureau of 

Indian Affairs (BIA). The LLDRM also works with the BIA and owners of tribal titled 

lands that the Project would cross to obtain their consent and easements or other 

agreements. The LLDRM analyzes proposed projects for their effect on never 

relinquished hunting, fishing, and gathering treaty rights of the LLBO on lands within 

the LLR. The LLDRM’s review also includes impacts to gathering activities for tribally 

important species including but not limited to as wild rice, blueberries, and sweet grass. 

For the purpose of this EIS document the LLBO assumes a Federal Entity, while still 

remains a souvenir government. 

The Director of the LLDRM has authority to participate in the environmental review of 

projects and to prepare joint or separate Environmental Assessment (EA) or EIS 

documents for those projects that occur on lands within the LLR boundaries. The 

LLDRM Director has decided to be a full cooperating agency in this EIS. This EIS, and 

the other environmental documents issued in connection with the Project, will assist the 

LLDRM Director in making a decision about the merits of this Project and whether or 

not to sign a decision notice for the Project, and to prepare any necessary easements and 

other permits needed to cross the LLR. This EIS will be used to provide information 

sufficient to make a decision on the request to obtain permission to cross the LLR, and 

any easements, Allotments, Tribal or Band lands, and to receive Reservation Resolution. 

1.4. Scope of the EIS 

Both the Power Plant Siting Act and NEPA require that agencies responsible for 

preparing environmental review documents involve the public in environmental review 

of projects. Prior to development of the EIS, the responsible agencies determine what 

information is to be evaluated in the EIS. A “scope” is a determination of what needs to 

be assessed in the environmental review in order to fully inform decision-makers and 

the public about the possible impacts of a project or potential alternatives. Through the 

scoping process, OES and RUS invited federal, state, and local units of government; 

Native American tribes; organizations; and individuals interested in the Project to 

comment on the Project proposed by the Applicants and to identify issues and concerns 

to be addressed in the EIS. This section summarizes the scoping process and the scoping 

decisions/reports issued by OES and RUS. Section 2 identifies the alternatives analyzed 

in the EIS as well as alternatives considered, but not evaluated. 

1.4.1. Public Scoping Process 

Both OES and RUS are required to schedule at least one public meeting in the area of the 

Project. The purpose of the meeting is to inform the public about the Project and to 

solicit public input into the scope of the environmental review. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

14 

1. Introduction 

The OES Energy Facilities Permitting (EFP) Unit and RUS held public information 

meetings in Blackduck, Cass Lake, Deer River, Bemidji, and Walker in August 2008. 

Approximately 120 people attended the public information meetings. In addition to the 

oral comments received at the public information meetings, more than 120 written 

comments were received by the close of the public comment period on September 30, 

2008. These comments are summarized in Appendix B. Written comments as well as 

written reports of the comments received at the public information meetings can be 

found on the EFP website 

(http://energyfacilities.puc.state.mn.us/Docket.html?Id=19344) and in the official 

record for the routing process located on the e-Dockets website 

(https://www.edockets.state.mn.us/EFiling/edockets/searchDocuments.do?method=s

howeDocketsSearch&showEdocket=true&userType=public) by entering “2007” in the 

year and “1327” as the number. 

In summary the comments identified the following issues and concerns: 

• Crossing the Leech Lake Reservation. The Project proposes to cross the 

sovereign lands of the Leech Lake Reservation. The LLBO retains the powers of 

self-government within the Leech Lake Reservation. The United States entered 

into a number of treaties with the LLBO under which the LLBO retained rights to 

many of the resources on the Leech Lake Reservation. All Federal agencies have 

trust obligations to assure that the Project does not infringe or negate the LLBO’s 

ability to exercise these retained treaty rights. The Leech Lake Reservation also 

qualifies as a minority community, which triggers other considerations. 

• Description of Proposed Project. A number of questions and comments were 

received regarding the Project, including pole specifications, development and 

maintenance of easements, and proposed distances between the transmission 

line and private homes. 

• Route Alternatives. Numerous commenters stated preferences for either the 

proposed route, preferred alternative in the central corridor, or alternative 

corridors. Commenters also submitted questions regarding the proposed and 

alternative routes, the feasibility and availability of the routes, and their 

anticipated impacts. 

• Biological Resources (Flora and Fauna). A number of comments were received 

that described existing flora and fauna in the Study Area that may be affected by 

the Project. Several of these comments addressed specific types of vegetation 

and wildlife in the Study Area. 

• Aesthetics. A number of comments were received regarding potential aesthetic 

impacts from the Project. Comments expressed both a general concern for 

aesthetics in the Project area as well as aesthetic concerns for specific geographic 

areas. 

• Water Resources. A number of commenters expressed concern for water 

resources in the central and alternative corridors. Several commenters expressed 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

15 

1. Introduction 

a general concern for lake, river, and stream crossings. Some commenters 

provided details about specific water resources of concern. 

• Land Use. A number of commenters submitted questions and concerns about 

potential land use impacts from the Project, including incompatibility with 

planned development and with local land use and zoning. Some commenters 

noted that the location of a transmission line on private property would limit 

land use (e.g., agricultural, recreational, and residential development). 

Commenters identified specific pinch points located along the central corridor 

and expressed concern about the potential for additional impacts to those private 

land owners with existing easements. 

• Socioeconomics. A number of comments were received regarding the potential 

impacts of the Project upon socioeconomic resources, including displacement of 

homes or residences, displacement of businesses, and impacts to local economies. 

Several comments were received regarding compensation negotiation and 

easement payments. In addition, several commenters noted fairness concerns for 

the land owners’ continued responsibility to pay property taxes for the proposed 

transmission line easements controlled by the Applicants. 

• Safety and Health. A number of comments and questions were received 

regarding potential safety and health impacts from the Project. Several 

commenters identified a general concern about the potential health effects from 

transmission lines. Others identified concerns about more specific health effects, 

including the potential impact of transmission lines on pregnant mothers, 

newborn babies, persons with mental disabilities, and persons with pacemakers. 

Several comments contained questions regarding the safe distance between a 

transmission line and home or other land improvements. A number of 

commenters cited concerns about the proposed transmission line route in 

proximity to existing pipelines in the area. 

1.4.2. Rural Utilities Service Pre-scoping Documents 

As part of their scoping process, RUS requires loan applicants to prepare two 

documents, a Macrocorridor Study and an Alternatives Evaluation Study, to support their 

proposed action. Guidance for these documents, and for the scoping process as a whole, 

is provided in RUS Bulletin 1794A-603, Scoping Guide for RUS Funded Projects Requiring 

Environmental Assessments with Scoping and Environmental Impact Statements. The intent 

of these documents is to provide information about the proposed action to the public to 

facilitate public participation in the NEPA process. Both the Macrocorridor Study and 

Alternatives Evaluation Study prepared for the Project can be found at: 

http://www.usda.gov/rus/water/ees/eis.htm#Minnkota%20Electric%20Cooperative,

%20Inc.0. 

The Macrocorridor Study identifies a study area encompassing the endpoints for a 

proposed transmission project and develops macrocorridors within which a proposed 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

16 

1. Introduction 

transmission project could be located. The Macrocorridor Study provides information 

about environmental, social, and cultural factors for each of the macrocorridor options 

within the Study Area. The four macrocorridors evaluated in this study typically are 

about 2 miles wide, with some portions of the Central Macrocorridor being 8 miles wide 

(Otter Tail Power et al., 2008b). 

The Alternatives Evaluation Study examines the purpose and need for the Project. The 

study identifies the electrical problem the Project is proposed to address and identifies 

and analyzes several alternatives to the Project such as no-action, load management, 

baseload generation, intermediate generation, peaking generation, and several different 

transmission system alternatives (Otter Tail Power et al., 2008c). The Alternatives 

Evaluation Study was released for public review and comment in June 2008. 

1.4.3. Advisory Task Force 

In their order accepting the Route Permit application, the Commission authorized the 

OES to establish an Advisory Task Force to advise the Commission about what routes 

should be evaluated and what impacts and issues should be considered in the EIS for 

the Project. OES staff solicited Advisory Task Force nominations from 25 local units of 

government located along the proposed and alternate routes identified by the 

Applicants. The OES appointed representatives from each of the eight governmental 

units responding to the OES’s solicitation: Beltrami County, Hubbard County, Itasca 

County, Frohn Township (Beltrami County), Farden Township (Hubbard County), Pike 

Bay Township (Cass County), Wilkinson Township (Cass County), and Morse Township 

(Itasca County). 

The Advisory Task Force met July 14 and August 13, 2008. The meetings were open to 

the public and, in addition to task force members, were attended by OES staff, 

representatives of federal agencies, and the Applicants. The Task Force, through a 

facilitated process, discussed the Project and the charge of the Task Force. The Task 

Force Report may be found on the OES website maintained for the Project: 

http://energyfacilities.puc.state.mn.us/Docket.html?Id=19344. 

Task Force members reviewed and prioritized the issues and impacts to be considered in 

the EIS. Task Force members reviewed in detail the preferred and alternative routes for 

the transmission line to address questions of clarity. After further discussion, Task Force 

members were asked to identify the potential benefits and issues with each of the routes. 

Task Force members then discussed whether there were any additional routes or route 

segments, beyond those proposed by the Applicants, that should be included in the EIS. 

Task Force members considered the routes and route segments proposed by the 

Applicants in their route permit application to the Commission, as well as all the route 

corridors (macrocorridors) that were studied by the Applicants prior to deciding on the 

two routes proposed in the route permit application. Advisory Task Force members 

recommended that no additional routes be studied in the EIS. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

17 

1. Introduction 

1.4.4. Agency and Tribal Review of Route Alternatives 

Following the close of the public comment period the participating agencies reviewed 

the comments received, the RUS pre-scoping documents, and additional environmental 

material comparing routes within the macrocorridors. 

1.4.5. Office of Energy Security Scoping Decision 

Following the close of the comment period, OES staff reviewed the public comments 

about the scope of the environmental review and the rules governing the content of an 

EIS (site rule). Based upon that review, the Director of the OES issued a Scoping 

Decision on March 31, 2009. The Scoping Decision is included in Appendix A of this 

EIS. Comments submitted during the scoping period are generally summarized in 

Appendix B. A list of comments, organized by subject area, is included in Appendix B 

of this document. 

1.4.6. Rural Utilities Service Scoping Decision/Report 

RUS released a Scoping Decision/Report for the Project in December 2009. The Scoping 

Decision/Report summarized the public scoping process and inter-agency consultation 

regarding Project alternatives. Based upon the scoping process, the Scoping 

Decision/Report identified the issues and alternatives to be evaluated in the EIS. The RUS 

Scoping Decision/Report is included in Appendix A of this document. 

1.5. Public Involvement 

The Draft EIS for the Project was published on February 23, 2010. Notice of the 

availability of the Draft EIS was sent to those persons on the Office of Energy 

Security’s project contact list and published in the Environmental Quality Board 

Monitor and newspapers of local circulation. The OES distributed copes of the Draft 

EIS to cooperating agencies, those persons requesting individual copies, local 

libraries, and additional federal, state, and local agencies identified on the Project 

distribution list. 

Public meetings on the Draft EIS were held at the Hampton Inn in Bemidji, MN 

(March 16, 2010, two meetings); American Legion Vets Club in Deer River, MN 

(March 17, 2010); Blackduck Senior Center in Blackduck, MN (March 17, 2010); and at 

the Leech Lake Tribal College in Cass Lake, MN (March 18, 2010). The public was 

encouraged to provide oral comments at the public meetings and to submit written 

comments to the OES or RUS by April 26, 2010. A court reporter was present at the 

public meetings to ensure that all oral comments were recorded accurately. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

18 

1. Introduction 

All comments on the Draft EIS, as well as any supporting attachments, have been 

entered into the administrative record for this docket. Based on the comments 

received on the Draft EIS, the OES EFP and RUS prepared comment responses and 

modified this EIS where appropriate. The EIS was also revised based on RUS’s and 

OES EFP’s internal technical and editorial review of the Draft EIS (i.e., changes made 

to the EIS that were not in response to a comment received). Changes made to the text 

as a result of the comments received are printed in bold in this Final EIS. Comments 

received on the Draft EIS and responses to those comments are included in Appendix 

J of this document. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 19 

2. Proposed Action and Alternatives

2. Project Description 

This section describes the construction and operation of the Project and alternatives 

considered in this EIS. Alternatives to the Project were screened to assess the ability of 

the alternatives to meet the identified need for the Project and to provide a comparison 

of the impacts of different alternatives in meeting the identified need for the Project. 

Based upon this screening, a No-Build Alternative and three route alternatives were 

evaluated in the Draft Environmental Impact Statement. A fourth route alternative 

was identified during the Draft EIS comment period and is evaluated in the FEIS, as 

described in Section 2.2. In addition to these alternatives, a number of system and route 

alternatives were considered, but not evaluated in detail; these alternatives not 

evaluated in the EIS are described in Section 2.3. 

2.1. Project Alternatives 

Several alternatives to the Project were identified during the Applicants’ development of 

the Project and during the public scoping process carried out by OES and RUS. Two 

types of alternatives to the Project were developed and evaluated: 

• System alternatives, which look at alternative means for meeting the stated need 

of the Project; and 

• Route alternatives, which look at alternative routes to get from one end point to 

another. 

2.1.1. System Alternatives 

Both the RUS scoping requirements and the Commission’s Certificate of Need process 

require review of alternative methods of meeting the purported need for the Project; see 

Sections 1.3 and 1.2. Both the Alternative Evaluation Study, prepared in accordance with 

RUS guidelines, and the Environmental Report: Bemidji to Grand Rapids 230 kV 

Transmission Project, prepared in accordance with Commission guidelines, considered 

four alternatives to meeting the need of anticipated customer demand into the future: 

• No-Build Alternative; 

• Use of demand-side management and conservation measures; 

• Transmission system alternatives, including existing line or system 

improvements; and 

• Generation alternatives. 

Both the Alternatives Evaluation Study and the Commission’s July 14, 2009 order granting 

a Certificate of Need for the Project found that none of the system alternatives evaluated 

were able to meet the identified need as well or at a comparable cost as the Project. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 20 

2. Proposed Action and Alternatives

2.1.2. Route Alternatives 

Minnesota Statute (Minn.Stat. 216E.03, subd. 3) and rules (MN Rules 7850.1900, subp. 2) 

establish the requirements for submitting and processing a permit application. Under 

these rules, the Applicants must present information for at least two routes for a 

proposed high voltage transmission line (HVTL) in their Route Permit Application to the 

Commission. The Applicants must also identify in the application the preferred route 

for the transmission line and at least one alternative route. 

In accordance with these rules, the Applicants presented information for two routes in 

their June 4, 2008, Route Permit Application. Both of these routes are generally in the 

vicinity of U.S. Highway 2 (Figure 2-1). Route 1 (identified by the Applicants as their 

preferred route) generally follows the Great Lakes Gas Transmission Company pipeline 

and a 115 kV transmission line right-of-way (ROW); Route 2 (the Applicants Alternate 

Route) generally follows U.S. Highway 2 and the Enbridge pipeline ROWs. Under 

Minnesota Statute 216E.03, the EIS must evaluate alternatives proposed by the 

Applicants. The Route Permit Application also contains several alternative segments 

proposed by the Applicants to avoid or minimize impacts to certain sensitive areas. 

These segments are discussed in greater detail in Section 2.2. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 21 

2. Proposed Action and Alternatives

Figure 2-1: Applicant-Identified Route Alternatives 

The federal agencies consider both of the Applicant-proposed routes to be located 

within one study area, referred to as a “Macrocorridor” in their screening materials. At 

the request of the CNF, RUS, and LLDRM three additional Macrocorridors were 

developed by the Applicants to evaluate whether potentially routing along one of these 

corridors might merit further investigation (Figure 2-2). These four Macrocorridors 

(referred to as the Central, North, South and non-CNF) were evaluated in the 

Macrocorridor Study Report discussed in Section 1.4.2. Notices, identifying the 

Macrocorridors on maps, were published in area newspapers and in direct mail 

notification to approximately 11,000 potentially affected landowners. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 22 

2. Proposed Action and Alternatives

Figure 2-2: Federal Macrocorridors Identified 

The federal agencies require that the EIS evaluate a potentially viable route alternative 

that is different than the two route alternatives proposed by the Applicants. In 

conjunction with the Applicants, OES staff developed 1,000-foot routes within each of 

the additional three “macrocorridors” and compiled a variety of social and 

environmental data on each of the routes. As discussed in the RUS Scoping 

Decision/Report (see Appendix A), staff from OES, the LLBO, and federal partner 

agencies reviewed more detailed social and environmental information for the five 

routes (i.e., the two Applicant-proposed routes and one in each of the additional three 

macrocorridors). 

During this review process, a number of concerns related to Route Alternatives 1 and 2 

were identified by agencies participating in the environmental review. More 

information on these concerns is provided in the RUS Scoping Decision/Report (Appendix 

A) and in the public comment summary (Appendix B). 

Issues Identified with Route Alternative 1: The agencies identified potentially 

significant impacts to traditional cultural, biological, and socioeconomic resources along 

this Route Alternative. Additionally, impacts to the “Ten Section” area or the Pike Bay 

Experimental Forest would require a Forest Plan Amendment. Although several flaws 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 23 

2. Proposed Action and Alternatives

were identified with this Route Alternative, Minnesota Statute 216E.03, subdivision 5, 

requires the evaluation of all routes proposed by the Applicant. 

Issues Identified with Route Alternative 2: The issues identified with Route 

Alternative 2 were primarily related to its location adjacent to several utilities (pipelines 

and transmission lines) and transportation resources (highways and railroads). In many 

areas this Route Alternative would add yet another easement to properties already 

encumbered by multiple pipeline easements. Additionally, there may be engineering 

constraints in some areas due to the number of existing utility and transportation uses in 

a narrow corridor. Although several flaws were identified with this Route Alternative, 

Minnesota Statute 216E.03, subdivision 5, requires the evaluation of all routes proposed 

by the Applicant. 

It was concluded that in addition to the Route Alternatives proposed by the Applicants, 

one additional route, located in the North macrocorridor, should be fully evaluated in 

the EIS. This Route Alternative avoids the major gateway to the Chippewa National 

Forest and avoids bisecting the Leech Lake Reservation. 

2.2. Alternatives Considered in the EIS 

As discussed above, a No-Build Alternative and four Route Alternatives (shown in 

Figure 2-3) are evaluated in this EIS. Route Alternatives can be summarized as follows: 

No-Build Alternative: Under this alternative, no transmission line would be 

constructed. As discussed in Section 2.1.1, this Alternative does not meet the 

defined need for the Project. Nevertheless, a No-Build Alternative is evaluated in 

this document in accordance with the Council on Environmental Quality NEPA 

regulations (40 CFR 1502.14) requiring review of a no-action alternative. 

Route Alternative 1: This route, referred to as Route 1 in the Route Permit 

Application, is approximately 69 miles long and generally follows the Great Lakes 

Gas Transmission Company pipeline and an 115 kV transmission line ROWs. This 

alternative would add equipment to the Wilton Substation and expand the Boswell 

Substation by approximately 1.3 acres to accommodate additional equipment. 

Under this alternative, a new 230 kV substation would be constructed in Pike Bay 

Township in Cass County. If certain segment alternatives are used in association 

with this Route Alternative, a new Nary 115 kV Breaker Station may be required for 

Route Alternative 1. 

Route Alternative 2: This route, referred to as Route 2 in the Route Permit 

Application, was proposed by the Applicants as an alternate route in their application 

to the Commission. This route is approximately 68 miles long and generally follows 

U.S. Highway 2 and the Enbridge pipeline ROWs. As with Route Alternative 1, this 

alternative would also entail adding 230 kV equipment to the Wilton Substation and 

would expand the Boswell Substation to permit the addition of 230 kV equipment. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 24 

2. Proposed Action and Alternatives

Under this Route Alternative, the existing Cass Lake Substation would be expanded 

by approximately 2.2 acres to accommodate new 230kV equipment. 

Route Alternative 3: This route follows existing pipeline, transmission, and road 

ROWs for most of its 116 miles. The route follows a series of transmission lines and 

roads between the Wilton Substation, northeast to the Blackduck area, east and then 

south to Deer River, and then southeast to the Boswell Substation. This route avoids 

a major gateway to the Chippewa National Forest and avoids bisecting the Leech 

Lake Reservation. This alternative would include improvements to the Wilton and 

Boswell substations, but no additional substations or breaker stations would be 

constructed or expanded. 

Route Alternative 4: This route, identified by the Applicants during the Draft EIS 

comment period as their preferred route, is a combination of Route Alternatives 1 

and 2 and incorporates Segment Alternatives F and K. The route is approximately 

69.5 miles long and follows Route Alternative 1 for 38.1 miles (55% of its length) 

and Route Alternative 2 for 25.7 miles (37% of its length). The route follows 

Route Alternative 1 along the Great Lakes pipeline after exiting the Wilton 

Substation. It then diverts from the Great Lakes pipeline along Segment 

Alternative K to connect with Route Alternative 2 and U.S. 2 at the Cass Lake 

Substation. Route Alternative 4 follows Route Alternative 2 until Ball Club, 

where it again follows Route Alternative 1 to the Boswell Substation. As with 

Route Alternatives 1 and 2, this alternative would also entail adding 230 kV 

equipment to the Wilton Substation and would expand the Boswell Substation to 

permit the addition of 230 kV equipment. Under this Route Alternative, the 

existing Cass Lake Substation would be expanded by approximately 2.2 acres to 

accommodate new 230kV equipment. 

Table 2-1 provides a general comparison of the Route Alternatives. Tables ES-2 and 

5-1 provide a detailed comparison of the Route Alternatives and their associated 

impacts on specific resources in the Study Area. 
Bemidji – Grand Rapids Transmission Line 

Final EIS  25 2. Proposed Action and Alternatives

Figure 2-3: Route and Segment Alternative Overview Map
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 26 

2. Proposed Action and Alternatives

Table 2-1: Comparison of Route Alternatives 

No-Build 

Alternative 

Route 

Alternative 1 

Route 

Alternative 2 

Route 

Alternative 3 

Route 

Alternative 4 

Meets Identified Purpose 

and Need for Project No Yes Yes Yes Yes 

Route Length (miles) N/A 69 68 116 70 

Transmission 

Lines N/A 18 9 91 21 

Pipelines N/A 61 48 8 54 

Existing 

Linear 

Features 

(miles) Highways N/A 25 60 32 34 

Length of new Corridor 

(miles) N/A 5.2 2.6 5.1 7.7 

New Corridor as a % of 

Route N/A 7.5 % 3.8 % 4.4% 11% 

Cass Lake Substation N/A New 

(4 acres) 

Expand 

(2.2 acres) N/A Expand (2.2 acres) 

Nary Breaker Station N/A 

Yes, 

Depending 

upon Route 

(2.5 acres) 

N/A N/A N/A 

Wilton Substation N/A 

Add new 

Equipment; no 

expansion 

Add new 

Equipment; no 

expansion 

Add new 

Equipment; no 

expansion 

Add new 

Equipment; 

no expansion 

Boswell Substation N/A Expand 

(1.3 acres) 

Expand 

(1.3 acres) 

Expand 

(1.3 acres) 

Expand 

(1.3 acres) 

Transmission Line Costs 

(with Adders) ($ million)1 N/A $54.5 $52.8 $91.6 $55.8 

Estimated Total Project 

Cost 

($ million)1

N/A $65.4 $60.5 $94.1 $63.5 

1. Source: Lindholm, 2010. 

 Notes: Adders include additional costs to address special construction techniques in wetland areas, tree 

clearing, and a short double-circuited segment into the Boswell Substation. 

An engineering cost analysis as it pertains to installation cost and megawatt hours of 

avoided energy losses was examined in the Macrocorridor Study (Otter Tail Power et 

al., 2008b). The full installed cost of Route Alternatives 1, 2, and 4 are estimated at 

between $60.5 and $65.4 million. The cost per mile for the transmission line with 

adders for Route Alternatives 1, 2, and 4 would be between $776,000 and $790,000 

(Lindholm, 2010). For Route Alternative 3, the full installed cost is estimated at $94.1 

million, and the cost per mile for the transmission line with adders is estimated at 

$789,655 (Lindholm, 2010). For annual energy loss savings in megawatt hours (MWh), 

Route Alternative 3 would produce 69,800 MWh with Route Alternatives 1, 2, and 4 

estimated to produce 86,886 MWh savings. 

An additional aspect of electrical transmission is the effect the lengths of the lines 

have on the ability to transfer electrical current efficiently. As described in detail in 

the Alternative Evaluation Study for the Bemidji-Grand Rapids 230 kV Line, (Otter Tail 

Power et al., 2008c), the longer the path the current must travel, the more electrical 

energy is lost due to impedance. A line’s loading limit is defined as the line’s ability 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 27 

2. Proposed Action and Alternatives

to transport increasing amounts of electric power. For shorter lines, the impedance of 

the conductor is minimal and allows the transmission line to be utilized at its 

capacity. As the lines get longer, the loading will be below its capacity due to higher 

impedance and need to maintain a stable voltage. As a result, Route Alternative 3’s 

230kV line loadability is only 75 percent that of Route Alternatives 1, 2, and 4. 

In addition to the Route Alternatives, the EIS also evaluates 20 Segment Alternatives, 

labeled A through T and summarized in Table 2-2. Of the 20 Segment Alternatives, 

eight were included in the Applicants’ Route Permit Application, and four were identified 

in OES’s April 2009 Environmental Report. The additional eight Segment Alternatives, 

primarily in the U.S. Highway 2 area, were identified during the course of the EIS 

development as several areas presenting routing constraints because of engineering 

difficulty, areas of cultural use and environmental features were identified within the 

routes identified in the original scope. These Segment Alternatives were identified in 

OES’s revised Scoping Decision, issued February 5, 2010 (see Appendix A). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

28 

2. Project Description 

Table 2-2: Segment Alternatives Evaluated in the EIS 

Segment 

Alternative 

Description 

(Source) 

Associated 

Route 

Alternatives 

A* Bemidji – Nary Alternative (Route Permit Application): A 15.7-mile segment 

from the Wilton Substation, follows an existing 115 kV transmission line, 

connecting back to Route Alternative 1 through either Segment Alternatives D 

or L. 

1, 4

B Ten Section Alternative (Route Permit Application): A 10.5-mile segment that 

avoids the Ten Section area and Pike Bay Experimental Forest 

1 

C Leech Lake River Crossing Alternative (Route Permit Application): A 4.4-mile 

segment that moves existing 69 kV Mississippi River crossing from U.S. 

Highway 2 south to Leech Lake River; new 230 kV line would use the existing 

crossing. 

1, 2, 4

D* 143rd Street Alternative (Route Permit Application): A 5.0-mile segment that 

continues Segment Alternative A, to the west along 460th S/ 143rd Street NW. 

1 

E MN Highway 6 Alternative (Initial Scope): A 10.6-mile segment that departs 

from a cross-county section of an existing 69 kV line to follow MN Highway 6 

3 

F** Cass Lake Alternative (EIS Development): A 1.3-mile segment that skirts the 

center of the city of Cass Lake by heading briefly south along MN Highway 

371 and then across a CNF parcel. 

2 

G Bemidji Enbridge/transmission Alternative (EIS Development): A 1.6-mile 

segment that follows the Enbridge pipeline ROW and a 115 kV transmission 

line from the Wilton Substation to a pipeline/transmission divergence north of 

Division Street 

2 

H Division Street Transmission Alternative (EIS Development): A 1.0-mile 

segment that follows a 115 kV from a pipeline/transmission split to Route 

Alternative 2. 

2 

I Division Street Pipeline Alternative (EIS Development): A 0.5-mile segment 

that follows the Enbridge pipeline from a pipeline/transmission split to Route 

Alternative 2. 

2 

J Bemidji Slough Crossover (Route Permit Application): A 0.4-mile segment 

that connects Route Alternatives 1 and 2 and avoids the Bemidji Slough 

WMA. 

1, 2 

K** Midge Lake Crossover (EIS Development): A 5.9-mile segment that connects 

Route Alternatives 1 and 2; ties into the existing Cass Lake Substation. 

1, 2 

L Farden – Pike Bay Crossover (EIS Development): A 2.5-mile segment that 

connects Segment Alternative A with a new Cass Lake Substation; follows an 

existing 115 kV transmission line. 

1, 4

M Pike Bay Crossover (Route Permit Application): A 2.4-mile segment that 

connects Route Alternatives 1 and 2; follows an existing 115 kV transmission 

line. 

1, 2, 4

N Cuba Hill Road Crossover (Route Permit Application): A 3.7-mile segment 

that connects Route Alternatives 1 and 2 along Cuba Hill Road 

1, 2, 4

O Sucker Bay Road Crossover (Route Permit Application): A 2.7-mile segment 

that connects Route Alternatives 1 and 2 along Sucker Bay Road 

1, 2, 4

P Ball Club Crossover (EIS Development): A 0.4-mile segment that connects 

Route Alternatives 1 and 2 

1, 2, 4

Q Deer River Crossover (EIS Development): An 0.2-mile segment that 

connects Route Alternatives 1 and 2 

1, 2, 4

R Blackduck Alternative 1 (Initial Scope): An 1.8-mile segment that would 

provide an alternative in the Blackduck area. 

3 

S Blackduck Alternative 2 (Initial Scope): A 1-mile segment in the Blackduck 3 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

29 

2. Project Description 

Segment 

Alternative 

Description 

(Source) 

Associated 

Route 

Alternatives 

area that would connect Segment Alternative R with Route Alternative 3 

along Beltrami County Road 311. 

T Blackduck Alternative 3 (Initial Scope): A 2-mile segment in the Blackduck 

area that would connect Segment Alternative R with Route Alternative 3. 

3 

* Segment Alternatives A and D were combined in the Applicants’ Route Permit Application (Otter Tail Power et 

al., 2008a). 

** Segment Alternatives F and K are incorporated into Route Alternative 4. Lengths, resources, and 

impacts associated with Segment Alternatives F and K are incorporated into the discussion and 

analysis of Route Alternative 4. As such, these segments are not considered “associated” with the 

route alternative. 

2.2.1. No-Build Alternative 

Under the No-Build Alternative the Project would not be constructed. No land would 

be used for transmission or substation facilities, and there would be no changes to the 

existing environment in the Study Area. As discussed in Section 2.1.1, above, the NoBuild Alternative does not meet the identified purpose and need for the Project. A NoBuild Alternative is evaluated in this document in accordance with the Council on 

Environmental Quality NEPA regulations (40 CFR 1502.14) requiring review of a noaction alternative. 

2.2.2. Route Alternative 1 

Route Alternative 1, shown in Figure 2.2-1, and in greater detail in the maps in 

Appendix C, follows the Great Lakes Gas Transmission Company (Great Lakes) pipeline 

ROW for approximately 61 of its 69-mile total length. The Applicants identified this as 

their preferred alternative in their Route Permit Application to the Commission. This 

alternative would include improvements to the Wilton and Boswell substations and 

construction of a new substation near Cass Lake. Depending upon the final routing, this 

Route Alternative may include a new Nary Breaker Station. The capital cost per mile for 

Route Alternative 1, including adders for wetland construction and tree clearing, is 

estimated at $789,855 (Lindholm, 2010). Including improvements to the Wilton and 

Boswell substations and construction of a new Cass Lake Substation, the total capital 

cost of this Route Alternative is estimated at approximately $65.4 million (Lindholm, 

2010 and Otter Tail Power et al., 2008d). Construction of the Nary Breaker Station 

would add approximately $2.7 million to this cost (Otter Tail Power et al., 2008a). 

2.2.2.1. Transmission Line Route 

Route Alternative 1 proceeds south overland from the Wilton Substation, along two 69 

kV transmission lines for 1.2 miles, then overland for approximately 2,000 feet, before 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

30 

2. Project Description 

turning southeast to follow the Great Lakes Pipeline through southern Bemidji. Aside 

from some slight deviations to avoid homes, the Route Alternative continues eastward 

along the Great Lakes Pipeline for approximately 46 miles until Mud Lake Road. Route 

Alternative 1 then follows Mud Lake Road north for approximately 0.2 mile, before 

turning east along Great River Energy’s 69 kV line between the Enbridge and Great 

Lakes pipelines where it would cross the Mississippi River near the existing Great River 

Energy 69 kV transmission line crossing. After crossing the Mississippi the route would 

continue to parallel the pipelines and 69 kV transmission line for approximately 0.6 mile 

to Itasca County Road 119. At County Road 119, the route would head cross-country in 

a southeasterly direction to Itasca County Road 118. The route would follow County 

Road 118 for approximately 1,200 feet, continuing east cross country, then north for 

approximately 1,000 feet before turning northeast for another 2,150 feet before rejoining 

the Great Lakes pipeline. The route would continue to follow the Great Lakes pipeline 

for approximately 10.2 miles. The route would then follow a Minnesota Power 115 kV 

transmission line for the remaining 4.5 miles to the Boswell Substation. 

Segment Alternatives associated with this Route Alternative are: 

• Segment Alternative A is a 15.7-mile alternative developed by the Applicants to 

collocate with an existing 115 kV transmission line from Bemidji to Cass Lake, 

instead of following the Great Lakes pipeline. This segment follows Otter Tail 

Power’s Bemidji to Nary 115 kV transmission line from the Wilton Substation 

south for approximately 10 miles, then follows Otter Tail Power’s Nary-to-Cass 

Lake 115 kV transmission line east and northeast for approximately 5.7 miles to 

the intersection of 317th Avenue and 460th Street in Hubbard County. From this 

point the Segment Alternative could connect with either Segment Alternatives L 

or D. 

• Segment Alternative B was developed by the Applicants to avoid the Ten Section 

Area and Pike Bay Experimental Forest of the CNF. This Segment Alternative 

would deviate from Route Alternative 1 between the intersection of Wilkenson 

Road and Lupine Drive NW (Lake 13 Road) and Cuba Hill Road. The Segment 

Alternative would proceed south from the Wilkenson Road and Lupine Drive 

intersection for approximately 3.5 miles, then turn east for approximately 4 miles 

to Cuba Hill Road, then turn north again for approximately 3 miles before 

reconnecting with Route Alternative 1. The Segment Alternative would travel 

cross country and would not follow any existing utility ROWs, but would follow 

some roads. 

• Segment Alternative C was developed by the Applicants to reduce the number of 

transmission lines that cross the Mississippi River at the preferred river crossing 

location near Ball Club. This alternative would replace the existing Great River 

Energy 69 kV line crossing the Mississippi River with the proposed 230 kV 

transmission line. Great River Energy’s 69 kV line would be re-routed to the 

south along approximately 4.4 miles of new ROW to cross the Leech Lake River. 

If this Segment Alternative is used, the crossing of the Mississippi River would 

be similar to what exists there currently, one set of structures, although the 

structures would be taller. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

31 

2. Project Description 

• Segment Alternative D would connect with Segment Alternative A and proceed 

for approximately 5 miles east along 460th Street. Use of this segment would 

preclude connecting the Project to a Cass Lake Substation. 

• Segment Alternative J is a 0.4-mile segment connecting Route Alternatives 1 and 

2. This segment would avoid the Bemidji Slough Wildlife Management Area. A 

wetland complex extends outside the boundaries of the Management Area and 

is partially located within the southern portion of Segment Alternative J 

(MnDNR, 2010). 

• Segment Alternative K is a 5.9-mile segment connecting Route Alternatives 1 and 

2 between approximately Hubbard County Road 15 and the existing Cass Lake 

Substation. 

• Segment Alternative L is a 2.5-mile segment connecting Segment Alternative A 

with Route Alternative 1 along Otter Tail Power Company’s Nary–to-Cass Lake 

115 kV transmission line. This segment would terminate at a new Cass Lake 

Substation that would be located in Pike Bay Township. 

• Segment Alternative M is a 2.4-mile segment connecting Route Alternatives 1 

and 2 along the Otter Tail Power Company’s Nary-to-Cass Lake 115 kV 

transmission line. 

• Segment Alternative N is a 3.7-mile segment connecting Route Alternatives 1 and 

2 along Cuba Hill Road. 

• Segment Alternative O is a 2.7-mile segment connecting Route Alternatives 1 and 

2 along Sucker Bay Road. 

• Segment Alternative P is a 0.4-mile segment connecting Route Alternatives 1 and 

2 across U.S. Highway 2 between the Mississippi River and Ball Club Lake. 

• Segment Alternative Q is a 0.2-mile segment connecting Route Alternatives 1 and 

2 east of Deer River. 

Under Route Alternative 1, there are three scenarios for crossing the Mississippi River 

near Ball Club: 

• Route Alternative 1 could cross the river and on a separate ROW parallel to the 

existing Great River Energy 69 kV crossing. This would result in two crossings 

to the Mississippi River, essentially adjacent to one another; 

• Route Alternative 1 could be consolidated with Great River Energy’s existing 69 

kV transmission line on a new set of double circuit structures. Under this 

scenario, there would be one set of structures and two planes of wire crossing the 

river; and 

• If this Route Alternative is used in conjunction with Segment Alternative C (see 

above), a new set of structures would replace the existing river crossing and 

Great River Energy’s 69 kV transmission line would be relocated along a new 

ROW to cross the Leech Lake River. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

32 

2. Project Description 

2.2.2.2. Substation Improvements 

Substation improvements and construction included with this alternative are described 

in greater detail in Section 2.4.2. This alternative would include the addition of 

equipment to both the Wilton and Boswell substations. The improvements at the Wilton 

Substation would occur within the existing fenced area of the substation. The Boswell 

Substation would be expanded by approximately 1.3 acres to accommodate the 

additional equipment. 

Route Alternative 1 would also include construction of a new 230/115 kV substation in 

Section 30 of Pike Bay Township (Township 145N, Range 31W) in Cass County where 

the Alternative crosses the existing 115 kV transmission line between the Nary Junction 

and Cass Lake substations. This crossing point is approximately 2.5 miles south of the 

existing Cass Lake 115/69 kV Substation. 

When Segment Alternatives A is used in conjunction with Route Alternative 1, a new 

Nary 115 kV breaker station would be constructed to provide enhanced security and 

reliability to the area’s transmission system. Building this 115 kV breaker station would 

sectionalize the 115 kV circuits serving Bemidji, Cass Lake, Akeley, and Badoura, which 

would result in fewer customers being affected by system faults between Bemidji, 

Cass Lake, and Akeley. The addition of the Nary Breaker Station would connect three 

230 kV sources (Wilton, Cass Lake, and Badoura) to the underlying 115 kV system, so 

that a fault on the 115 kV system would only result in the disconnection of one rather 

than all three 230 kV sources. The Applicants have stated that a new Nary 115 kV 

Breaker Station may be required if Route Alternatives 1, 2, or 4 are selected, 

regardless of the use of Segment Alternatives (Weiers, 2010). Unless constructed in 

connection with Segment Alternative A, a new Nary Breaker Station is not considered 

part of the proposed Project and would represent a future action of the Applicants. 

2.2.3. Route Alternative 2 

Route Alternative 2, shown in Figure 2.2-1 and in the detailed maps in Appendix C, 

generally follows U.S. Highway 2 and the Enbridge pipeline ROWs across the LLR. This 

route was identified as an alternative route in the Route Permit Application to the 

Commission. The capital cost per mile for this Route Alternative, including adders for 

wetland construction and tree clearing, is estimated at $776,471 (Lindholm, 2010). 

Including improvements to the Wilton and Boswell substations and the expansion of the 

existing Cass Lake Substation, the total capital cost of this Route Alternative is estimated 

at approximately $60.5 million (Lindholm, 2010). 

2.2.3.1. Transmission Route 

Route Alternative 2 proceeds east from the Wilton Substation along a new corridor for 

approximately 2,200 feet before turning southeast along the railway to the U.S. Highway 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

33 

2. Project Description 

2/U.S. Highway 71 corridor. The route then turns south along U.S. Highway 2/U.S. 

Highway 71 for approximately 15.5 miles and an Otter Tail Power 69 kV transmission 

line before turning south along the 69 kV transmission line to the Cass Lake Substation. 

From the Cass Lake Substation, the route would continue east along the BNSF railway 

and Enbridge pipeline, passing through the south side of the city of Cass Lake and 

continuing east along U.S. Highway 2 between Pike Bay and Cass Lake, south of Lake 

Winnibigoshish and through Bena. The route would cross the Mississippi River north of 

U.S. Highway 2, continuing east along the highway past Ball Club. The route would 

cross U.S. Highway 2 east of Cedar Road to follow the Enbridge pipeline. The route 

then would continue east along the pipeline through Zemple, heading southeast for 

approximately 0.6 mile along the BNSF railroad, then eastward for approximately 0.7 

mile along the Great Lakes pipeline to Itasca County Road 11. From this point it would 

follow U.S. Highway 2 southeast for approximately 2 miles, breaking off to follow the 

Great Lakes Pipeline north of U.S. Highway 2 for approximately 3.6 miles, crossing back 

to the south side of U.S. Highway 2, and following Minnesota Power’s 115 kV 

transmission line into the Boswell Substation. 

Segment Alternatives associated with this Route Alternative are: 

• Segment Alternative C was developed by the Applicants to reduce the number of 

transmission lines that cross the Mississippi River at the preferred river crossing 

location near Ball Club. This alternative would replace the existing Great River 

Energy 69 kV line crossing the Mississippi River with the proposed 230 kV 

transmission line. Great River Energy’s 69 kV line would be re-routed to the 

south along approximately 4.4 miles of new ROW to cross the Leech Lake River. 

If this Segment Alternative is used, the crossing of the Mississippi River would 

be similar to what exists there currently, one set of structures, although the 

structures would be taller. 

• Segment Alternative F is a 1.3-mile segment that would provide an alternative 

route through Cass Lake between MN Highway 371 and Pike Bay. The segment 

would deviate from Route Alternative 2 by heading south along MN Highway 

371, then east across a CNF parcel. The Segment Alternative avoids traversing 

the northern administrative boundary of the St. Regis Superfund Site, but may 

require the crossing of the site along its southern, western, and eastern 

administrative boundaries (HDR, 2010a). 

• Segment Alternative G is a 1.6-mile segment in the Bemidji area that follows the 

Enbridge pipeline ROW and a 115 kV transmission line from the Wilton 

Substation to the point where the pipeline and transmission line diverge north of 

Division Street. 

• Segment Alternative H is a 1-mile segment that could connect Segment 

Alternative G with Route Alternative 2 along the same 115 kV transmission line 

followed by Segment Alternative G. 

• Segment Alternative I is a 0.5-mile segment connecting Segment Alternative G 

with Route Alternative 2 parallel to the Enbridge pipeline. 

• Segment Alternative J is a 0.4-mile segment connecting Route Alternatives 1 and 

2. This segment would avoid the Bemidji Slough Wildlife Management Area. A 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

34 

2. Project Description 

wetland complex extends outside the boundaries of the Management Area and 

is partially located within the southern portion of Segment Alternative J 

(MnDNR, 2010). 

• Segment Alternative K is a 5.9-mile segment connecting Route Alternatives 1 and 

2 between approximately Hubbard County Road 15 and the existing Cass Lake 

Substation. 

• Segment Alternative M is a 2.4-mile segment connecting Route Alternatives 1 

and 2 along the Otter Tail Power Company’s Nary-to-Cass Lake 115 kV 

transmission line. 

• Segment Alternative N is a 3.7-mile segment connecting Route Alternatives 1 and 

2 along Cuba Hill Road. 

• Segment Alternative O is a 2.7-mile segment connecting Route Alternatives 1 and 

2 along Sucker Bay Road. 

• Segment Alternative P is a 0.4-mile segment connecting Route Alternatives 1 and 

2 across U.S. Highway 2 between the Mississippi River and Ball Club Lake. 

• Segment Alternative Q is a 0.2-mile segment connecting Route Alternatives 1 and 

2 east of Deer River. 

Under this Route Alternative there are two scenarios for crossing the Mississippi River 

near Ball Club: 

• Route Alternative 2 could cross the Mississippi River near Ball Club at a new 

crossing north of U.S. Highway 2. The existing Great River Energy 69 kV line 

would remain in place. Under this Route Alternative there would be two 

transmission lines crossing the river near Ball Club, the Project on the north side 

of U.S. Highway 2 and the existing Great River Energy 69 kV transmission line 

south of U.S. Highway 2. 

• When this Route Alternative is used in conjunction with Segment Alternative C 

(see above), a new set of structures would replace the existing river crossing and 

Great River Energy’s 69 kV transmission line would be relocated along a new 

ROW to cross the Leech Lake River. 

2.2.3.2. Substation Improvements 

Substation improvements and construction included in this alternative are described in 

greater detail in Section 2.4.2. This alternative would include the addition of equipment 

to the Wilton and Boswell substations. The improvements at the Wilton Substation 

would occur within the existing fenced area of the substation. The Boswell Substation 

would be expanded by approximately 1.3 acres to accommodate the additional 

equipment. Under this alternative, the existing Cass Lake 115/69 kV substation, located 

in Section 17 of Pike Bay Township (Township 145N, Range 31W) in Cass County, 

would be expanded by approximately 2.2 acres to accommodate new 230 kV equipment. 

The Applicants have stated that a new Nary 115 kV Breaker Station may be required 

if Route Alternatives 1, 2, or 4 are selected, regardless of the use of Segment 

Alternatives (Weiers, 2010). Unless constructed in connection with Segment 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

35 

2. Project Description 

Alternative A, associated with Route Alternative 1, a new Nary Breaker Station is not 

considered part of the proposed Project and would represent a future action of the 

Applicants. 

2.2.4. Route Alternative 3 

Route Alternative 3 follows existing pipeline, transmission, and road ROWs for 111 of its 

116 miles. The route heads southeast out of the Wilton Substation, then northeast to the 

Blackduck area. There are several route variations around the city of Blackduck. From 

Blackduck, the route heads east and then south to Deer River, and then southeast to the 

Boswell Substation. This alternative skirts the Leech Lake Reservation. While it does 

not avoid the CNF, it avoids the U.S. Highway 2 area, which the CNF considers to be a 

major gateway to the CNF. As with Route Alternatives 1 and 2, this alternative includes 

improvements to the Wilton and Boswell substations. This alternative would not 

include any improvements to the transmission system in the Cass Lake area. The 

capital cost per mile for this Route Alternative, including adders for wetland 

construction and tree clearing, is estimated at $789,655 (Lindholm, 2010). Including 

improvements to the Wilton and Boswell substations, the total capital cost of this Route 

Alternative is estimated at approximately $94.1 million (Lindholm, 2010).

2.2.4.1. Transmission Route 

Route Alternative 3 would follow the same route as Route Alternative 1 for the first 10 

miles between the Wilton Substation and North Plantagent Road SE in the Bemidji area. 

From this point the route would veer north, crossing U.S. Highway 2 and the exit to Paul 

Bunyan Drive SE. The route then would follow an existing 69 kV transmission line to 

the northeast between Bemidji and Blackduck. Although some portions of the 69 kV 

transmission line are cross-country, the route generally parallels Tyler Avenue, east 

along Power Dam Road, north along Parker’s Lake Road NE, and then northeast along 

Long Lake Drive NE/Marcella Drive NE, 3 Culverts Road, and Carter Lake Road/Forest 

Road 2419. The route would deviate slightly from the existing 69 kV route, crossing and 

then rejoining the 69 kV transmission line, briefly following Beltrami County Road 31 

before crossing U.S. Highway 71. The route would continue along the north side of U.S. 

Highway 71 until south of Blackduck, where it would cross U.S. Highway 71 and 

parallel the Blue Ox Trail northeast before turning eastward along Summit 

Avenue/Beltrami County Road 30. The route would continue east along Alvwood Road 

(i.e., Beltrami County Road 30/Itasca County Road 13). At MN Highway 46, the route 

would follow an existing 69 kV transmission line, jogging briefly north along MN 

Highway 46 before continuing east along Itasca County Road 29. The route would 

continue to follow the 69 kV transmission line east and southeast, crossing the 

Bowstring River, past Whitefish Lake, until crossing MN Highway 6. The route would 

then head south, cross-country along a 69 kV transmission line along, roughly parallel to 

MN Highway 6, before continuing directly south away from the highway for 

approximately 10 miles through a forested wetland as MN Highway 6 jogs west to avoid 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

36 

2. Project Description 

the area. The Route Alternative would re-join MN Highway 6 just south of County 

Road 172 and continue south to Deer River. The route, following an existing 69 kV 

transmission line, would pass through Deer River on the east, then jog to the east and 

southeast before joining a 115 kV transmission line north of U.S. Highway 2. From this 

point the route would follow a 115 kV transmission line east then south across U.S. 

Highway 2 where it would follow Route Alternative 1 into the Boswell Substation along 

Minnesota Power’s 115 kV transmission line. 

Segment Alternatives associated with this Route Alternative are: 

• Segment Alternative E is a 10.6-mile segment that would depart from a crosscountry section of an existing 69 kV line to follow MN Highway 6. 

• Segment Alternative R is a 1.8-mile segment that would provide an alternative in 

the Blackduck area. This segment would cross U.S. Highway 71 and head 

eastward overland and then along Forest Road 3415/Beighley Road NE until 

Beltrami County Road 311. 

• Segment Alternative S is a 1-mile segment in the Blackduck area that would 

connect Segment Alternative R with Route Alternative 3 along Beltrami County 

Road 311. 

• Segment Alternative T is a 2-mile segment in the Blackduck area that would 

connect Segment Alternative R with Route Alternative 3. This segment would 

continue eastward along Forest Road 3415/Beighley Road NE from Beltrami 

County Road 311 for approximately 1 mile and then turn north overland and 

then along Wernberg Road NE before connecting with Route Alternative 3 along 

Beltrami County 30. 

2.2.4.2. Substation Improvements 

Substation improvements and construction included in this alternative are described in 

greater detail in Section 2.4.2. This alternative would include the addition of equipment 

to the Wilton and Boswell substations. The improvements to the Wilton Substation 

would occur within the existing fenced area of the substation. The Boswell Substation 

would be expanded by approximately 1.3 acres to accommodate the additional 

equipment. There would be no substation or other improvements to the Cass Lake area 

under this alternative. 

2.2.5. Route Alternative 4 

Route Alternative 4, shown in Figure 2.2-1 and in the detailed maps in Appendix C, is 

a combination of Route Alternatives 1 and 2 and incorporates Segment Alternatives F 

and K into the Route Alternative. This route was identified by the Applicants during 

the Draft EIS comment period as the Applicants’ preferred route. The capital cost per 

mile for this Route Alternative with adders is estimated at $797,143 (Lindholm, 2010). 

Including improvements to the Wilton and Boswell substations, the total capital cost 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

37 

2. Project Description 

of this Route Alternative is estimated at approximately $63.5 million (Lindholm, 

2010).

 

2.2.5.1. Transmission Route 

Route Alternative 4 proceeds east from the Wilton Substation along two 69 kV 

transmission lines for 1.2 miles, then over land for approximately 2,000 feet, before 

turning southeast to follow the Great Lakes Pipeline through southern Bemidji. 

Aside from some slight deviations to avoid homes, the Route Alternative continues 

eastward along the Great Lakes Pipeline until Hubbard County Highway 45. The 

route then follows Segment Alternative K and parallels the Enbridge pipeline for 

approximately 5.9 miles to the city of Cass Lake. From the Cass Lake Substation, the 

route would continue east along the BNSF railway and Enbridge pipeline, and travel 

south of the city of Cass Lake along Segment Alternative F. Use of Segment 

Alternative F would largely avoid impacts to the St. Regis Superfund Site, although 

crossing of the southern, eastern, and western administrative borders of the site may 

be required. The Route continues east along U.S. Highway 2 between Pike Bay and 

Cass Lake, south of Lake Winnibigoshish and through Bena. Route Alternative 4 

follows Route Alternative 2 from Cass Lake to Ball Club for approximately 26 miles. 

Route Alternative 4 would rejoin the route described for Route Alternative 1 west of 

Ball Club near the existing Great River Energy 69 kV transmission line crossing of the 

Mississippi River and would cross the Mississippi River in this location. 

After crossing the Mississippi, the route would continue to parallel the pipelines and 

69 kV transmission line for approximately 0.6 mile to Itasca County Road 119. At 

County Road 119, the route would head cross-country in a southeasterly direction to 

Itasca County Road 118. The route would follow County Road 118 for approximately 

1,200 feet, continuing east cross country, then north for approximately 1,000 feet 

before turning northeast for another 2,150 feet before rejoining the Great Lakes 

pipeline. The route would continue to follow the Great Lakes pipeline for 

approximately 10.2 miles. The route would then follow a Minnesota Power 115 kV 

transmission line for the remaining 4.5 miles to the Boswell Substation. 

The feasible ROW identified for Route Alternative 4 would be located south of the 

Enbridge Energy pipeline from approximately Cass Lake to Ball Club. 

Approximately half of the length of Alternative 4 would be constructed adjacent to 

the Enbridge pipeline. Enbridge recently completed temporary clearing for a pipeline 

project, and this clearing accounts for approximately half of the ROW required for the 

Project along the pipeline. Temporary clearings and access roads developed by 

Enbridge during recent construction of the pipeline are not included in land cover 

type information obtained from MnDNR and are not accounted for in the cover type 

impact calculations that appear throughout Section 3. The impact acreage in Section 3 

assumes impacts to pre-Enbridge construction land cover for all Route Alternatives. 

The lengths, resources, and impacts for Segment Alternatives F and K are included in 

the analysis for Route Alternative 4: 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

38 

2. Project Description 

• Segment Alternative F, a 1.3-mile segment that would provide an alternative 

route through Cass Lake between MN Highway 371 and Pike Bay. The 

segment would deviate from Route Alternatives 2 by heading south along MN 

Highway 371, then east across a CNF parcel. 

• Segment Alternative K, a 5.9-mile segment connecting Route Alternative 1 

with Route Alternative 2 between approximately Hubbard County Road 15 

and the existing Cass Lake Substation. 

Because Route Alternative 4 was developed as a combination of Route and Segment 

Alternatives, there are no associated Segment Alternatives for Route Alternative 4. 

However, portions of Route Alternative 4 that follow the same route as Route 

Alternatives 1 and 2 could use Segment Alternatives associated with those routes. 

The following Segment Alternatives could be used in combination with Route 

Alternative 4: 

• Segment Alternative A is a 15.7-mile alternative developed by the Applicants 

to collocate with an existing 115 kV transmission line from Bemidji to Cass 

Lake, instead of following the Great Lakes pipeline. This segment follows 

Otter Tail Power’s Bemidji to Nary 115 kV transmission line from the Wilton 

Substation south for approximately 10 miles, then follows Otter Tail Power’s 

Nary-to-Cass Lake 115 kV transmission line east and northeast for 

approximately 5.7 miles to the intersection of 317th Avenue and 460th Street in 

Hubbard County. From this point, the Segment Alternative would connect 

with Segment Alternatives L and M to re-join Route Alternative 4. 

• Segment Alternative C was developed by the Applicants to reduce the number 

of transmission lines that cross the Mississippi River at the preferred river 

crossing location near Ball Club. This alternative would replace the existing 

Great River Energy 69 kV line crossing the Mississippi River with the 

proposed 230 kV transmission line. Great River Energy’s 69 kV line would be 

re-routed to the south along approximately 4.4 miles of new ROW to cross the 

Leech Lake River. If this Segment Alternative is used, the crossing of the 

Mississippi River would be similar to what exists there currently, one set of 

structures, although the structures would be taller. 

• Segment Alternative L is a 2.5-mile segment connecting Segment Alternative A 

with Segment Alternative M along Otter Tail Power Company’s Nary–to-Cass 

Lake 115 kV transmission line. This segment would terminate at a new Cass 

Lake Substation that would be located in Pike Bay Township. 

• Segment Alternative M is a 2.4-mile segment connecting Route Alternative 1 

and Route Alternatives 2 and 4 along the Otter Tail Power Company’s Nary-toCass Lake 115 kV transmission line. 

• Segment Alternative N is a 3.7-mile segment connecting Route Alternative 1 

and Route Alternatives 2 and 4 along Cuba Hill Road. 

• Segment Alternative O is a 2.7-mile segment connecting Route Alternative 1 

and Route Alternatives 2 and 4 along Sucker Bay Road. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

39 

2. Project Description 

• Segment Alternative P is a 0.4-mile segment connecting Route Alternatives 1 

and 4 with Route Alternative 2 across U.S. Highway 2 between the Mississippi 

River and Ball Club Lake. 

• Segment Alternative Q is a 0.2-mile segment connecting Route Alternatives 1 

and 4 and Route Alternative 2 east of Deer River. 

At the Mississippi River crossing near Ball Club, Route Alternative 4 follows Route 

Alternative 1 crossing the river near the existing Great River Energy 69 kV 

transmission line crossing. Under this Route Alternative, there are three scenarios for 

crossing the Mississippi River near Ball Club: 

• Route Alternative 4 could cross the river and on a separate ROW parallel to the 

existing Great River Energy 69 kV crossing. This would result in two 

crossings to the Mississippi River, essentially adjacent to one another; 

• Route Alternative 4 could be consolidated with Great River Energy’s existing 

69 kV transmission line on a new set of double circuit structures. Under this 

scenario, there would be one set of structures and two planes of wire crossing 

the river; and 

• If this Route Alternative is used in conjunction with Segment Alternative C 

(see above), a new set of structures would replace the existing river crossing, 

and Great River Energy’s 69 kV transmission line would be relocated along a 

new ROW to cross the Leech Lake River. 

2.2.5.2. Substation Improvements 

Substation improvements and construction included in this alternative are described 

in greater detail in Section 2.4.2. This alternative would include the addition of 

equipment to the Wilton and Boswell substations. The improvements at the Wilton 

Substation would occur within the existing fenced area of the substation. The 

Boswell Substation would be expanded by approximately 1.3 acres to accommodate 

the additional equipment. Under this alternative, the existing Cass Lake 115/69 kV 

substation, located in Section 17 of Pike Bay Township (Township 145N, Range 31W) 

in Cass County, would be expanded by approximately 2.2 acres to accommodate new 

230 kV equipment. The Applicants have stated that a new Nary 115 kV Breaker 

Station may be required if Route Alternatives 1, 2, or 4 are selected, regardless of the 

use of Segment Alternatives (Weiers, 2010). Unless constructed in connection with 

Segment Alternative A, associated with Route Alternative 1, a new Nary Breaker 

Station is not considered part of the proposed Project and would represent a future 

action of the Applicants. 

2.3. Alternatives Considered but Not Evaluated 

In addition to the alternatives identified in Section 2.2, several alternatives to the Project 

were considered but were not included in the detailed evaluation presented in this EIS 

for various reasons. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

40 

2. Project Description 

2.3.1. New Generation Alternative 

Both the Certificate of Need process and the Alternatives Evaluation Study prepared 

under the RUS scoping process evaluated a new generation alternative to the Project. 

Because of the limited transmission capacity for importing energy from other regional 

generation resources, only dispatchable (i.e., readily available on demand) generation 

could serve as a replacement to the proposed Project. Intermittent resources, such as 

wind generation, would not be feasible stand-alone solutions because they are not 

readily available on demand. 

Generators typically have availability in the range of 85 to 95 percent, compared to a 99.9 

percent availability factor for a new transmission line. Because of these differences, a 

generation alternative would have to incorporate a higher rated capacity than the 

anticipated 76 MW deficit by 2011-2012 noted in planning materials to allow for down 

time as well as expected load growth beyond that date (Otter Tail Power et al., 2008c). 

This generation could be located at a single site, or at a number of smaller sites 

disbursed throughout the area. 

The Applicants identified two generation scenarios: 

• Central Station Alternative: installation of a 180 MW natural gas-fired power 

plant comprised of three 60 MW gas-fired combustion turbines. The capital cost 

of this alternative is assumed to be $700/kW, or approximately $126 million. 

• Distributed Generation Alternative: installation of 110 MW disbursed across 11 

sites. It is anticipated that each 10 MW generation site would be comprised of 

between five and seven 1.5- to 2-MW diesel or natural gas generators for a total 

of 55 to 77 individual generators. The capital cost for this alternative is assumed 

to be approximately $7.65 million for each of the 11 sites, or approximately $84.15 

million in total for the 11 sites. (Otter Tail Power et al., 2008c) 

These two generation scenarios were evaluated in the Environmental Report prepared 

under the Certificate of Need docket for the Project. 

Adding new generation into a generation-rich area, such as the North Dakota Export 

(NDEX) boundary where the Project is proposed, requires either displacement of 

existing generation within the area or increasing the transmission outlet capability to 

allow continued operation of the existing generation. The existing generation within 

this boundary is very heavily weighted toward low-cost baseload coal (lignite) and 

hydroelectric facilities. Because of the cost differential between the existing baseload 

facilities and the higher cost generators in this alternative, displacement of these sources 

would increase total system production costs. Because the NDEX boundary is a power 

transfer-limited interface, adding new generation within its boundaries would require 

transmission additions to increase the existing generation outlet capability. It is 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

41 

2. Project Description 

assumed that increased transmission of a length and voltage similar to the Project would 

be required to support the new generation supplied in the central station alternative. 

The distributed generation alternative also faces transmission constraints, as noted in the 

Dispersed Renewable Generation Transmission Study released by the Department of 

Commerce in July 2008. That study assessed the potential for installing 600 MW of 

dispersed renewable generation throughout Minnesota in a way that produced minimal 

impacts on the transmission system. The analysis demonstrated a dispersed renewable 

generation potential scenario where 600 MW could be sited without significantly 

affecting any transmission infrastructure. That analysis found that the potential for 

integrating distributed generation into northern Minnesota was constrained by the 

existing transmission infrastructure. The study identified a potential for up to 40 MW of 

distributed generation in the Cloquet area, the only northern Minnesota site identified. 

In contrast, that study identified the potential for approximately 300 MW of distributed 

renewable generation in southeastern Minnesota and approximately 160 MW of 

potential in southwestern Minnesota. Based upon this assessment of transmission 

potential for distributed generation, it would appear that the distributed generation 

alternative would also require the addition of transmission to be viable. 

It is assumed that the new transmission facilities required for this alternative would be 

of a similar size and in a similar location to the Project. Because the new transmission 

lines constructed under this alternative would negate any benefit of a generation 

alternative over the Project, this alternative was not carried forward for further analysis 

in the EIS. 

2.3.2. Transmission System Alternative 

The Applicants identified three transmission alternatives to the Project: 

• Adding a second Winger-Wilton 230 kV transmission line on separate structures 

from the existing 230 kV line (53 miles, with two substation upgrades); 

• Adding a Badoura–Wilton 230 kV transmission line on separate structures from 

the existing 115 kV line (48 miles, with two substation upgrades); and 

• A rebuild of two existing 115 kV transmission lines, Badoura–Wilton and 

Winger–Wilton, (100 miles, with five substation upgrades). 

Both the Certificate of Need process and the Alternatives Evaluation Study prepared 

under the RUS scoping process evaluated these transmission system alternatives. The 

rebuild of existing transmission lines would result in voltage collapse in the event of a 

Wilton-Winger and Badoura-LaPorte outage. All of the transmission alternatives show 

inferior electric performance and cost-to-benefit profile compared to the Project. Any of 

the transmission alternatives would require additional load-serving improvements in 

the Study Area sooner than the 10- to 15-year window provided by the Project. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

42 

2. Project Description 

2.3.3. Additional Route Alternatives 

During the scoping period, five route alternatives were considered for inclusion in the 

EIS. In addition to Route Alternatives 1, 2, and 3 identified in Section 2.2, two additional 

route alternatives were identified but rejected from further consideration. These 

alternatives are shown in Figure 2-2, and described below (see also the Scoping 

Report/Decision in Appendix A). 

2.3.3.1. Southern Route Alternative 

This Route Alternative would generally follow a pipeline southeast out of the Wilton 

Substation before turning south following a 115 kV transmission line and MN Highway 

4 for several miles. North of Akeley, the route would head east, jogging generally east 

until reaching MN Highway 200. The route would then generally follow MN Highway 

200 to the Remer area before skirting Remer to the north and then generally following 

MN Highway 6 northeast before turning into the Boswell Substation. 

Approximately 11.5 miles of the total 100-mile length of this Route Alternative did not 

follow existing ROWs associated with other transmission lines, pipelines, roads, or 

railroads. This Route Alternative was eliminated from further consideration in the EIS 

process because it did not avoid the LLR or the CNF. The Southern Route Alternative 

has potential for high scenic impacts and, due to the extent of new ROW, would likely 

have greater wetland impacts than Route Alternative 3. 

2.3.3.2. Non-CNF Route Alternative 

As with the Southern Route Alternative, this route would generally follow a pipeline 

southeast out of the Wilton Substation before turning south, following a 115 kV 

transmission line and MN Highway 4 for several miles, before turning east and 

following a series of county roads, 69 kV transmission lines, and overland passages. The 

Route Alternative would then turn north, eventually following the same route as the 

Southern Route Alternative along MN Highway 6 to the northeast and turning into the 

Boswell Substation. 

Approximately 29 miles of the total 126-mile length of this Route Alternative does not 

follow existing ROWs associated with other transmission lines, pipelines, roads, or 

railroads. This alternative has the greatest amount of new corridor of all of the route 

alternatives reviewed. This route was eliminated from further consideration in the EIS 

process because it could impact the greatest number of wetlands, including forested 

wetlands, required the greatest amount of acres to be cleared due to its length, and had 

the greatest length of new corridor of all the Route Alternatives reviewed. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

43 

2. Project Description 

2.3.4. Underground Transmission Line Alternative 

Undergrounding of transmission lines similar in size to the 230 kV Project is seldom 

used because of the significant construction, operation, and maintenance issues, and the 

resulting cost. Undergrounding of electric utility infrastructure is a technically feasible 

option, especially for lower voltage distribution lines. It is common today to see lowervoltage distribution lines that connect to homes and businesses buried directly in the 

ground using less invasive construction methods. In the case of distribution lines, 

undergrounding offers aesthetic and environmental benefits while posing relatively few 

construction, maintenance, and operations challenges. 

However, the complexity and cost of undergrounding increases as the voltage increases. 

As a result, undergrounding is seldom used for transmission facilities of the size of the 

Project. An OES review of Route Permit Application for the Project and other proposed 

high voltage transmission lines, showed that the cost for underground construction has 

been between five and 15 times greater than the cost for a similar overhead transmission 

line. The cost for underground construction depends upon a variety of factors specific 

to the project, but represents the more complicated engineering, increased construction 

time, specialized material, and specialized labor requirements. 

The Applicants have estimated the cost for the Project to be $675,000 to $915,000 per mile 

in 2007 dollars (OES, 2009). The estimated cost range for the same voltage line to be 

placed underground is $10 to $15 million per mile. This cost range for an underground 

line does not include the cost for substations, with the large inductors that are necessary 

approximately every 20 miles to counteract the greater line charging currents associated 

with undergrounding. In addition, there are increased line losses and maintenance 

expenses incurred throughout the useful life of an underground line that makes its cost 

versus an overhead line even greater (Otter Tail Power et al., 2008a). 

Because of the significantly greater expense, installation of underground transmission 

has been limited to locations where physical circumstances allow no other option or 

where overhead construction is prohibited. Examples include congested downtown 

centers where there is no space available between city streets and adjacent buildings for 

adequate clearance. 

While underground lines reduce visual impacts (other than at the 

overhead/underground transition locations) and may minimize surface impacts after 

construction, there are distinct environmental consequences. The predominant 

environmental impact from the construction, operation, and maintenance of 

underground transmission lines arises from the need to develop and maintain a ROW 

totally cleared of woody vegetation. The construction activities for an overhead 

transmission line, discussed in greater detail in Section 2.4, are typically concentrated 

around the line’s structures, with the areas between structures left relatively 

undisturbed except for the removal of trees that could interfere with the energized 

conductors. A narrow pathway between structures is often all that is necessary to string 

the conductors. With underground construction, however, the entire ROW must be 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

44 

2. Project Description 

cleared for construction activities along the entire length of the corridor. This increases 

impacts to wetland areas due to the installation of access roads capable of supporting 

heavy construction equipment, trenching activities, and cable installation. These 

wetland impacts would be permanent if a drivable road were constructed to allow quick 

access to repair the underground line in the event of an incident taking it out of service. 

Underground lines also present challenging reliability and service issues. While 

overhead lines are subject to more frequent outages than underground cables, service is 

usually quickly restored by the automatic re-closing of circuit breakers, resulting in only 

a momentary outage of the transmission line. The lower incidence of outages with 

underground cables is offset by the fact that the outages are much longer. This is 

because re-closing circuit breakers is not recommended until it is verified that there is no 

fault in the underground cable (Otter Tail Power et al., 2008a). 

Restoration of a faulted underground line also takes much longer due to the difficulty in 

locating the fault and accessing the site to make repairs. Repairing failures in high 

voltage extruded dielectric cables is typically not done. Instead, the cable is completely 

replaced between man-hole splice points that are generally located every 1,500 to 

2,000 feet along the cable. This is expensive and very time consuming, with restoration 

taking several weeks or longer depending upon the location and difficulty of access. 

Replacing cable involves bringing in heavy equipment, including cable reels weighing 

30,000 to 40,000 pounds, during all seasons of the year. If the failure is in a splice, it may 

be feasible to make a repair at the splice location without having to replace large 

quantities of cable, but access is still required for equipment and personnel. If the fault 

occurs in a wetland area where all-season roads are not maintained, restoration can be 

further delayed as matting is installed to gain access to the manholes used to replace the 

failed cable (Otter Tail Power et al., 2008a). 

2.4. Project Description 

Final engineering and design for the Project would not be completed until a Route has 

been selected. Route Alternatives are described in Section 2.2. The Applicants have 

requested a 125-foot wide ROW for the Project. The Applicants also have requested a 

wider route, 1,000 feet in most areas, within which a ROW of up to 125 feet would be 

located, in order to design the Project around existing constraints (e.g., buildings, roads, 

railroads, pipelines, and other existing infrastructure). Section 2.4.5 provides a detailed 

discussion about the construction methods that would be used. 

As described in Section 2.4.1, the Applicants propose to use two-pole, H-frame 

structures for a majority of the Project length and single-pole structures in more 

congested areas. The preferred design would utilize either three-pole guyed structures 

or single-pole self supporting structures at angle locations. At soft ground locations, 

the two-pole tangent (in-line) H-frame structures may also be guyed. In rare instances, 

single-pole structures may have to be guyed as well. In addition to the transmission 

line, the Project would also include installation of new equipment in the Wilton and 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

45 

2. Project Description 

Boswell substations. Details about the substation design are provided in Section 2.4.2 

below. Depending upon the Route Alternative, the Project may also either expand the 

existing Cass Lake Substation or would involve constructing a new substation in the 

Cass Lake area. 

2.4.1. Transmission Design 

The Applicants have proposed using a variety of transmission structure types to address 

topographic and other considerations present within the Project Study Area. 

Characteristics of these different structure types are summarized in Table 2-3. 

Table 2-3: Proposed Structure Types 

Line Type Structure 

Type 

Structure 

Material 

ROW 

Width 

(feet) 

Structure 

Height 

(feet) 

Pole 

Diameter 

(inches) 

Distance 

Between 

Poles 

(feet) 

Span 

Between 

Structures 

(feet) 

Single-pole 

Davit Arm Steel 125 80 - 100 54 - 72 N/A 400 - 800 

2-pole HFrame Wood 125 70 - 90 24 – 36 19.5 600 – 1,000 

230 kV 

SingleCircuit 

3-pole 

Corner Wood 

125 + 

guy 

easement 

70 - 90 24 – 36 28 600 – 1,000 

Single-pole 

Davit Arm 230 /115 kV Steel 125 95 - 115 72 - 96 N/A 350 - 700 

DoubleCircuit 2-pole Hframe Wood 125 90 - 125 24 – 36 19.5 400 - 800 

230 /69 kV 

DoubleCircuit 

Single-pole 

Davit Arm Steel 125 95 - 115 72 - 96 N/A 350 - 700 

Note: N/A = not applicable 

Source: Otter Tail Power et al., 2008a 

The Applicants propose to construct single-circuit portions of the transmission line 

using predominantly H-frame 230 kV structures (Figure 2-4). These structures are 

frequently used in the type of wooded, rugged topography with wetlands typical of 

much of the Project Study Area. The H-frame structures would be approximately 70 to 

90 feet high, with spans of approximately 600 to 1,000 feet between structures. The two 

poles would be set approximately 20 feet apart in holes augured to a depth of 

approximately 10 to 15 feet and a diameter of 24 to 36 inches (Otter Tail Power et al., 

2008a). After the poles are embedded, the holes would then be backfilled with native 

soils or granular material. 

Single-pole self-supporting structures (Figure 2-5) are proposed by the Applicants for 

single-circuit portions of the transmission line in areas where the available width of the 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

46 

2. Project Description 

ROW is limited by existing infrastructure or development. The height of single-pole 

single-circuit structures would range from approximately 80 to 100 feet, with the span 

between structures of approximately 400 to 800 feet. Corner structures would either be 

on reinforced concrete drilled shaft foundations or would be directly embedded with 

guy wires, depending upon soil types and route angles (Figure 2-6). Either single or 

multiple pole structures may be utilized as angle structures. Angle structures on 

reinforced concrete drilled shaft foundations would be contained within a 125-foot 

ROW, while additional easement widths, typically 20 by 70 feet, may be necessary for 

guyed angle structures (Otter Tail Power et al., 2008a). 

For any double-circuit portions of the Project, the Applicants propose to use either 

single-pole self supporting structures (Figure 2-7) or double-circuit H-frame structures 

(Figure 2-8). These structures would either be directly embedded or set on reinforced 

concrete drilled shaft foundations. Double-circuit single-pole structures would range in 

height from approximately 95 to 115 feet, with approximately 350- to 700-foot spans 

between structures. Double-circuit H-frame structures would range in height between 

approximately 90 and 125 feet, with a span of approximately 400 to 800 feet between 

structures (Otter Tail Power et al., 2008a).

If steel structures are used, the finish could be galvanized steel, which would provide a 

shiny appearance, or Cor-ten, sometimes referred to as self-weathering, which would 

use an outer coating to retard normal weathering and have a brown, rusty appearance. 

For each phase of the 230 kV circuit, the Applicants propose 954 kcmil aluminum 

conductor steel reinforced (ACSR). The Applicants propose to use 3/8-inch diameter 

extra high strength steel and fiber optic ground wire for the shield wires. (Otter Tail 

Power et al., 2008a) 

 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

47 

2. Project Description 

Figure 2-4: Typical 230 kV H-Frame 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

48 

2. Project Description 

Figure 2-5: Typical 230 kV Single-Pole Structure 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

49 

2. Project Description 

Figure 2-6: Typical 3-Pole Guyed 

Structure
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

50 

2. Project Description 

Figure 2-7: Typical 230/115 kV Single-Pole Double-Circuit Structure 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

51 

2. Project Description 

Figure 2-8: H-Frame 230-115/69 kV 

Structure
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

52 

2. Project Description 

2.4.2. Substation Design 

The Project would require modifications to the Wilton Substation near Bemidji and the 

Boswell Substation near Grand Rapids. Without reinforcing the Cass Lake area system, 

certain contingencies on the transmission system would still result in the Cass Lake area 

being separated from the Bemidji-Grand Rapids Line source at the Wilton Substation. 

The Applicants have already undertaken certain improvements to the transmission 

system in the Cass Lake area which should address the situation in the short-term. 

Depending upon routing and double-circuit determinations, a new or expanded 

substation in the Cass Lake area and breaker station at Nary Junction would be 

required, as addressed in Sections 2.4.2.3 and 2.4.2.4. Impacts from the substation 

improvements are discussed in Section 3. Schematics of the substation improvements 

are shown in Appendix H. 

2.4.2.1. Wilton Substation 

Project modification of the existing Wilton 230 kV Substation would not require physical 

expansion beyond the limits of the existing fenced perimeter (Otter Tail Power et al., 

2008a). The Wilton Substation is located in a rural area east of Bemidji. Two new 230 kV 

breakers and a line termination structure would be added as a result of the Project, along 

with modifications to the existing 230 kV buses and relay panels. The Project would also 

require completion of a new ring bus section, as well as five new 230 kV switches with 

foundations, steel structures, and control panels. All of the proposed improvements 

would be similar in size to existing structures; changes to height and visibility are not 

anticipated. 

2.4.2.2. Boswell Substation 

The Project would require expanding the existing Boswell 230 kV Substation by 

approximately 1.3 acres (Otter Tail Power et al, 2008a). The Boswell 230 kV Substation 

is part of the Boswell Generation Plant and is located on land owned by Minnesota 

Power; no land procurement is required to accommodate the expansion. The land use at 

the substation site is industrial, in keeping with its location near the Boswell Generation 

Plant. The substation additions for the Project would be very similar to the existing 

Boswell 230 kV Substation. The design would have a similar footprint and height. The 

following modifications are proposed: 230 kV buses and relay panels; a new 230 kV 

breaker; and a half bay would be added to the substation. This would involve installing 

two new 230 kV circuit breakers and 230 kV dead-end structures, a new 230 kV bus, five 

new 230 kV switches, and associated foundations, steel structures, and control panels. 

The Boswell Plant and property is on a private road (a section of old MN Highway 6 

now owned by Minnesota Power) about 0.75 mile from U.S. Highway 2 and no change 

in public visibility is anticipated. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

53 

2. Project Description 

2.4.2.3. New or Expanded Substation in the Cass Lake Area 

Under Route Alternative 1 (Figure 2.2-1), a new 230 kV substation would be constructed 

near Cass Lake (Figure 2.2-1b). The new substation would be designed and constructed 

with a 230 kV three-breaker ring bus with 230 kV line switches. The facility would 

include a 230/115 kV transformer of approximately 187 MVA that steps down the 

voltage to a 115 kV three-breaker ring bus to reliably establish a connection to the 

existing Nary Junction–Cass Lake 115 kV line. The new substation would also require a 

control house, relay panels, foundations, steel structures, and switches. The substation 

yard would be approximately 500 by 500 feet of fenced yard and would require access 

roads. The cost for equipment and construction is estimated to be $5.5 million (Otter 

Tail Power et al, 2008a). Potential locations for a new substation are identified in 

Section 2.2. 

Under Route Alternatives 2 and 4, the existing Cass Lake 115/69 kV Substation, located 

in Section 17 of Pike Bay Township (Township 145N, Range 31W) in Cass County, 

would be upgraded and expanded to include to 230 kV capability. The existing 

substation would be expanded approximately 320 feet to the west on land currently 

owned by Otter Tail Power Company. The estimated substation expansion area is 

approximately 2.2 acres. The new 230 kV equipment would include a 230 kV threebreaker ring bus with line switches, a new 230/115 kV transformer (~187 MVA), and 

associated 115 kV facilities to integrate this transformer into the existing equipment. It is 

expected that a new 115 kV four-breaker ring bus with switches would be installed to 

connect into the 115 kV line back to the Nary Junction, up to the 115 kV line serving 

Enbridge pumping station load, and into the existing 115/69 kV transformer. Due to the 

addition of new 230 kV equipment and associated protection facilities, the substation 

would require a new control house, relay panels, foundations, steel structures, and 

switches. The existing substation would remain energized during and after the 

expansion to serve local loads. The estimated cost of the equipment and construction is 

$5 million (Otter Tail Power et al., 2008a). 

Under the No-Build Alternative and Alternative 3, no improvements to the load serving 

capability in the Cass Lake area and no new substation or substation improvements 

would occur. If Segment Alternatives A and D are used in conjunction with Route 

Alternative 1, there would be no substation expansion or construction in the Cass Lake 

area. 

2.4.2.4. Nary Breaker Station 

If Segment Alternative A is used in connection with Route Alternative 1, a new Nary 

115 kV breaker station would be located adjacent to the existing Nary Switch, at the 

intersection between the existing Nary to Cass Lake 115 kV, the Bemidji to Nary 115 kV, 

and the Nary to LaPorte 115 kV transmission lines (Guthrie Township, T144N, R33W). 

The Applicants have stated that a new Nary 115 kV Breaker Station may be required 

for the area if Route Alternatives 1, 2, or 4 are selected, regardless of the use of 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

54 

2. Project Description 

Segment Alternatives (Weiers, 2010). Unless constructed in connection with Segment 

Alternative A, associated with Route Alternative 1, a new Nary Breaker Station is not 

considered part of the proposed Project and would represent a future action of the 

Applicants. Potential cumulative effects from the Project and construction of the 

Nary Breaker Station are discussed in Section 4. The Nary 115 kV Breaker Station 

would be located on a site of approximately 2.5 acres and consist of a fenced area of 

approximately 225 by 225 feet, with an additional cleared area of approximately 100 feet 

around the perimeter. The breaker station would consist of three 115 kV circuit breakers 

and associated switches, communications, relay and control equipment, three 115 kV 

line termination structures, and a control house. An improved access road and small 

parking lot would also be required to move equipment to the site. The estimated cost of 

the Nary Breaker Station is $2.6 million (Otter Tail Power et al., 2008a).

2.4.3. Property Acquisition 

Construction of the Project would require acquisition of easements for the transmission 

line portion of the Project and for the land for a new Cass Lake Substation (under Route 

Alternative 1) and a Nary Substation (under Route Alternative 1 when used in 

conjunction with Segment Alternative A). 

2.4.3.1. Transmission Line Right-of-Way Acquisition 

Following issuance of a Route Permit by the Commission, the Applicants would begin 

the process of acquiring easements for the location and construction of Project. The 

right-of-way agent would complete a search of the public records of all lands involved 

with the Project. A title report would be developed to determine the legal description of 

the property, the owner(s) of record for the property, and information regarding 

easements, liens, restrictions, encumbrances, and other conditions of record. 

Because of the numerous notices published and mailed as well as the public meetings 

held during the Applicants’ development of the Project and the environmental review of 

the Project, and the hearings held in the Project area as part of the Minnesota route 

permitting process, it is likely that the majority of landowners would be aware of the 

Project prior to contact from a right-of-way agent. Once the property owners along the 

approved route have been identified, a right-of-way agent would inform them of the 

construction of the transmission line and how it may affect their property. With a 

property owner’s permission, survey crews would enter the property to complete the 

preliminary survey work and possibly conduct soil investigations for structure location. 

As the design of the transmission line nears completion, the survey crews would stake 

the structure locations. The right-of-way representative would show the landowner 

where the structure was proposed to be located on the property and would discuss any 

location concerns. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

55 

2. Project Description 

During the acquisition process, the property on which easement rights were required 

would be evaluated by the agent to determine the amount of just compensation. In the 

event that a complicated appraisal problem arises, or if a statutory requirement dictates, 

the Applicants’ right-of-way agent would arrange for an appraisal to determine the 

value of the rights being acquired. Circumstances requiring an appraisal include land 

that has mining interests, business interests or recreational opportunities, or if 

condemnation is required. A third party appraisal is generally not used unless there is a 

dispute over the value of the land. The Applicants would then make an offer to the 

owner based upon the appraisal. 

The right-of-way agent would begin the negotiating process by presenting the required 

legal documents to the property owner. Property owners would also be provided maps 

of the transmission line route or site showing the landowner’s parcel. The offer of 

compensation for an easement or for purchase of the property would be explained as 

requested, and the landowner would be allowed a reasonable amount of time in which 

to consider the offer, obtain their own appraisal, and present information the owner 

believes is relevant to determining the value of the property. 

The agent would work closely with the landowner to try to arrive at a negotiated 

settlement that is fair and acceptable to all parties. In most cases, right-of-way agents 

are able to work with the landowners to address their concerns. In some cases a 

negotiated settlement is not possible and the Applicants may choose to obtain the ROW 

by exercising their right of eminent domain (condemnation). Condemnation 

proceedings would only be initiated by the Applicants if reasonable efforts to negotiate 

an agreement at what is believed to be just compensation have failed. 

Minnesota Statute 216E.12, subd. 4 (sometimes referred to as the “buy the farm” 

provision) allows landowners of certain classes of land (e.g., homestead, agricultural, or 

seasonal residential recreational, as defined in Minnesota Statute 273.13) the option of 

requiring the Applicants to purchase the owner’s entire property if the transmission line 

crosses a portion of the property. 

2.4.3.2. Substation Property Acquisition 

No additional land is needed for the proposed 230 kV upgrades at the Wilton and 

Boswell substations, or the possible 230 kV upgrade at the Cass Lake Substation. 

However, land must be acquired if the route selected requires a new 230 kV substation 

in the Cass Lake area (for Alternative 1) or the Nary Breaker Station (if Route Alternative 

1 is used in conjunction with Segment Alternatives A and L. If the final route permit 

requires the construction of a new Cass Lake 230 kV Substation or a Nary Breaker 

Station, the Applicants would contact the appropriate landowners to obtain the 

property. The Applicants would seek to obtain the property through a voluntary 

purchase, and if an agreement could not be reached, would consider exercising their 

right of eminent domain. The “buy the farm” provision of Minnesota Statute 216E.12, 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

56 

2. Project Description 

subd. 4, would also apply to any substation permitted as part of the Commission’s 

Route Permit. 

2.4.4. Preconstruction Activities 

Preconstruction activities include preparation and approval of the Certificate of Need 

and the Route Permit applications, completing the required environmental review, 

coordinating and obtaining all other necessary permits and approvals, and acquiring 

ROW easements. 

2.4.5. Transmission Line Construction Procedures 

Once access to the land is granted, preparation of the ROW for construction begins in 

coordination with landowners. Underground utilities would be identified and located 

in cooperation with local utility companies to minimize conflicts with the existing 

utilities along the route. If necessary, the Applicants would work with local utility 

owners to relocate existing utilities. 

Up to three staging areas of approximately 5 acres each would be established for 

temporary storage of materials and equipment once a route is chosen, in consultation 

with local landowners and consistent with local, state, and federal permit requirements. 

A previously-disturbed or developed area is typically used to minimize impacts to 

sensitive resources. Such an area includes sufficient space to lay down material and preassemble some structural components or hardware. Other staging areas located along 

the ROW are limited to a structure site for lay down and framing prior to structure 

installation. Stringing setup areas are also used to store conductors and the equipment 

necessary for stringing operations. 

Preparation for construction begins with development of temporary access points from 

existing roads. Clearing of all woody vegetation and brush within the 125-foot-wide 

ROW would be required to facilitate the safe and efficient construction, operation, and 

maintenance of the transmission line. A reasonably level temporary access path is 

required to provide for safe passage of construction equipment within the ROW. At 

structure locations, a stable working surface free of tripping hazards is required for 

framing and erecting structures, and for the installation of concrete foundations if 

required. 

Vegetation would be cut at or slightly above the ground surface. Rootstock would be 

left in place to stabilize existing soils and to regenerate vegetation after construction. 

With the approval of the landowner or land manager, stumps of tall-growing species 

would be treated with an approved herbicide to discourage re-growth. Within the CNF, 

alternative means of stump control would be identified in consultation with the land 

managers. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

57 

2. Project Description 

The CNF would require a timber sale for merchantable timber. Merchantable timber is 

typically cut to standard log lengths and temporarily stacked along the ROW until 

transport. Vegetation clearing debris (e.g., unmerchantable trees, brush, and slash) may 

be cut and scattered, placed in windrow piles, chipped, or burned, depending upon the 

location and requirements of the land manager or land owner. Material suitable for 

firewood may be collected and made available to local residents. 

To minimize the potential for tire and chassis damage to construction equipment, and to 

maintain a safe, level access path and structure installation area, incidental stump 

removal would occur. Stumps that interfere with the placement of mats or movement of 

construction equipment would be ground down to a point at or slightly below ground 

level. The stump grinding equipment would mix woody material with soils. This 

mixture would be evenly spread in the vicinity of the stump to a depth that would allow 

existing low-growing vegetation to re-establish. 

If temporary removal or relocation of fences is necessary, the installation of temporary 

or permanent gates would be coordinated with the landowner. The right-of-way agent 

would also work with landowners for early harvest of crops, where possible. During 

the construction process, the Applicants may ask the property owner to remove or 

relocate equipment and livestock from the ROW. 

Transmission line structures are generally designed for installation at existing grades. 

However, if vehicles or installation equipment cannot safely access or operate near the 

structure, minor grading of the immediate terrain would be performed to provide a 

reasonable level working surface for construction and maintenance of the structure. In 

locations where Project structures would be located within or in proximity to highway 

ROW, the Applicants would need to communicate with MnDOT to determine 

suitable structure locations and grade restoration to prevent erosion and maintain 

appropriate surface water drainage along the highway.

Environmentally sensitive areas or areas susceptible to soil erosion would require 

special construction techniques, including the use of low ground pressure equipment, 

timber mats, terracing, water bars, bale checks, rock checks, or temporary mulching and 

seeding of disturbed areas exposed during long periods of construction inactivity. 

Long-term soil erosion control measures may include permanent seeding, mulching, 

erosion control mats, or other measures depending on site conditions. Temporary silt 

fences, sedimentation ponds, and other measures may be utilized to prevent sediment 

from running off into wetlands or other surface waters. 

Construction equipment would be inspected frequently to ensure hydraulic systems and 

oil pans are in good condition and free of significant leaks. Portable spill containment 

kits would be required for each piece of construction equipment with the potential to 

discharge a significant amount of oil to the environment. Operators would be present at 

the nozzle at all times when refueling is in progress. In the event of a spill, the source of 

the spill would be identified and contained immediately upon discovery. The spill and 

contaminated soils would be collected and treated and disposed of in accordance with 

all applicable federal, state, and local requirements. If a significant spill were to occur to 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

58 

2. Project Description 

surface waters, methods to contain and recover released material such as floating booms 

and skimmer pumps would be used. Noticeably contaminated soils would be excavated 

and placed on and covered by plastic sheeting in bermed areas. An emergency response 

contractor would be secured, if necessary, to further contain and clean up a severe spill. 

Refueling of equipment in proximity to sensitive resources, such as lakes and wetlands, 

would not be permitted. 

In the event that protected species or cultural and historical artifacts are likely to be 

encountered during construction activities, project management personnel would 

consult with regulatory authorities regarding appropriate construction procedures and 

mitigation measures. 

Construction materials would be hauled either directly from the local highway or 

railroad network to structure sites, or brought first to material staging areas and then to 

the structure sites. The transmission line components, including the poles, arms, and 

hardware, are normally brought to the temporary staging areas on flatbed trucks. These 

materials are stored until needed and then loaded on flatbed trailers or special pole 

trailers for delivery to the structure site where they are unloaded for installation. 

A stable working surface is required at structure locations. Timber mats are commonly 

used to provide a working surface in unstable soils. Structures are normally assembled 

on the ground along with insulator assemblies ropes and then raised into position. For 

direct embedded structures, the poles are set in augured holes with large rubber-tired or 

tracked cranes. The annular space between the pole and the augured hole is backfilled 

with native soils if suitable or with granular materials. 

Where reinforced concrete foundations are required, large rubber tired or track mounted 

auger equipment is used to excavate a circular hole of the appropriate diameter and 

depth. In upland areas, excavated material would be spread evenly around the 

structure base to promote site drainage. Reinforcing steel and anchor bolts are set in 

position. Ready-mixed concrete is then placed in the excavation. In wetland areas, a 

telescoping temporary steel caisson would be placed in the foundation hole to stabilize 

the soil walls. Concrete is placed in the excavation. Water pumped from the excavation 

would be placed into tanker trucks or empty concrete trucks and hauled away to a 

specially designated upland disposal area, or brought back to the concrete batch plant 

for discharge. Concrete truck wash water would be discharged only in specially 

designated upland disposal areas or at the concrete batch plant. 

After the concrete is poured, the steel caisson is removed. In some situations, a 

permanent caisson may be required to stabilize the excavation. During drilling, a 

minimal amount of granular material (from an outside source) would be placed in the 

area between the caissons and the timber mats (if required at that location) to provide 

safe footing for construction personnel. During final restoration, the granular material is 

leveled or removed to restore the original ground contours for re-vegetation of native 

species. After the foundation concrete is placed, excess excavated materials would be 

transported to a suitable upland site by truck for disposal, in compliance with local, 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

59 

2. Project Description 

state, and federal requirements. After allowing adequate curing time, the steel pole 

structure base plates are bolted to the concrete foundations. 

The wire stringing process starts in a setup area prepared to accommodate the stringing 

equipment and materials, normally located mid-span on the centerline of the ROW. The 

rope machine, new conductor wire trailers, and tensioner are located at the wire 

stringing set-up area. This phase of construction occurs after the structures have been 

erected, and fitted with stringing blocks (also called dollies or sheaves) and with singleleader “p-line” ropes that reach the ground. Stringing blocks are a type of pulley that 

attach to the insulator assembly and temporarily support a pulling rope or “p-line” and 

a wire rope or “hard line,” which in turn supports the conductor before it is 

permanently “clipped in.” 

The process starts as the construction crew pulls the p-lines toward the first structure 

beyond the setup area. The p-lines are normally pulled down the ROW with a small 

wide-track bombardier or other small equipment. At each structure, the ropes are 

detached from the bombardier and attached to the single leader p-line to lift the ropes 

up into the dollies. Then the ropes are reattached to the bombardier and driven to the 

next structure for the same process. After the p-line has been strung through all the 

structures for all phases within the stringing interval, the pulling ropes are attached to a 

hard line and pulled, one at a time, back through the dollies to the beginning of the 

interval. A hard line set-up is located at the opposite end of the interval from the wire 

stringing setup area. Each hard line is then attached to the conductor wire with an 

attachment called a “sock,” which is pulled back through the dollies to the end of the 

interval. Crewmembers travel along the access route in a pickup truck and follow the 

“sock” as it is being pulled to make sure it does not get hung up in the dollies. One at a 

time, the conductor wires are then pulled to the appropriate tension and clipped into 

place utilizing permanent suspension hardware. 

Wire stringing and hard line set-up areas are normally located in upland areas during 

spring, summer, or fall conditions. During winter when frozen conditions provide a 

stable working surface, set-ups may be located in wetland areas. If set-ups in wetlands 

are required when surface conditions are not stable, extensive use of timber matting is 

required. All activities associated with jurisdictional wetlands would be conducted in 

accordance with local, state, and federal (i.e., USACE) regulations and permitting. 

Spanning streams and rivers by placing structures above the normal high water level is 

the most effective means to minimize impacts to water areas during construction. In 

general, construction equipment is not permitted to be driven across waterways except 

under special circumstances, and then only after discussion with the appropriate 

resource agency. Where waterways must be crossed by construction equipment, the 

Applicants would use temporary clear span bridges to minimize the impact on the 

waterway. For those waterways that cannot be crossed with construction equipment, 

workers might walk across or use boats during wire stringing operations to pull in the 

new conductors and shield wires or in the winter drive equipment across the ice. In 

areas where construction occurs close to waterways, appropriate measures would be 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

60 

2. Project Description 

employed to minimize soil erosion and prevent sedimentation of the waterways. The 

Applicants would ensure that equipment fueling and lubricating occur at locations that 

prevent contamination of waterways. 

2.4.6. Substation Construction Procedures 

The substation upgrades involve adding new equipment, modifying existing equipment, 

or replacing existing equipment with new equipment. All construction work for the 

Wilton, Boswell, and the possible upgrading of the existing Cass Lake substation would 

occur within the existing substation property. Construction work on a new possible 

Cass Lake Substation and Nary Breaker Station would occur on newly acquired 

property. 

The substations would be built or upgraded in compliance with the applicable 

requirements of the National Electrical Safety Code (NESC), Occupational Safety and 

Health Act (OSHA), and state and local regulations. The final design of new or 

upgraded substations would take the local conditions of the sites into consideration and, 

where warranted, would include safety provisions beyond the minimum requirements 

established in the various applicable safety codes. Contractors would be required to 

adhere to all such safe working practices. The new and upgraded substations would be 

designed to allow future maintenance to be done with minimum impact to substation 

operation and with the necessary clearance from energized equipment to ensure safety. 

Construction of a new substation or breaker station, as well as expansion of existing 

substations, would include site grading, installation of concrete foundations for 

substation equipment, installation of a fence along the substation perimeter to contain 

substation equipment and secure the facility, installation of gravel surfacing material 

within the fenced area, and installation of substation equipment. Sites for a new 

substation, substation expansion area, or breaker station would be graded and leveled to 

ensure both a stable base for the substation equipment and proper drainage and runoff 

control in accordance with the Stormwater Pollution Prevention Plan. Depending upon 

soil characteristics specific to each site, soil may need to be replaced to ensure stability 

and drainage. Topsoil would be removed, stockpiled, and re-spread on-site. Excess soil 

would be removed from the site. Once the site is graded, a perimeter fence, typically a 

chain link fence, is installed to contain the substation equipment. After installation of 

the fence, concrete foundations are placed to support the substation equipment and 

gravel is laid throughout the fenced area. After the surface area is prepared, substation 

components would be delivered on tractor-trailer trucks and installed on their 

foundations. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

61 

2. Project Description 

2.4.7. Restoration Procedures 

Unless otherwise agreed upon by the landowner, all storage and construction buildings, 

including concrete footings and slabs and all construction materials and debris, would 

be removed from the site once construction is complete. Post-construction reclamation 

activities involve restoring the areas to their original condition to the extent practicable, 

including removing and disposing of debris; removing all temporary facilities, including 

staging and laydown areas; employing appropriate erosion control measures; and 

reseeding areas disturbed by construction activities with vegetation similar to that 

which was removed. Seed mixture would be certified as free of noxious or invasive 

weeds. In cases where soil compaction has occurred, the construction crew or a 

restoration contractor uses various methods to alleviate the compaction, or as negotiated 

with landowners. 

Once post-construction reclamation is completed, landowners are contacted by the rightof-way agent to determine if the clean-up measures have been finished to their 

satisfaction and if any other damage may have occurred. If damage has occurred to 

crops, fences, or the property, the Applicants would negotiate with the affected 

landowner, under terms outlined in the easement agreement, to determine an acceptable 

compensation for the damage. Depending upon the wishes of the landowner, 

compensation may be monetary or may involve hiring a contractor to restore the 

damaged property as near as possible to its original condition. 

2.4.8. Transmission Line Maintenance and Operation 

Access to the transmission line ROW is required to perform periodic inspections, 

conduct maintenance, and repair damage. Regular maintenance and inspections would 

be performed during the life of the transmission line to ensure its continued integrity. 

Inspections would be limited to the ROW and to areas where obstructions or terrain 

may require off-right-of-way access. All inspection and maintenance activities would be 

conducted consistent with local, state, and federal regulations and permits. If problems 

are found during inspection, repairs would be performed and the landowner would be 

compensated for any loss. 

The ROW would be managed to control vegetation that interferes with the operation 

and maintenance of the transmission line. Portions of the Project route would be in 

forested areas, requiring tree maintenance to maintain the integrity of the transmission 

line. Native shrubs that would not interfere with the safe operation of the transmission 

line would be allowed to reestablish in the ROW. The Applicants’ practice provides for 

the inspection of major transmission lines every year to determine if clearing is required. 

Other transmission lines are typically reviewed on a two-year cycle. Right-of-way 

clearing practices include a combination of mechanical and hand clearing, along with 

herbicide application where allowed, to remove or control vegetation growth. Noxious 

weed control with herbicides would be conducted on a two-year cycle around structures 

and anchors, where approved for use and consistent with the Applicants approved 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

62 

2. Project Description 

operation and maintenance plans for private and public (i.e., CNF, MnDNR, and 

County) lands. 

2.4.9. Substation Maintenance and Operation 

Inspections would be performed regularly over the life of the substations to maintain 

equipment and make necessary repairs. Routine maintenance would be conducted as 

required to remove undesirable vegetation that may interfere with the safe and reliable 

operation of the substations. 

2.4.10. Construction Schedule and Workforce 

The Applicants require an in-service date of December 2011. Project construction would 

commence once the permitting and final design is completed. The anticipated 

construction schedule and workforce requirements are shown in Table 2-4. 

Table 2-4: Construction Schedule and Workforce Estimates 

Task Schedule Workforce 

Permitting January 2007 - Summer 2010 27* 

Land Acquisition Spring 2010 - Fall 2010 6 

Project Design January 2010 - Fall 2011 6 

Project Construction Fall 2010 - Fall 2011 75 

In-Service Date December 2011 N/A 

Note: * The Applicants have 15 persons assigned to work on the Project (i.e., utility staff and 

engineering/environmental/legal consultants), with another 12 persons retained to conduct 

biological/archeological field work. 

2.4.11. Future Plans and Abandonment 

The expected lifespan for the Project is over 50 years, provided that the Project’s 

components are maintained. If the Project were to be abandoned, transmission 

structures would be removed, substation components would be removed and, without 

vegetation management along the transmission ROW or substation sites, surrounding 

vegetation would reclaim the area disturbed by the Project. In practice, transmission 

lines are seldom abandoned. 

2.5. Comparison of Alternatives 

Tables ES-2 and 5-1 provide a detailed comparison of the Route Alternatives and their 

associated impacts on specific resources in the Study Area. The Route Permit issued 

by the PUC will define the Project that is being permitted and will identify the Route 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

63 

2. Project Description 

Alternative or combination of Route and Segment Alternatives that will make up the 

final permitted route. A Preferred Alternative is not identified in the EIS under the 

state process. The federal lead agency has developed a Preferred Alternative for the 

Project, which is summarized below and discussed in detail in Section 5. 

2.5.1. Federally Preferred Alternative 

NEPA requires identification of a preferred alternative by the lead federal agency. 

RUS is the lead federal agency for the Project, with the other federal agencies acting 

as cooperating agencies. 

Based on the information in the Draft and Final EIS documents, RUS has identified 

Route Alternative 4 as the federally preferred alternative. Route Alternative 4 is also 

the environmentally preferred alternative, as discussed in Section 5.2. Route 

Alternative 4 is consistent with Purpose and Need of this Project and is in compliance 

with the Chippewa National Forest Land and Resource Management Plan as well as 

other appropriate laws and regulations across land ownerships. See Appendix C and 

D for maps of Route Alternative 4. Route characteristics and potential impacts of the 

alternate routes are compared in Section 5.1, Comparison of Alternatives, and 

throughout the EIS. The federally preferred alternative is further discussed in 

Section 5.2. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

64 

3. Affected Environment, Impacts, and Mitigation 

3. Affected Environment, Impacts, and Mitigation 

This section describes the environmental setting as it relates to each alternative 

considered under the proposed Project. The resources and environmental settings 

included for analysis within this section were identified during the scoping process for 

the Project. The following subsections are divided into discussions about the affected 

environment, potential direct and indirect impacts from the Project, and potential 

mitigation measures. 

The discussion of affected environment describes the resources and environmental 

settings found in the Study Area. For purposes of analysis, the Study Area is defined as 

the generally 1,000-foot wide route proposed for each of the build alternatives (Route 

Alternatives 1, 2, 3, and 4 and their associated Segment Alternatives A through T). 

The discussion about direct and indirect impacts describes the potential effects from the 

Project alternatives, including the No-Build Alternative. For each of the Route 

Alternatives, the Applicants identified a feasible 125-foot wide Right of Way (ROW) that 

could be located within the 1,000-foot wide route in a way that avoids or minimizes 

impacts to many resources identified by the Applicants in their preliminary 

environmental review and design of the Project. Analysis of direct and indirect 

impacts was conducted assuming the placement of the feasible 125-foot wide ROW 

identified by the Applicants. For those Segment Alternatives for which a feasible ROW 

has not been identified, analysis was conducted assuming the placement of the ROW 

along the centerline of the 1,000-foot wide route. The impacts analysis presented in 

this Section is pre-mitigation, and thus presents a worst case estimate of impacts, 

based on available data, within the specified 125-foot ROW assuming that no 

mitigation or avoidance measures are implemented other than those incorporated into 

the Project design and feasible alignment proposed by the Applicants. A comparison 

of the Project alternatives is presented in Section 5, Comparison of Alternatives. 

The actual location and width of a ROW for the Project is unknown at the time this 

document was prepared, and will be determined in the Commission’s High Voltage 

Transmission Line (HVTL) Route Permit for the Project. The impact analysis was 

conducted using the feasible 125-foot ROW; however, final alignment of the Project 

and associated ROW could be located anywhere within the 1,000-foot wide Route 

Alternative selected, as practicable and permittable, and could be altered to avoid 

sensitive resources or impacts identified in this section or during the final design of 

the Project. As such, the impacts presented in this section represent an estimate of 

impacts from construction and operation of the Project. 

The potential effects of the Project on resources within the boundaries of the Leech Lake 

Reservation and Chippewa National Forest are described separately for each resource, to 

identify unique potential impacts to those geographic areas. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

65 

3. Affected Environment, Impacts, and Mitigation 

The mitigation discussion provides potential measures to reduce or eliminate 

anticipated direct and indirect impacts identified for each resource area. Mitigation 

measures are not discussed for identified potential direct and indirect effects that are 

either not anticipated to occur under construction or operation of the Project or are 

anticipated to result in a positive effect. The mitigation discussion includes typical High 

Voltage Transmission Line (HVTL) permit conditions issued by the Commission, 

mitigation strategies proposed by the Applicants in the Application for a Route Permit, 

and additional mitigation measures that may be warranted. For mitigation measures 

that have been proposed or agreed to by the Applicants, the text specifies that these 

mitigation measures “would” occur. For all other mitigation measures, including those 

that may be required by the HVTL permit or imposed by regulating agencies, the text 

specifies that these mitigation measures “could” occur. 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 

 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

66 

3.1 Aesthetics 

3.1. Aesthetics 

This section provides information about the existing visual landscape in the Study Area 

and describes identified scenic areas and sensitive visual receptors. For the purposes of 

this analysis, the Study Area is comprised of each of the 1,000-foot-wide Route 

Alternatives and Segment Alternatives. The potential aesthetic impacts would occur to 

viewers (e.g., residents, historical users of the Study Area, recreational users, and those 

traveling on area highways and roads) that could view the newly cleared Project rightof-way (ROW) of up to 125 feet and associated transmission line structures from within 

and outside of the Project ROW. For purposes of analysis, potential impacts to the ROW 

were calculated using the feasible 125-foot ROW identified by the Applicants for each of 

the Route and Segment Alternatives. The focus of this analysis is placed upon visual 

experiences, which are the ways in which people view the landscape. The active 

recreational use of these resources is discussed within Section 3.13, Recreation and 

Tourism. 

Methodology and Sources of Information 

Potential impacts of each of the Route and Segment Alternatives were evaluated based 

upon two methods, overall impacts to visual resources/users and to Chippewa National 

Forest (CNF) scenic integrity objective (SIO) classifications. With the former method of 

analysis, visual simulations were evaluated for the Study Area. The Applicants 

commissioned a visual impact assessment in 2008 that incorporated methods commonly 

used by the Minnesota Department of Transportation (MnDOT) for linear projects. For 

that assessment, the MnDOT Visual Impact Assessment (VIA) process was augmented 

to include VIA techniques developed by the Federal Highway Administration (FHWA) 

and scenic management practices developed by the U.S. Forest Service (USFS) (FHWA, 

1981; MnDOT, 2009d). As part of the visual impact assessment, visual simulations of the 

Project’s potential infrastructure were created. The visual simulations were used to 

determine the effects of the Project, which include whether or not residents and visitors 

to the Project area would be able to see the transmission lines and other infrastructure 

from common vantage points (see Appendix E). As indicated in Section 2.4.1, 

Transmission Design, the typical structure material would be either wood or steel. The 

visual simulations appear to utilize a wood structure. Where available, photographs are 

provided to analyze typical urban/highway settings within the Study Area, locations 

within an existing utility ROW for transmission lines and/or a pipeline, and in locations 

where a new ROW would have to be created for the Route Alternatives. 

For the second method, the USFS Handbook for Scenery Management and the concept of 

“landscape visibility” discuss the relative scenic importance of locations within the 

Study Area. The CNF SIO classifications were used to classify visual resources for the 

alternatives both within and outside of the CNF. The definitions of high, moderate, and 

low SIO values were used within a geographic information systems (GIS) program to 

determine the percentage of each Route and Segment Alternative located within an area 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

67 

3.1 Aesthetics 

of a particular SIO value. The GIS program also matched the existing land cover and 

use to the various categories to determine the amount of land acreage with High, 

Moderate, and Low SIO values. 

The model also was extrapolated and applied to the Study Area outside of the CNF. For 

Route Alternatives of outside the CNF, the following categories were evaluated: 

• High SIO: U.S. and MN roads, Lakes with Public Access, the Mississippi River, 

the Paul Bunyan Trail, and the Heartland Trail; 

• Moderate SIO: County State Aid Highways and Municipal Areas; and 

• Low SIO: All areas not identified according to the aforementioned criteria (Otter 

Tail Power et al., 2008a). 

Determining the potential impacts to the SIO ratings is difficult to do because the ratings 

are based upon the overall characteristic of an entire roadway, landform, location, or in 

the case of the CNF, a management area. Therefore, as described in Section 3.1.2, it 

could only be stated the Route Alternatives generally would not directly alter the overall 

SIO rating of a particular resource, the impacts would be localized and would be 

minimal in scale. For instance, Route Alternatives 1, 2, and 4 cross the Mississippi River 

west of Ball Club, but the overall SIO value of this resource (i.e., the Mississippi River) 

would not be impacted, because only a minimal portion of the river’s total length would 

be affected by the construction and operation of the Project. 

3.1.1. Affected Environment 

The area in northern Minnesota that the Route and Segment Alternatives cross tends to 

be positively valued for the “scenic” quality of its forests, lakes, and unique natural 

resources. These landscapes are often viewed from individual homes by residents in the 

area. For visitors, these landscapes are typically experienced from the vantage point of a 

road, trail, or body of water. United States highways, state highways, large bodies of 

water, and municipal areas are the most frequently used vantage points within the 

Study Area. Additional information about these types of resources is provided in 

Section 3.13, Recreation and Tourism. Section 3.13 provides information about both the 

active and passive uses of resources located within the Study Area. 

This section describes the current conditions within the Study Area and provides 

assessments of the existing scenic character and viewer sensitivity in the Study Area. It 

includes a general overview of the alternatives, specific information for each alternative, 

and a brief overview of the Chippewa National Forest. 

3.1.1.1. Overview of the Study Area 

The Study Area consists of a mixture of forested areas, with areas of residential 

settlement and agriculture. The Project also would require crossing of the Mississippi 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

68 

3.1 Aesthetics 

River and would cross or pass near a number of other water bodies and recreational 

trails, important focuses of recreational use throughout the Study Area. The area is 

crossed by transportation and utility corridors, including U.S. Highway 2, county roads 

municipal roads, forest roads, pipelines, transmission lines, and railroads. Important 

characteristics of these users and features are highlighted below. 

Outside of the CNF, many of the forests have been fragmented by development and 

may not offer a landscape that is as visually “complete” as the CNF. The Study Area 

outside of the CNF tends to be more densely populated than the CNF Study Area. 

Despite these differences, the Study Area outside of the CNF has some areas of high 

scenic integrity, including areas near Bemidji, Cass Lake, and Nary, and at the eastern 

terminus near Deer River and Zemple. 

Portions of three highways within the Study Area have received special designations 

because of their importance as aesthetic resources, the Great River Road National Scenic 

Byway, the Ladyslipper National Forest Scenic Byway and Minnesota Scenic Byway, 

and the Avenue of the Pines Minnesota Scenic Byway. Scenic byways are designated by 

federal or state agencies because of their intrinsic qualities including scenic, cultural, 

recreational, natural, historic, and archeological characteristics. 

Overall, U.S. Highway 2 serves as a major commercial corridor and supports oversized 

loads. However, portions of U.S. Highway 2 have been designated as the Great River 

Road National Scenic Byway, as discussed in Section 3.19, Traffic and Transportation. 

The Great River Road travels from Lake Itasca, through Cass Lake, near the 

communities of Bena and Ball Club, to the Mississippi River, and then parallels portions 

of the Mississippi River (MRPC, 2009). Cass County Road 10/39 also is designated by 

the USFS as a National Forest Scenic Byway and by the State of Minnesota as the 

Ladyslipper Scenic Byway (Ladyslipper Scenic Byway, 2009). Also, Minnesota (MN) 

Highway 46, between Deer River and Northome, is designated as the Avenue of the 

Pines Minnesota Scenic Byway (MnDOT, 2009a). 

The Mississippi River runs through the Study Area. Although the portion of the 

Mississippi River in the Study area does not have special status, it is an important part of 

the area’s identify. The Big Fork River is located within Itasca County northeast of Dora 

Lake, outside of the Study Area. The Big Fork River is an Eligible Scenic River within 

the Wild and Scenic River Federal designation system (USDA, 2004). This river runs to 

the north of Route Alternative 3. Route Alternative 3 crosses Bowstring River, a 

downstream tributary of Big Fork River. 

Table 3.1-1 provides a general description of each Route Alternative, including its 

length, roadway inventory, and general characteristics of the visual resources included 

within the routes. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

69 

3.1 Aesthetics 

Table 3.1-1: Route Alternatives Comparison Table 

No-Build 

Alternative 

Route 

Alternative 1 

Route 

Alternative 2 

Route Alternative 3 

Total length 0 miles 69 miles 68 miles 116 miles 70 miDistance Route Alternative parallels highway (fully visible and screened) 

0 miles 25 miles 

Primarily Highway 2 

60 miles Primarily U.S. Highway 2 

32 miles Primarily U.S. Highways 2 and 71 and MN Highway 6 

34 miPrima

Overall, relative amount that Route Alternative is visible from road 

No change in visibility 

Primarily visible intermittently and in the distance along U.S. Highway 2 and briefly along Pike Bay Loop, along western portion of U.S. Highway 2

Full, unscreened views in and near city of Cass Lake, possibly on U.S. Highway 2 between Cass Lake and Pike Bay. Intermittent views along western portion of U.S. Highway 2 

A mix of fully screened, intermittently screened, and clear, unscreened views 

Full, near on U.Cass 

Number of times the Route Alternative crosses or intersects any road that is at least 0.5 miles long 

0 63 50 110 60 

Roadway Inventory 

Crosses or intersects a U.S., State, or County State Aid Highway 

0 16 19 36 17 

Land Use and Landscape Character 

Relative amount of residential context 

None Minimal percentage of 

residential context through the central and eastern portions of route. Includes portions of Ball Club. 

Highest percentage of residential context through the central and eastern portions of route. Includes Cass 

Lake, Bena, Ball Club, and Deer River. 

Minimal percentage of residential context through the central and eastern portions of route. Includes lakeshores, northern Deer River, and 

SimilcontethrourouteBenaresidavoid
Bemidji – Grand Rapids Transmission Line 

Final EIS 

70 

3.1 Aesthetics 

No-Build 

Alternative 

Route 

Alternative 1 

Route 

Alternative 2 

Route Alternative 3 

Moderate percent of residential context in western portion of route, through Bemidji area. 

High percent of residential context in western portion of route, through Bemidji area. Would be located near most populous part of Bemidji. 

Blackduck. Residential development along route is low-density.

the RexistiSimilcontewestethrou

Relative amount of developed (nonresidential) context 

None Low amount of 

developed nonresidential context. 

High amount of developed nonresidential context: railroad, utility, and other businesses in Cass Lake and Deer River. 

Minimal amount ofdeveloped nonresidential context. 

High conteother 

Relative amount of natural, agricultural, or recreational context 

No natural, agricultural, or recreational context: Existing generating station. 

Highest amount of natural, agricultural, or recreational context: Large natural forest area; currently interrupted mainly by pipeline corridor. 

Moderate amount of natural, agricultural, or recreational context. Recreational uses dominate. Roadway injects transportation context into natural setting. An underground pipeline also is present. 

Low amount of natural, agricultural, or recreational context: Mixed land use. 

Modeagriccontedomitransnaturpipel

Number of water bodies crossed 

0 18, including, but not 

limited to Moss Lake, Twin Lake, Mississippi River, Ball Club Lake, and White Oak Lake 

13, including, but not limited to Midge Lake, Cass Lake, Pike Bay, Mississippi, and Ball Club Lake 

46, including, but not limited to the Mississippi, parallels Stump Lake, Turtle River Lake, Whitefish Lake, and Jessie Lake 

16, inMissiRiverBay 

Recreational Inventory 

Boat access points 0 3, including the 

White Oak boat ramp and 2 carry-in sites 

3, including the Ball Club boat ramp and 2 carry-in points 

1, including the Carry-in canoe 

3, incWhite carry
Bemidji – Grand Rapids Transmission Line 

Final EIS 

71 

3.1 Aesthetics 

No-Build 

Alternative 

Route 

Alternative 1 

Route 

Alternative 2 

Route Alternative 3 

Recreational trails crossed by power line 

0 5 CNF bike/walk trails; 

4 snowmobile trails; and 3 state trails 

2 CNF bike/walk trails; 9 snowmobile trails; and 1 state trail 

3 CNF bike/walk trails; 15 snowmobile trails; and 1 state trail 

2 CNF snowtrail 

Source: HDR, 2010; HNTB, 2008 

Notes: The HNTB Visual Assessment (Appendix E) covered an area from the westernmost boundary of the CNF to the Boswell Substat

Area west of the CNF (near Bemidji) were not included in the assessment. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

72 

3.1 Aesthetics 

3.1.1.2. Route Alternative 1 

Route Alternative 1 and its associated Segment Alternatives contain a variety of features 

that are described as aesthetically pleasing. A majority of these features consist of water 

resources, such as lakes and rivers, and forested areas. A number of managed land 

areas also are present, including wildlife management areas (WMA), the Leech Lake 

Reservation (LLR), the CNF, and state forests. 

Scenic Road Vantage Points in the Study Area of Route Alternative 1 and its associated 

Segment Alternatives are the Great River Road Scenic Byway, MN Highway 6, Forest 

Service Roads 2102 and 2127 (Winnie Dam Road), MN Highway 371, U.S. Highway 71, 

and the Avenue of Pines Scenic Byway. 

Water bodies that are considered scenic resources in the Study Area of Route Alternative 

1 and its associated Segment Alternatives are the Mississippi River, Pike Bay, and Leech 

Lake River. 

Trails located within the Study Area of Route Alternative 1 and its associated Segment 

Alternatives that are considered Scenic Resource Vantage Points are the Lake 13/Pike 

Bay bike route, Mi-Ge-Zi Trail, Moss Lake/South boundary bike route, pipeline 

snowmobile trail, North County Trail, Cass County Trail, Becida Trail, Paul Bunyan 

State Trail, Heartland State Trail, and Soo Line North State Trail. 

A detailed listing of the resources included within this alternative is provided in Table 

3.1-2. The location of the Project alternatives relative to these resources and a 

description of the potential view of the Project from these scenic resources are discussed 

in Section 3.1.2.3. 

3.1.1.3. Route Alternative 2 

Route Alternative 2 contains a number of resources similar to Route Alternative 1, 

because of the proximity of the two Route Alternatives. This Route Alternative 

generally parallels U.S. Highway 2 and the Enbridge pipeline ROWs. Portions of the 

U.S. Highway 2 ROW also contain existing transmission lines. Near the city of Bemidji, 

this highway also crosses railroad tracks. At the western terminus, the 1,000-foot route 

includes U.S. Highway 2. This continues until Cass Lake, where the Route Alternative 

travels to the south of the highway; once outside of the city, the alternative again 

includes U.S. Highway 2. The same occurs near the cities of Deer River and Zemple. 

Near the Boswell Substation, the alternative lies just to the north of the highway. 

Scenic Road Vantage Points in the Study Area of Route Alternative 2 and its associated 

Segment Alternatives are the Great River Road Scenic Byway, MN Highway 6, Forest 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

73 

3.1 Aesthetics 

Service 2102 and 2127 (Winnie Dam Road), MN Highway 371, U.S. Highway 71, and the 

Ladyslipper NF/MN Scenic Byway. 

Water bodies that are considered scenic resources in the Study Area of Route Alternative 

2 and its associated Segment Alternatives are the Mississippi River, Cass Lake, Pike Bay, 

Portage Lake, Lake Winnibigoshish, and Leech Lake River. 

Trails that are considered Scenic Resource Vantage Points located in the Study Area are 

the Mi-Ge-Zi Trail, Norway Beach Interpretive Trail, Winnie Snowmobile Trail, North 

County Trail, Blue Ox Trail, Cass County Trail, Heartland Trail, and Soo Line North 

State Trail. 

 

A detailed listing of the resources included within this alternative is provided in Table 

3.1-2. The location of the Project alternatives relative to these resources and a 

description of the potential view of the Project from these scenic resources are discussed 

in Section 3.1.2.4. 

3.1.1.4. Route Alternative 3 

The 1,000 foot-wide route for Route Alternative 3 follows existing transmission lines for 

a total of 91.3 miles. Similar to the other alternatives, it also contains a variety of visual 

resources including water features and managed land areas. 

Scenic Road Vantage Points in the Study Area of Route Alternative 3 and its associated 

Segment Alternatives are the Ladyslipper NF/MN Scenic Byway, MN Highway 6, U.S. 

Highway 71, and Avenue of Pines Scenic Highway. 

Water bodies that are considered scenic resources in the Study Area of Route Alternative 

3 and its associated Segment Alternatives are the Bowstring River, Mississippi River, 

Turtle River, Turtle River Lake, Bowstring Lake, and Jessie Lake. 

Trails that are considered Scenic Resource Vantage Points located in the Study Area of 

Route Alternative 3 and its associated Segment Alternatives are the North County Trail, 

Blue Ox Trail, Paul Bunyan State Trail, Bushwacker Trail, Northland Trail, Marcell Trail, 

and West Bowstring. 

A detailed listing of the resources included within this alternative is provided in Table 

3.1-2. The location of the Project alternatives relative to these resources and a 

description of the potential view of the Project from these scenic resources are discussed 

in Section 3.1.2.5. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

74 

3.1 Aesthetics 

3.1.1.5. Route Alternative 4 

Route Alternative 4 contains a number of resources similar to Route Alternative 1 at 

the western start and eastern terminus of the route and contains a number of 

resources similar to Route Alternative 2 within the Chippewa National Forest (CNF) 

and the Leech Lake Reservation (LLR). This Route Alternative follows Route 

Alternative 1 along the Great Lakes pipeline after exiting the Wilton Substation and 

then diverts to the northeast to parallel the Enbridge pipelines. The Route 

Alternative then runs east to join Route Alternative 2 near the Cass Lake Substation. 

It then follows Route Alternative 2 along the Enbridge pipelines to a point 4.7 miles 

east of Bena. Route Alternative 4 then follows Route Alternative 1 on the south side 

of U.S. Highway 2 to the Boswell Substation in Cohasset. 

Scenic Road Vantage Points in the Study Area of Route Alternative 4 include the 

Great River Road Scenic Byway, MN Highway 6, Forest Service 2102 and 2127 

(Winnie Dam Road), MN Highway 371, and U.S. Highway 71. 

Water bodies that are considered scenic resources in the Study Area of Route 

Alternative 4 are the Mississippi River, Cass Lake, Pike Bay, Portage Lake, Lake 

Winnibigoshish, and Leech Lake River. 

Trails that are considered Scenic Resource Vantage Points located near Route 

Alternative 4 include the Mi-Ge-Zi Trail, Cass County Trail, Heartland Trail, and Soo 

Line North State Trail. 

 

A detailed listing of the resources included within this alternative is provided in 

Table 3.1-2. The location of the Project alternatives relative to these resources and a 

description of the potential view of the Project from these scenic resources are 

discussed in Section 3.1.2.5. 

3.1.1.6. Leech Lake Reservation 

Route Alternatives 1, 2, and 4 cross the width of the Leech Lake Reservation (LLR). The 

LLDRM places a high value on maintaining undisturbed landscapes to the extent 

possible on the LLR. 

3.1.1.7. Chippewa National Forest 

The CNF is generally considered to be one of the more highly valued scenic resources in 

the area, especially as seen from U.S. Highway 2, which serves as a gateway for visitors 

to the CNF. While portions of the U.S. Highway 2 ROW contain existing infrastructure, 

such as transmission lines and a pipeline, specific locations within the CNF are 

considered to be of high scenic integrity according to CNF visual standards. The CNF 

selected the use of the scenery management system (SMS) to manage scenic resources 

within the Forest. The SMS is a system that was developed by the Forest Service and is 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

75 

3.1 Aesthetics 

used for National Forests across the country. It specifically was adapted in the 2004 

Forest Plan for use in this part of northern Minnesota (CNF, 2004a). 

The 2004 Chippewa National Forest Management Plan directs the management of areas of 

high scenic value or integrity, including those located within the Study Area. For 

example, the Mississippi River crossing near Ball Club and the landscapes surrounding 

other bodies of water, such as Cass Lake, Pike Bay, and Lake Winnibigoshish, are 

considered to be of high scenic integrity. 

The CNF Land and Resource Management Plan outlines desired conditions and objectives, 

as well as standards and guidelines, for scenic resources within the forest. SIOs guide 

management activities to achieve the desired scenic conditions. They are characterized 

as High SIO Areas, Moderate SIO Areas, and Low SIO Areas and are defined as follows: 

High SIO: Landscapes where the valued landscape character appears intact. 

Deviations may be present, but must repeat the form, line, color, texture, and 

pattern common to the landscape character, so completely and at such a scale 

that they are not noticeable. 

Moderate SIO: Landscapes where the valued landscape character appears slightly 

altered. Noticeable deviations must remain visually subordinate to the 

landscape character being viewed. 

Low SIO: Landscapes where the valued landscape character appears moderately 

altered. Deviations begin to dominate the valued landscape character being 

viewed, but they have similar valued attributes to the outside of the landscape 

being viewed, such as size, shape, edge effect, and pattern of natural openings, 

vegetative type changes, or architectural styles (CNF, 2004a). 

 

SIO boundaries lie at least 0.25 mile from the actual location of travel ways, recreation 

sites, and bodies of water with access (CNF, 2004a). Areas within the CNF that are 

classified as having a High SIO typically occur within 0.25 mile from the location of 

viewing areas of relatively high importance, usually along major travel ways and 

lakeshore areas. These areas have temporary openings that are similar in size, shape, 

and edge characteristics to natural openings in the landscape being viewed. Moderate 

SIO classifications are given to forest areas that display scenic value along secondary 

travel ways and recreational use areas. These areas have temporary openings that may 

be more evident than in high SIO areas. Openings may be larger than the 

surrounding landscape. After groundcover has become re-established, openings 

often have the appearance of a management activity. Low SIO classifications generally 

are given to less visible forest areas and to clearings and open areas (CNF, 2004a and 

Otter Tail Power et al., 2008a). Table 3.1-2 summarizes the SIO rating of major scenic 

resource types and features within each Route Alternative. 

Table 3.1-3 provides the percentage of each Route and Segment Alternative by the SIO 

classifications. Of the Route Alternatives, Route Alternative 2 contains the greatest 

percentage of high SIO rated areas and the lowest percentage of low SIO areas. Route 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

76 

3.1 Aesthetics 

Alternative 3 contains the greatest percentage of moderate SIO areas, while Route 

Alternative 1 includes the greatest percentage of low SIO areas. Route Alternative 4 

contains a similar percentage of high, moderate, and low SIO areas as Route 

Alternative 2. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

77 

3.1 Aesthetics 

Table 3.1-2: Scenic Integrity Objective Rating of Scenic Resources within Route Alternatives 

Scenic Resource3 Route 

Alternative 1 

Route 

Alternative 2 

Route 

Alternative 3 

Route 

Alternative 4 

Vantage Point - Water Resources

Mississippi River1

Cass Lake1

Pike Bay1

Portage Lake1

Lake Winnibigoshish1

Ball Club Lake1

Leech Lake River1 

Turtle River

Turle River Lake

Bowstring River1,2 

Jessie Lake2

High 

N/A 

High 

N/A 

N/A 

N/A 

N/A 

N/A 

N/A 

N/A 

N/A 

High 

High 

High 

High 

High 

Moderate 

N/A 

N/A 

N/A 

N/A 

N/A 

High 

N/A 

N/A 

N/A 

N/A 

N/A 

N/A 

Moderate 

Moderate 

Moderate 

Moderate 

High 

High 

High 

High 

High 

Moderate 

N/A 

N/A 

N/A 

N/A 

N/A 

Vantage Point – Roads

Ladyslipper NF/MN Scenic Byway1, 2

Great River Road Scenic Byway1, 2 

MN HIghway 6 

Forest Service Roads 2102 and 

2127 (Winnie Dam Road)1, 2

MN Highway 371 

U.S. Highway 71 

Avenue of Pines Scenic Byway1, 2

N/A 

High 

High 

High 

High 

High 

N/A 

High 

High 

High 

High 

High 

High 

N/A 

High 

High 

High 

N/A 

N/A 

High 

High 

High 

High 

High 

High 

High 

High 

N/A 

Vantage Point – Trails

Lake 13/Pike Bay bike route1

Mi-Ge-Zi Trail1,2 

Moss Lake/South Bndry bike route1

Norway Beach Interpretive Trail1,2 

Pipeline Snowmobile Trail1,2 

Winnie Snowmobile Trail1,2

North Country Trail (GIA)1

Blue Ox Trail (GIA) 

Cass County Trail(GIA)1

Becida Trail (GIA) 

Paul Bunyon State Trail 

Heartland State Trail 

Soo Line North State/CNF Trail1 

Bushwacker Trail2

Northland Trail2

Marcell Trail1,2 

West Bowstring1,2

High 

High 

Moderate 

N/A 

Moderate 

N/A 

Moderate 

N/A 

Moderate 

N/A 

High 

High 

Moderate 

N/A 

N/A 

N/A 

N/A 

N/A 

High 

N/A 

High 

N/A 

Low 

Moderate 

Moderate 

Moderate 

N/A 

N/A 

High 

Moderate 

N/A 

N/A 

N/A 

N/A 

N/A 

N/A 

N/A 

N/A 

N/A 

N/A 

Moderate 

Moderate 

N/A 

N/A 

High 

N/A 

N/A 

Moderate 

Moderate 

Moderate 

Moderate 

N/A 

High 

N/A 

High 

N/A 

Low 

Moderate 

N/A 

Moderate 

N/A 

High 

High 

Moderate 

N/A 

N/A 

N/A 

N/A

Vantage Point – Municipal Area 

Bemidji 

Cass Lake 

Bena 

Deer River/Zemple 

Moderate 

Moderate 

Moderate 

Moderate 

Moderate 

Moderate 

Moderate 

Moderate 

Moderate 

N/A 

N/A 

Moderate 

Moderate 

Moderate 

Moderate 

Moderate

Notes: N/A = not applicable 

1. Resource occurs within the LLR 

2. Resource occurs within the CNF 

3. Definitions for high, moderate, and low SIO areas can be found in Section 3.1.1.5. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

78 

3.1 Aesthetics 

Table 3.1-3: Percentage of Scenic Integrity Objective Areas within Route and Segment Alternatives 

Route and SIO Rating – Percentage 

Segment 

Alternatives 

Associated 

Route 

Alternatives High Moderate Low 

Route Alternatives 

1 33.0 20.7 46.3 

2 88.3 3.5 8.3 

3 38.9 44.1 17.0 

4 84.6 2.1 13.3 

Segment Alternatives 

A 1 11.3 29.8 58.8 

B 1 2.2 31.2 66.6 

C 1, 2 24.0 43.0 33.0 

D 1 13.4 16.5 70.1 

E 3 99.9 0.0 0.1 

F 2 66.2 33.8 0.0 

G 2 0.0 34.4 65.6 

H 2 86.6 13.4 0.0 

I 2 56.7 43.3 0.0 

J 1, 2 46.3 0.6 53.1 

K 1, 2 26.7 17.0 56.3 

L 1 0.0 27.0 73.0 

M 1, 2 0.6 19.4 80.0 

N 1, 2 11.1 0.0 88.9 

O 1, 2 11.9 86.2 1.9 

P 1, 2 80.3 0.0 19.7 

Q 1, 2 8.3 0.0 91.7 

R 3 45.3 25.4 29.3 

S 3 26.9 5.8 67.2 

T 3 14.1 26.8 59.1 

3.1.2. Direct/Indirect Effects 

This section provides a discussion about the potential aesthetic impacts from the Project 

and its alternatives. Potential direct impacts include the following: 

• Loss of trees 

• Disruption to the existing landscape from the addition of transmission lines and 

the expansion of the substations 

• Devaluation of high-value or sensitive scenic resources 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

79 

3.1 Aesthetics 

Indirect impacts primarily are associated with construction. Construction of the 

transmission line could restrict access to scenic resources, create additional noise and 

dust in areas, and disrupt passive experiences felt by visitors to this region of the State. 

More long-term indirect impacts would be associated with the loss of forest land and as 

a result, the sentiments associated with these resources. 

Overview of Direct Effects 

For the purposes of determining the direct and indirect impacts to the visual and scenic 

resources, the Study Area includes routes that are 1,000 feet wide. As discussed in the 

introduction to Section 3, the final location and width ROW within the selected Route 

and Segment Alternatives is unknown. The ROW would be determined after selection 

of a final Route Alternative and allows for flexibility to avoid sensitive resources. For 

purposes of analysis and consistency with evaluation of other resources throughout this 

document, potential impacts to the ROW were calculated using a feasible 125-foot-wide 

ROW each of the Route and Segment Alternatives. 

As indicated in Section 2.4.1, Transmission Design, and Table 2-3, the pole types would 

consist of steel or wood poles. Depending upon the structure type, heights would range 

from 70 to 125 feet. Steel poles could have a galvanized or Cor-ten finish. Galvanized 

poles have a shiny finish, while cor-ten poles would have a brown, rusty appearance. 

The structure material and height are relevant because of their visibility within a 

landscape. For instance, a steel structure would be more noticeable in a forested area 

than a wooden frame. Steel would be used for single-pole Davit arm structures for the 

230 kV single circuit, 230 kV/115 kV double circuit, and 230 kV/69 kV double circuit 

lines. Wood would be used for all other poles types, including the 2-pole H-frame and 

3-pole corner. Furthermore, structures that are over 100 feet tall would be more 

noticeable to the casual observer than one that was 70 feet tall. Structures would be 

placed between 350 and 1,000 feet apart. 

In general, the following impact assessment describes the potential impacts of each 

Route Alternative from west to east. Descriptions for the majority of each alternative 

begin approximately six miles west of the Chippewa National Forest boundary and end 

at the Boswell Substation near Cohasset. Where available, visual simulations were 

analyzed to determine the potential impacts of the transmission line and structures in 

typical urban settings, in locations within an existing utility ROW for transmission lines 

and/or a pipeline, and in locations where a new ROW would need to be created for the 

Route Alternatives. 

The Project likely would be visible to many residents located near it, as well as those 

traveling on highways and county, township, and forest roads. Two Mississippi River 

crossings would also likely be visible, one as the Project leaves the Bemidji area and 

another as the Project approaches the Boswell Substation. Frequently used vantage 

points include, from west to east, the Mississippi River, U.S. Highway 71, Paul Bunyan 

State Trail, MN Highway 371, the Heartland Trail, the Pike Bay area, Forest Service Road 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

80 

3.1 Aesthetics 

2102, Forest Service Road 2127, U.S. Highway 2, a second vantage point at the 

Mississippi River, and MN Highway 6. The primary visual intrusion of the transmission 

line at these vantage points would occur at the location where the transmission line 

crosses each feature. Recreational areas in the Study Area are shown in Figure 3.13-1. 

Additional vantage point locations are shown in the Route Alternative maps included in 

Appendix D. 

If a feature is parallel to the vantage point such that the transmission line would be 

viewed for a longer time, then the impact is considered greater than if the transmission 

line runs perpendicular to the vantage point. A perpendicular crossing of a vantage 

point minimizes the effects of the transmission line for the viewer. For example, erecting 

the transmission line within the Pike Bay area along the corridor viewable from U.S. 

Highway 2 likely would cause a greater visual intrusion than crossing the corridor, 

because the transmission line would be continually visible from many vantage points 

(HNTB, 2008). 

Overview of Indirect Effects 

In addition to these direct impacts, indirect effects also may occur. As indicated in 

Sections 3.10, Land Use, and Section 3.13, Recreation and Tourism, access to forested 

areas and recreational resources would be temporarily restricted on a site-specific basis 

to allow for the construction of the Project. Also, the current forested and open settings 

often provide a sense of calm and serenity, as well as an association with nature. 

Construction activities would generate additional noise and dust not normally present 

within the potentially affected areas and would negatively affect these calm and serene 

settings. As indicated in Section 3.21, Noise, short-term changes from noise generated 

by construction equipment and worker presence would likely constitute the greatest 

noise impact as a result of the Project. Earth moving machinery (e.g., bulldozers and 

backhoes) or supporting equipment (e.g., air compressors and concrete mixers) would 

generate temporary noise. As discussed in Section 3.2, Air Quality and Climate, 

potential short-term impacts to air quality from construction of the Project could include 

temporary degradation of air quality from the emission of air pollutants during the 

operation of construction equipment and vehicles. 

This discussion about the potential direct effects includes a description of the No-Build 

Alternative, impacts that would be similar for all of the Route Alternatives, and impacts 

specific to a particular alternative. Generally, potential effects of the Segment 

Alternatives do not significantly differ from comparable portions of the Route 

Alternatives and, thus, are not discussed. Specific impacts to the Leech Lake 

Reservation and Chippewa National Forest are also discussed. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

81 

3.1 Aesthetics 

3.1.2.1. No-Build Alternative 

The No-Build Alternative would not impact the existing visual and scenic resources 

directly or indirectly. This alternative would not introduce new transmission lines into 

the existing landscape. As such, trees would not be cleared, and there would be no 

substation construction or expansion. Impacts to high-value or sensitive scenic 

resources are not expected. Residents and visitors within northern Minnesota would 

continue to view and use the visual resources in a manner similar to their current means. 

3.1.2.2. Route Alternative 1 

As previously indicated, the Route Alternatives have the potential to disrupt the existing 

landscape through the removal of trees, with the addition of the transmission line and 

the expansion of the substations, and by devaluing high-value or sensitive scenic 

resources. The following discussion provides an overview of the locations in which 

these potential impacts may occur based upon the path of Route Alternative 1. The 

impacts primarily would be considered long-term impacts because they would be 

present throughout the lifespan of the transmission line. 

Route Alternative 1 contains a total 4,879 acres of forested land, which includes conifer, 

conifer-deciduous, and deciduous forest. Of this total, construction of Route Alternative 

1 would permanently convert an estimated 580 acres of forested area. Impacts would 

occur primarily to deciduous forest (approximately 78 percent of total forest 

conversion). In areas where forest cover would be removed, the transmission lines and 

poles likely would be more visible to visitors and residents than in locations where the 

forest cover is maintained, especially if a steel pole is utilized. The Project would add a 

vertical component to the existing landscape; while at the same time vegetative cover 

that typically would shield the infrastructure would be removed. With the removal of 

trees, open space would take on a disturbed/developed appearance, as opposed to the 

natural setting associated with a forested environment. 

Crossing a central portion of CNF and bisecting the LLR, Route Alternative 1 is the most 

visually isolated from highways and residential areas. 

The LLDRM has indicated that Route Alternative 1 may disrupt important traditional 

gathering areas within the LLR through impacts to aesthetics and other resources. Of 

particular importance to the LLBO is the Ten Section Area of the CNF, which would be 

traversed by Route Alternative 1. Additional discussion of aesthetic impacts within the 

LLR is presented in Section 3.1.2.5. 

The alternative generally would be adjacent to an existing pipeline corridor, which 

largely is cleared of trees, allowing unobstructed views of the structure primarily at road 

crossings. In these locations, the existing landscape would be directly impacted because 

the transmission line would be in full view of residents and visitors. These intrusions 

would primarily be vertical in nature and would create a contrast to the cleared area. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

82 

3.1 Aesthetics 

New visual intrusions along the pipeline alignment would be buffered by forest areas 

throughout much of Route Alternative 1 and its associated Segment Alternatives. 

When following pipeline ROWs along the southern portion of the route, Route 

Alternative 1 would be fully visible at several road crossings. Direct impacts in these 

locations would include a disruption to the existing landscape and interruptions of the 

natural view within wildlife management lands. When the Project would closely follow 

roadways, the transmission line would be visible among the trees and tall grasses. 

However, this type of vegetation would provide some screening and allow for the 

structures to blend into the surrounding somewhat, thereby creating a minimal to 

moderate visual intrusion. 

Where open wetlands would intersect Route Alternative 1, low-lying vegetation would 

not provide a sufficient screen for the transmission structures and conductor, and a 

minimal to moderate vertical intrusion would be occur. The line of sight for visitors and 

residents within this area would be drawn to these vertical transmission structures and 

conductor. Therefore, this would disrupt the typical visual setting associated with 

wetland areas. 

Potential Impacts to Visual Resources/Users 

The westernmost area of the route near the Wilton Substation has the greatest 

concentration of residential properties, and is close to Lake Marquette and agricultural 

areas. Thus, the Project would be visible to a number of residents and other viewers in 

these open areas (HNTB, 2008). 

Near the cities of Bemidji and Wilton, the route would run in a northwest-southeast 

direction along existing and proposed pipeline corridors in the Necktie River vicinity. 

This western portion of the Route Alternative is more than half forested, which would 

fairly effectively screen the line, except at crossings, where an agricultural area offers a 

longer, open view. Because fewer trees are located at these crossings, the viewshed 

would be impacted directly by the construction and placement of the Project. 

South of Bemidji, as Route Alternative 1 heads east, the ROW generally would follow 

the existing Great Lakes pipeline ROW. This pipeline corridor is largely clear of trees, 

contains no large-scale structures, and is very evident to viewers. The clearing currently 

interrupts the notion of an unending forest and is a departure from a setting associated 

with varying types and heights of vegetation. Additional clearing of vegetation would 

be required for the Project, but the perceived width to viewers of the new clearing 

would not be much greater than the existing space. As previously indicated, in areas 

where an existing pipeline ROW is present, the construction of the 230 kV H-frame 

would be a departure from the existing setting. The transmission line structures and 

conductor would be clearly visible, dominate the setting, and provide a strong contrast 

to the open space (to see a visual simulation that was created for a typical pipeline 

corridor, see the photograph labeled “Typical pipeline corridor” in Appendix E). The 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

83 

3.1 Aesthetics 

placement of the transmission lines would primarily be vertical in nature and would 

create a contrast to the cleared areas. Direct impacts in these locations also would 

include interruptions of the natural view within wildlife management lands, 

including the Bemidji Slough WMA. 

Several existing pipeline ROWs are used as dedicated snowmobile trails; in these 

location, the Project would be visible to snowmobile riders. 

Further east, Route Alternative 1 includes old-growth forest, which also provides 

aesthetic value, in the area called Ten Section (HNTB, 2008). In this area, both deciduous 

and coniferous trees line the roadway. The Ten Section area is known as the core of the 

CNF and originally was set aside to protect the few remaining old-growth pine trees 

from timber cutting in the early 1900s. The LLBO has identified the Ten Section Area as 

a unique forest community, as well. This unique forest community supports rare 

species, as well as areas of cultural importance to the Band. It is now used primarily for 

recreation and interpretive purposes. This area has a high SIO value because of these 

characteristics. 

Route Alternative 1 crosses the Ten Section area near Pike Bay Loop, south of Pike Bay 

in Cass County, affecting approximately 31 acres of forest land. The use of Segment 

Alternative B would deviate to the south side of the Ten Section Area, reducing direct 

impacts to 9 acres in the management area (MA). Route Alternative 1 would impact 

these forested areas to a greater extent than Route Alternatives 2 and 4, which largely

avoid this area and Route Alternative 3, which entirely avoids this area. Within the 

Ten Section MA, some trees would have to be removed to accommodate the 

transmission structures and conductor. The removal of trees would represent an 

aesthetic change for users of the Ten Section Area, which could alter the user’s 

experience. For example, a viewer’s focus may be directed to the cleared area and may 

be drawn to the difference in scale between the structures and the surrounding 

vegetation. The horizontal quality of the background, therefore, may be disrupted. In 

addition, the scale, form, and function would interrupt settings typically associated with 

a forested landscape. However, the forest cover would shield the transmission 

structures and conductor from viewers located outside of the forest area. 

For approximately 9 miles between Twin Lake and Sucker Bay Road, Route Alternative 

1 would follow land characterized by heavy forest cover, visible only to off-trail 

recreational users and those using any of three unimproved roads, including Cuba Hill 

Road. The Project would be briefly visible where it and the existing Enbridge pipeline 

cross Sucker Bay Road, a major thoroughfare. Based upon information provided by the 

LLDRM, this Route Alternative would be noticeable and disruptive to members of the 

LLBO who utilize this area extensively for traditional gathering. 

Four miles east of Bena, west of Nushka Lake, Route Alternative 1 veers north to U.S. 

Highway 2. The Project would either parallel or be consolidated with the existing 69 kV 

transmission line located south of U.S. Highway 2. Either way the new structures would 

be taller than the existing 69 kV structures, which are approximately 40 feet tall. This 

line is located within 300 feet of the highway but, because of some screening vegetation 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

84 

3.1 Aesthetics 

and a railroad grade, it would be only intermittently visible for about 8 miles along U.S. 

Highway 2 to the Mississippi River (HNTB, 2008). 

In locations where Route Alternative 1 would parallel the existing 69 kV transmission 

line, the existing transmission line would appear subordinate to the Project. The 

combination of the different types of utility structures and conductor would increase the 

visual dominance of the combined transmission line infrastructure against the sky and 

the horizontal line of the low wetland vegetation. However, as aforementioned, the land 

use contrast would be less than creating a new, stand-alone transmission line. 

Route Alternative 1 would cross fewer Public Water Inventory (PWI) rivers, streams, 

and water basins than Route Alternatives 3 and 4, but a greater number of PWI features

than Route Alternative 2. A half-mile south of Pike Bay, the alternative may affect views 

around Moss and Twin Lakes. While the area near the lakes is heavily forested, 

ensuring some screening, the Project could be visible from both of the lakes, depending 

upon the precise placement of the structures within the 1,000-foot-wide route (HNTB, 

2008). Visual simulations were not created to depict a crossing near a lake. However, 

the structures likely would create a minimal vertical intrusion in areas that were heavily 

forested, and a more moderate intrusion in those areas with low-lying vegetation. 

 

All Route Alternatives would cross the Mississippi River in the Bemidji area. Route 

Alternative 1 would cross at the existing Great Lakes Pipeline and 115 kV transmission 

line crossing north of Carr Lake Road SW. Under Route Alternative 1, there are three 

scenarios for crossing the Mississippi River near Ball Club: 

• Parallel 230 kV and 69 kV Mississippi River Crossings: Route Alternative 1 

could cross the river on a separate ROW parallel to the existing Great River 

Energy 69 kV crossing south of U.S. Highway 2. This would result in two 

crossings to the Mississippi River, essentially adjacent to one another. Both 

crossings would be visible to those traveling along U.S. Highway 2. The existing 

river crossing uses wood single pole 69 kV structures, approximately 40 feet tall. 

Structures for the Project at this location would be either wood H-frame 

structures (Figure 2-3), approximately 70 to 90 feet tall, or steel single-pole davit 

arm structures (Figure 2-4), approximately 80 to 100 feet tall. As aforementioned, 

in locations where the Project would parallel existing transmission lines, the 

combination of the parallel utility lines and repeated pattern of pole placement 

would increase the visual dominance of the transmission structures and their 

contrast with the vertical and horizontal line of the background trees and other 

low-lying vegetation. 

• Double-Circuit 230kV/69kV Mississippi River Crossing: Route Alternative 1 

could be consolidated with Great River Energy’s existing 69 kV transmission line 

on a new set of double circuit structures. Under this scenario, there would be 

one set of structures and two planes of conductor crossing the river. The 

crossing would be visible to those traveling along U.S. Highway 2. Structures for 

the Project at this location would be either double-circuit wood H-frame 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

85 

3.1 Aesthetics 

structures (Figure 2-7), approximately 90 to 125 feet tall, or double-circuit steel 

single-pole davit arm structures (Figure 2-6), approximately 95 to 115 feet tall, 

considerably taller than the existing 69 kV structures. 

• 230 kV Crossing of Mississippi and 69 kV Crossing of Leech Lake River: If 

Route Alternative 1 is used in conjunction with Segment Alternative C, a new set 

of structures (either wood H-frame or steel single-pole, as discussed above) 

would replace the existing river crossing. Great River Energy’s 69 kV 

transmission line would be relocated 4.4 miles south and then east along a new 

ROW to cross the Leech Lake River, using similar structures to those that 

currently exist. Those traveling along U.S. Highway 2 would notice only one set 

of structures, albeit considerably taller than those that exist currently. The rerouted 69 kV transmission line along Segment Alternative C would not be visible 

from surrounding roadways and is not near any residential areas. The new 

crossing of the Leech Lake River would be visible from a water access point 

north of the river crossing. 

While a new transmission line within the corridor for Route Alternative 1 would affect 

fewer heavily populated areas than Route Alternative 2, the impact would be more 

marked for visitors to the Study Area, because of the structure’s contrast to the pristine 

natural context. Based on comments received from LLDRM, Route Alternative 1 also 

would have the most severe negative impact to members of the LLBO, who utilize areas 

contained within this Route Alternative for traditional gathering and spiritual activities. 

Potential Impacts to SIO 

The overall SIO value would not be impacted directly, because the SIO rating is based 

upon the character of the Ten Section area as a whole. The impacts would be localized 

and would be minimal in scale. For instance, the overall SIO value of this resource (i.e., 

the entire Ten Section area) would not be impacted, because only a minimal portion of 

the Ten Section’s total area would be affected by the construction and operation of the 

Project. 

3.1.2.3. Route Alternative 2 

Route Alternative 2 parallels U.S. Highway 2 for most of its length. As shown in Figure 

3.1-1, the portion of the route through the CNF is located in a CNF-identified high SIO 

area. However, much of the U.S. Highway 2 corridor is disturbed with a major 

highway, railroad, pipeline, and power line. While partially buffered from U.S. 

Highway 2 by forested areas, erecting a transmission line within Route Alternative 2 

likely would create a noticeable visual impact along much of the route. 

Route Alternative 2 contains approximately 3,844 acres of forested land (e.g., conifer, 

conifer-deciduous, and deciduous forest). Of this amount, construction of Route 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

86 

3.1 Aesthetics 

Alternative 2 would permanently convert an estimated 432 acres of forested area. In 

areas where forest cover would be removed, the transmission structures and conductor 

likely would be more visible to visitors and residents than in locations where the forest 

cover is maintained, especially if steel structures were utilized. The Project would add a 

vertical component to the existing landscape; while at the same time vegetative cover 

that typically would shield the infrastructure would be removed. With the removal of 

trees, open space would take on a disturbed/developed appearance, as opposed to the 

natural setting associated with a forested environment. 

As previously indicated, the Route Alternatives have the potential to disrupt the existing 

landscape directly with the addition of the transmission structures and conductor and 

the expansion of the substations, through the removal of trees, and by devaluing highvalue or sensitive scenic resources. The following discussion provides an overview of 

the locations in which these impacts may occur based upon the path of Route 

Alternative 2. The impacts primarily would be considered long-term impacts because 

they would be present throughout the lifespan of the transmission line. 

Potential Impacts to Visual Resources/Users 

From vantage points in the westernmost area, Route Alternative 2 would be closest to 

Lake Irving and the more populous parts of the city of Bemidji. As a result, it would be 

visible to more nearby residents than Route Alternatives 1, 3, and 4 (HNTB, 2008). 

The visibility of the remaining Project would vary along U.S. Highway 2. Existing 

infrastructure and development already dominate the scenic character of residential and 

commercial areas within the Study Area. In areas where there was less forest cover and 

fewer trees would be removed, such as between the cities of Bemidji and Cass Lake, the 

Project would be more visible from open vantage points along U.S. Highway 2 (Otter 

Tail Power et al., 2008a). 

A visual simulation of the Cass Lake/Pike Bay Area created by the Applicants (see 

Appendix E) shows that along the frontage road south of U.S. Highway 2, vegetation 

consists of a mixture of grasses and forest cover. This simulation shows that the Project 

H-frame structures would dominate the view along the roadway segment. Based upon 

the simulation, the structures and conductor would be taller than the existing tree line 

and would draw the attention of viewers. The wood structures would appear to blend 

slightly into the background, due to the forest lined roadway, however the vertical 

structures would detract from the horizontal scale of the existing setting. However, it 

should be noted that the visual simulation provided in Appendix E was created during 

the fall/winter season, when much of the surrounding vegetation was dead. It is likely 

that during the spring and summer when there would be more screening vegetation, the 

Project still would be visible but the wooden structures would tend to blend more into 

the background and create less of a visual impact than metal poles. In addition, 

vehicles travelling the speed limit of 60 miles per hour would make these poles 

perceptively less visible. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

87 

3.1 Aesthetics 

Route Alternative 2 would present a new visual feature in the city of Cass Lake. 

Depending upon its proximity to Railroad Street, which essentially forms the southern 

boundary of city, the Project would be seen either in close proximity, with several 

support structures providing visual punctuation, or in its entirety as a somewhat distant 

feature. The Project would be noticeable to residents and visitors traveling south on 

most residential and commercial streets in the downtown district of Cass Lake. Route 

Alternative 2 would be located in an industrial part of Cass Lake, which already 

contains transmission and pipeline infrastructure. 

The area between the cities of Cass Lake and Ball Club likely would have the greatest 

visual impact because the transmission line would be located in a relatively “complete” 

natural landscape. Route Alternative 2 would introduce a visual impact between the 

cities of Cass Lake and Bena, where the alternatives follow the existing pipeline corridor, 

because portions of this area would be cleared of trees. This area includes the landscape 

just east of the city of Cass Lake, which offers a viewshed between the Cass Lake and 

Pike Bay water bodies (Otter Tail Power et al., 2008a). 

As shown in Appendix E, an existing 69 kV line is present along the south side of the 

U.S. Highway 2 between Bena and the Mississippi River. The feasible ROW evaluated 

for Route Alternative 2 shows the Project on the north side of U.S. Highway 2 in this 

area, resulting in transmission lines on both sides of U.S. The structures used for the 

Project would be considerably taller, 70 – 100 feet, than the existing 40-foot structures 

used by the 69 kV transmission line. 

From Bena to Deer River, the landscape character is more open, with large wetlands and 

sparse trees to screen the Project structures and conductor. While the Project would not 

be located directly adjacent to Lake Winnibigoshish, some open landscape areas south of 

the lake may afford distant views of the transmission line. Near the city of Deer River, 

the line would be visible, with some potential tree screening from a concentrated 

residential area (HNTB, 2008). 

While this Route Alternative crosses fewer PWI features than the other alternatives, the 

majority of these are major recreational lakes with nearby boat launches. In addition, 

while this alternative requires fewer road crossings, it would affect more people, 

including both area residents and park visitors, because of the high-volume road, 

proximity to the city of Cass Lake, and the recreational context (HNTB, 2008). 

Route Alternative 2 would cross the Mississippi River in the Bemidji area along the 

south side of U.S. Highway 2. Under Route Alternative 2, there are two scenarios for 

crossing the Mississippi River near Ball Club. They are provided, as follows: 

• Separate 230 kV and 69 kV Mississippi River Crossings: Route Alternative 2 

could cross the river north of U.S. Highway 2, leaving the existing 69 kV 

transmission line crossing unchanged to the south of U.S. Highway 2. Both 

crossings would be visible to those traveling along U.S. Highway 2, one along 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

88 

3.1 Aesthetics 

either side of the highway. The existing river crossing uses wood single pole 69 

kV structures, approximately 40 feet tall. Structures for the 230 kV crossing 

would be either wood H-frame structures (Figure 2-3), approximately 70 to 90 

feet tall, or steel single-pole davit arm structures (Figure 2-4), approximately 80 

to 100 feet tall. 

• 230 kV Crossing of Mississippi and 69 kV Crossing of Leech Lake River: If 

Route Alternative 2 is used in conjunction with Segment Alternative C, a new 

river crossing, as described above, would be established north of U.S. Highway 

2. The existing Great River Energy 69 kV transmission river crossing would be 

abandoned and the line would be relocated 4.4 miles south and then east along a 

new ROW to cross the Leech Lake River, using similar structures to those that 

currently exist. Those traveling along U.S. Highway 2 would notice only one set 

of structures, now on the north side of the highway and considerably taller, 

between 70 and 100 feet, than the 40-foot structures that exist currently. The rerouted 69 kV transmission line along Segment Alternative C would not be visible 

from surrounding roadways and is not near any residential areas. The new 

crossing of the Leech Lake River would be visible from a water access point 

north of the river crossing. 

 

Potential Impacts to SIO 

As previously indicated, the SIO values associated with various resources management 

areas both within and outside the CNF would not be directly impacted. Because the 

overall SIO rating is based upon the particular resource in its entirety, the impacts 

would be local and minimal in terms of acreage as compared to entire resource. 

3.1.2.4. Route Alternative 3 

At 116 miles, Route Alternative 3 would be the longest and northernmost Route 

Alternative, with the second greatest number of power line road crossings. Sixteen of 

these roads would be primary or secondary highways. The Route Alternative would 

follow existing pipelines, transmission, and road ROWs for 111 of its 116 miles. Twentyfive water bodies likely would be crossed or would be located immediately adjacent to 

the Project. One carry-in boat access point and three recreational trails would be in the 

transmission line’s immediate vicinity (HNTB, 2008). In these locations, the view would 

be impacted directly by the placement of the Project. 

Route Alternative 3 contains 7,600 acres of forested land (e.g., conifer, conifer-deciduous, 

and deciduous forest). Of this total, construction of Route Alternative 3 would 

permanently convert approximately 812 acres of forested area, the most of the Route 

Alternatives evaluated. In areas where forest cover would be removed, the transmission 

structures and conductor likely would be more visible to visitors and residents than in 

locations where the forest cover is maintained, especially if a steel structure was used. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

89 

3.1 Aesthetics 

The addition of these two types of infrastructure would add a vertical component to the 

existing landscape; while at the same time vegetative cover that typically would shield 

the infrastructure would be removed. With the removal of trees, open space would take 

on a disturbed/developed appearance, as opposed to the natural setting associated with 

a forested environment. 

As previously indicated, the Route Alternatives have the potential to disrupt the existing 

landscape with the addition of the transmission structures and conductor and the 

expansion of the substations, through the removal of trees, and by devaluing high-value 

or sensitive scenic resources. The following discussion provides an overview of the 

locations in which these impacts may occur based on the path of Route Alternative 3. 

The impacts primarily would be considered long-term impacts because they would be 

present throughout the lifespan of the transmission line. 

Potential Impacts to Visual Resources/Users 

Route Alternative 3 would exit the Wilton Substation in a path similar to that of Route 

Alternatives 1 and 4. This Route Alternative would follow the path of Route 

Alternatives 1 and 4 for its first 10 miles through developed areas of Bemidji. Emerging 

from the Bemidji-Wilton area, the Route Alternative would largely parallel an existing 

69 kV transmission line and local roads before reaching Blackduck. In locations where 

the Route Alternative would parallel an existing transmission line, the combination of 

parallel utility lines and a repeated pattern of pole placement would increase the visual 

dominance of the transmission structures against the sky and their contrast with the 

horizontal line of the background trees and other low-lying vegetation. The land use 

contrast of the Project would be reduced because of the presence of the existing line. 

Therefore, the addition of the Project would alter the existing landscape only minimally. 

The Project would be most noticeable where it crossed roads at an oblique angle (HNTB, 

2008). The visual simulations included in Appendix E suggest that the 230 kV H-frame 

would blend somewhat with trees that line existing roadways. The high speeds of 

vehicular travel, however, would make these poles perceivably less visible, as well. 

Route Alternative 3 would depart from the existing transmission line south of 

Blackduck, where it would take an eastern path through sparsely populated and 

intermittently wooded land or by-pass the city of Blackduck to the south and east before 

rejoining the existing transmission line. Route Alternative 3 would parallel the existing 

transmission line and several county roads heading east, where the line would be visible 

to motorists. As indicated above, the view of the travelling public would be only 

minimal because of the high speeds of travel along the county roadways. 

Heading south in the eastern portion of the Study Area, Route Alternative 3 would be 

adjacent to an existing 69 kV transmission line and cross wetlands, unimproved roads, 

and trails. The Project transmission line, although taller than the existing transmission 

line, would likely be screened by tall vegetation in this area (HNTB, 2008). The 

difference in height would draw attention to the Project, but the contrast between the 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

90 

3.1 Aesthetics 

line and the surrounding land use would not be perceived as great because of the 

presence of the existing transmission line. 

Route Alternative 3 would cross the Bowstring River, the northern shore of Whitefish 

Lake, and Jessie Lake where it would be visible to a small concentration of residents and 

recreational visitors to the lake (HNTB, 2008). Although a visual simulation was not 

created for a water resource, it is anticipated that the addition of a transmission 

structures and conductor would detract from the horizontal scale of the lake setting. 

The visual intrusion would be vertical in nature and would draw attention upward 

away from the lake and toward the individual structures within the transmission line. 

As indicated in Section 3.4, all of the Route Alternatives would cross the Mississippi 

River. Route Alternative 3 would cross the Mississippi River at its western end near 

Parker’s Lane Road. Specific crossing scenarios were not provided for Route Alternative 

3 (see Section 2.2.4.1 for additional information). 

Potential Impacts to SIO 

As previously indicated, the SIO values associated with various resources management 

areas both within and outside the CNF would not be directly impacted. Because the 

overall SIO rating is based upon the particular resource in its entirety, the impacts 

would be local and minimal in terms of acreage as compared to entire resource. 

3.1.2.5. Route Alternative 4 

Route Alternative 4 follows Route Alternative 1 for a total of 38.1 miles and Route 

Alternative 2 for a total of 25.7 miles. Therefore, many of the impacts of Route 

Alternative 4 are similar to those described for Route Alternatives 1 and 2. 

Route Alternative 4 contains approximately 3,710 acres of forested land (e.g., conifer, 

conifer-deciduous, and deciduous forest). Construction of Route Alternative 4 would 

permanently convert an estimated 575 acres of forested land. 

Similar to other Route Alternatives, in areas where forest cover would be removed, 

the transmission structures and conductor likely would be more visible to visitors and 

residents than in locations where the forest cover is maintained, especially if steel 

structures were utilized. As previously suggested, the Project would add a vertical 

component to the existing landscape; while at the same time, vegetative cover, which 

typically would shield the infrastructure, would be removed. With the removal of 

trees, open space would take on a disturbed/developed appearance, as opposed to the 

natural setting associated with a forested environment. 

As aforementioned, the Route Alternatives have the potential to disrupt the existing 

landscape directly with the addition of the transmission structures and conductor and 

the expansion of the substations, through the removal of trees, and by devaluing 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

91 

3.1 Aesthetics 

high-value or sensitive scenic resources. As with the other Route Alternatives, the 

impacts primarily would be considered long-term impacts, because they would be 

present throughout the lifespan of the transmission line. The following discussion 

provides an overview of the locations in which these impacts may occur based upon 

the feasible ROW alignment identified for Route Alternative 4. 

Potential Impacts to Visual Resources/Users 

At its western end, Route Alternative 4 primarily follows the alignment of Route 

Alternative 1. At the Wilton Substation, the greatest concentration of residential 

properties is present. For this reason, similar to Route Alternative 1, Route 

Alternative 4 has the potential to be seen by a large number of residents and other 

viewers. Near the cities of Bemidji and Wilton, forest cover would prevent views of 

the transmission line, but in locations where the forest cover is light, such as 

agricultural areas, the transmission line would be seen by residents and other visitors. 

 

In addition, Route Alternative 4 generally follows existing pipeline corridors. These 

include the Great Lakes and Enbridge pipelines. In these areas, the corridors are 

largely cleared of trees, allowing unobstructed views of the proposed structures 

primarily at road crossings. As indicated for Route Alternative 1, in these locations, 

the existing landscape would be directly affected because the transmission line would 

be in full view of residents and visitors. The placement of the transmission lines 

would primarily be vertical in nature and would create a contrast to the cleared areas. 

Direct impacts in these locations also would include interruptions of the natural view 

within wildlife management lands, including the Bemidji Slough WMA. 

In locations where Route Alternative 4 would parallel the existing 69 kV transmission 

line (i.e., along similar portions of Route Alternative 1), the existing transmission line 

would appear subordinate to the Project. As previously indicated for Route 

Alternative 1, the combination of the different types of utility structures and 

conductors would increase the visual dominance of the combined transmission line 

infrastructure against the sky and the horizontal line of the low wetland vegetation; 

however, the land use contrast would be less than creating a new, stand-alone 

transmission line. 

Route Alternative 4 also follows Route Alternative 2 for approximately 2.9 miles 

between the Cass Lake Substation and Pike Bay and then for 18.7 miles between Pike 

Bay and Bena. It then follows Route Alternative 2 from Bena east along the south 

side of the Enbridge and Great River Energy ROWs. 

Within these segments, Route Alternative 4 would follow Segment Alternative F 

south of the city of Cass Lake. It would present a new visual feature in this area, but 

would be less visible than Route Alternative 2 to residents and travelers in the 

commercial streets and downtown district of Cass Lake. The area between Cass Lake 

and Bena is located in a relatively “complete” natural landscape, which offers a 

viewshed between the Cass Lake and Pike Bay water bodies. As described for Route 

Alternative 2, this area would be impacted by the transmission line, as the area 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

92 

3.1 Aesthetics 

generally is clear of trees in locations where pipelines are present, such as the 

Enbridge pipelines. 

Furthermore, Route Alternative 4 crosses 5 water basins and 10 water courses, 

including the Mississippi River. This includes fewer crossings than Route 

Alternative 3, but more than Route Alternatives 1 and 2. Under this Route 

Alternative, there are three scenarios for crossing the Mississippi River near Ball 

Club. They are as follows: 

• Parallel 230 kV and 69 kV Mississippi River Crossings: Route Alternative 4 

could cross the river on a separate ROW parallel to the existing Great River 

Energy 69 kV crossing south of U.S. Highway 2. This would result in two 

crossings to the Mississippi River, essentially adjacent to one another. Both 

crossings would be visible to those traveling along U.S. Highway 2. The 

existing river crossing uses wood single pole 69 kV structures, approximately 

40 feet tall. Structures for the Project at this location would be either wood Hframe structures (Figure 2-3), approximately 70 to 90 feet tall, or steel singlepole davit arm structures (Figure 2-4), approximately 80 to 100 feet tall. As 

aforementioned, in locations where the Project would parallel existing 

transmission lines, the combination of the parallel utility lines and repeated 

pattern of pole placement would increase the visual dominance of the 

transmission structures and their contrast with the vertical and horizontal line 

of the background trees and other low-lying vegetation. 

• Double-Circuit 230kV/69kV Mississippi River Crossing: Route Alternative 4 

could be consolidated with Great River Energy’s existing 69 kV transmission 

line on a new set of double circuit structures. Under this scenario, there would 

be one set of structures and two planes of conductor crossing the river. The 

crossing would be visible to those travelling along U.S. Highway 2. Structures 

for the Project at this location would be either double-circuit wood H-frame 

structures (Figure 2-7), approximately 90 to 125 feet tall, or double-circuit steel 

single-pole davit arm structures (Figure 2-6), approximately 95 to 115 feet tall, 

considerably taller than the existing 69 kV structures. 

• 230 kV Crossing of Mississippi and 69 kV Crossing of Leech Lake River: If 

Route Alternative 4 is used in conjunction with Segment Alternative C, a new 

set of structures (either wood H-frame or steel single-pole, as discussed above) 

would replace the existing river crossing. Great River Energy’s 69 kV 

transmission line would be relocated 4.4 miles south and then east along a new 

ROW to cross the Leech Lake River, using similar structures to those that 

currently exist. Those traveling along U.S. Highway 2 would notice only one 

set of structures, albeit considerably taller than those that exist currently. The 

re-routed 69 kV transmission line along Segment Alternative C would not be 

visible from surrounding roadways and is not near any residential areas. The 

new crossing of the Leech Lake River would be visible from a water access 

point north of the river crossing. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

93 

3.1 Aesthetics 

As shown in Section 3.4.2.1, all water crossings would be spanned by poles placed 

from 800 to 1,000 feet apart. 

Potential Impacts to SIO 

As previously indicated in the discussions of the other Route Alternatives, the SIO 

values associated with various resources management areas both within and outside 

the CNF would not be directly impacted. Because the overall SIO rating is based 

upon the particular resource in its entirety, the impacts would be localized and 

minimal in terms of acreage as compared to an entire resource. 

3.1.2.6. Leech Lake Reservation 

The LLBO maintains its own scenic integrity objectives for areas within the LLR. 

According to representatives of the LLDRM, the LLBO scenic integrity objectives differ 

from those developed by the CNF. The LLBO objectives do not take into account the 

number of visitors to the area. Instead, the LLBO scenic integrity objective account for 

the type of user of scenic areas. For example, an undisturbed area used for traditional 

hunting and gathering or spiritual activities would have a higher scenic integrity 

objective than an undisturbed area used for snowmobiling. The primary objective of the 

LLBO is to contain visual impacts. Representatives of the LLDRM have stated that the 

LLBO has a preference to consolidate impacts to previously disturbed areas and protect 

undisturbed forest. 

Due to the difference in scenic integrity objectives between the LLBO and CNF, the SIO 

ratings developed by the CNF are not an appropriate measure of scenic impacts to areas 

within the LLR. 

LLR residents in the vicinity of the Project primarily would be affected by a loss of scenic 

resources. This loss could alter the experience of conducting traditional tribal 

ceremonial or hunting/gathering activities in areas where they have historically 

occurred. 

Route Alternative 1 would require the longest and highest percentage of new ROW 

through undisturbed areas within the LLR, compared to Route Alternatives 2, 3, and 4. 

The LLBO has indicated that certain areas located along Route Alternative 1 and to a 

lesser extent Route Alternatives 2 and 4, including the Ten Section area and Guthrie Till 

Plain, have cultural significance for tribal members. Tribal members who use these 

areas for hunting, gathering, or cultural practices would be disproportionately affected 

by the placement of the ROW through these areas, since their experience would be 

altered by the visual intrusion of the ROW and overhead transmission line. 

 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

94 

3.1 Aesthetics 

3.1.2.7. Chippewa National Forest 

Table 3.1-4 summarizes the visual quality of those portions of the Route and Segment 

Alternatives that would traverse CNF land based upon the 2004 CNF Land and Resource 

Management Plan SIO model. The visual effects of the alternatives would be similar to 

those discussed for the overall Route Alternatives, above. 

Table 3.1-4: Scenic Integrity Objective Areas within the CNF 

Route and SIO Rating (acres) 

Segment 

Alternatives 

Associated 

Route 

Alternatives 

High Moderate Low Total 

Route Alternatives 

1 1,528.1 678.8 2,135.2 4,342.1 

2 3,906.0 33.9 58.9 3,998.8 

3 1,791.5 4,485.6 1,071.3 7,348.4 

4 3,099.1 76.5 489.2 3,664.8 

Segment Alternatives 

B 1 28.3 22.9 736.7 787.9 

C 1, 2 130.0 233.4 179.3 542.7 

D 1 16.7 0.1 0.1 16.9 

E 3 1,298.1 0.0 1.6 1,299.7 

F 2 45.1 53.3 0.0 98.4 

N 1, 2 52.0 0.0 416.3 468.3 

O 1, 2 42.2 305.1 6.8 354.1 

P 1, 2 51.3 0.0 12.6 63.9 

R 3 50.7 59.5 2.7 112.9 

S 3 0.0 8.0 1.1 9.1 

T 3 0.0 72.3 8.0 80.3 

As previously noted, Route Alternative 2 would have a greater potential to affect scenic 

resources because the transmission line would be visible for a considerable length along 

U.S. Highway 2. Anticipated changes to the SIO ratings from the Project are difficult to 

predict because the rating is based upon the overall characteristic of a specific resource, 

rather than one location or area which would be crossed by the Project. The Route 

Alternatives, therefore, would not directly alter the overall SIO rating of a particular 

resource. Therefore, the impacts would be localized and would be minimal in scale. As 

a result, the SIO rating would not have to be amended to account for these minimal 

impacts. 

New visual intrusions along the pipeline alignment would be buffered by forest areas 

throughout much of Route Alternative 1 and its associated Segment Alternatives, 

especially in the heavily wooded CNF and state forest areas (Otter Tail Power et al., 

2008a). As compared to the other Route Alternatives, Route Alternative 3 would 

primarily travel along county roads and existing utility lines. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

95 

3.1 Aesthetics 

As indicated in Table 3.1-4, Route Alternative 2 contains the greatest number of acres of 

high SIO areas within the CNF, while Route Alternative 3 contains the greatest number 

of acres of moderate SIO areas. Route Alternative 1 contains the greatest number of 

acres of low SIO areas. Route Alternative 4 contains a similar percentage of SIO as 

Route Alternative 2, since the Route Alternative largely follows Route Alternative 2 

through the CNF. The 2004 Forest Plan includes a directive that in moderate and high 

SIO areas, negative visible impacts of overhead utilities should be minimized from 

travel ways, recreation sites, and water access points. 

The proposed Wilton, Cass Lake, and Boswell substation improvements, as well as the 

proposed Nary Breaker Station and a new Cass Lake Substation, are outside of the 

CNF. 

3.1.3. Mitigation 

The Project would present a contrast to the surrounding landscape in most if not all 

locations, although this contrast would be incremental where the transmission line 

would follow existing transmission lines. For example, in areas located within the 

forest, a transmission line is not a typical view associated with this setting (see Section 

3.10 for a discussion about land use in the Study Area). In general, mitigation would 

include enhancing positive effects, as well as minimizing negative effects. As per the 

CNF management goals, in Moderate and High SIO areas, the Project should try to 

minimize the negative visible impacts of overhead utilities, if they could be seen from 

travel ways, recreation sites, and bodies of water with access (CNF, 2004a). 

The following mitigation strategies to minimize impacts could be included as conditions 

in the High Voltage Transmission Line (HVTL) permit: 

• Vegetation Removal - The permit could limit vegetation removal and require the 

Applicants to minimize the number of trees removed during construction of the 

Project in its selection of the specific ROW for the transmission line and through 

the use of existing ROW. Although the ROW would need to remain free of trees 

throughout the construction and operation of the Project, the ROW could be 

replanted with bushy shrubs and low-growing vegetation to reduce, though not 

eliminate, the contrast. In addition, the Applicants could work with the CNF to 

revegetate and maintain the new permanent right-of-way created on CNF land. 

The temporary construction right-of-way could be reforested with tree 

plantings or natural regeneration and could be allowed to revert to its previous 

state.

• Cleanup – The permit could require the Applicants to remove construction waste 

and scrap on a regular schedule or at the end of each construction phase. 

• Waterway Avoidance – The permit could require the Project to span certain 

waterways, where possible, to minimize effects on aesthetics, recreation, and 

water quality. In addition, the permit could require that the Project cross 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

96 

3.1 Aesthetics 

waterways in more compatible locations to minimize impacts, such as at existing 

utility water crossings. 

• Restoration – The permit would require restoration for ROWs, access roads, 

temporary work spaces, and other private lands affected by construction of the 

Project. Decisions about restoration activities could be coordinated with the 

MnDNR, CNF, LLBO, private land owners, and others with aesthetic concerns 

that might be addressed during the restoration process. 

• Route Location - The permitted route could be specific in the location and width 

of ROW to minimize the visibility from highway, waterway, and trail crossings, 

within the limits of the structures’ design. 

• Co-location - The Project could be double-circuited with existing transmission 

lines to the extent practicable and consistent with sound engineering principles 

or system reliability criteria. The permit could identify areas where the Project 

could be double-circuited with existing transmission lines (Otter Tail Power et 

al., 2008a). 

The following additional mitigation strategies would be implemented by the Applicants 

to further minimize impacts: 

• The location of structures, ROWs, and other disturbed areas would be 

determined by considering input from landowners, the LLDRM, and the CNF to 

minimize visual impacts. 

• Structure types (designs) would be uniform, to the extent practical. The Project 

proposes to primarily use wood poles, which tend to blend into the surrounding 

wooded landscape, although taller single-pole structures may be used for 

double-circuit and angle structures. Descriptions of the structure types are 

provided in Section 2.4.1, Transmission Design. 

• The height of the structures may be reduced, as feasible, to minimize impacts 

within areas of high scenic importance. Use of H-frame structures for the 

Mississippi River crossing would have a lower profile than single pole 

structures. 

• Care would be taken to preserve the natural landscape; construction and 

operation would be conducted to prevent unnecessary destruction, scarring, or 

defacing of the natural surroundings in the vicinity of the work. 

As previously indicated, for areas located within the CNF, the 2004 Forest Plan

provides for the minimization of negative visible impacts of overhead utilities within 

travel ways, recreation sites, and water access points. The CNF established standards 

and guidelines for management activities in areas with a moderate or high SIO 

designation. The plan dictates that permanent openings “will blend with the 

adjacent landscape and have a natural appearance that mimics natural openings” 

(CNF, 2004a as cited in Enbridge Energy, 2009). Scenic resource management 

guidelines call for interruptions in vegetation to be located so as to reduce their linear 

appearance if they can be viewed from travel ways and/or recreation sites. The plan 

also states that temporary openings “will be similar in size, shape and edge 

characteristics to natural openings in the landscape being viewed” or will “mimic a 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

97 

3.1 Aesthetics 

natural disturbance process typical for the area” (CNF, 2004a as cited in Enbridge 

Energy, 2009). Specific mitigation measures within the CNF land may include the 

following (Enbridge Energy, 2009): 

• Maintaining plantings that reduce the visibility of the corridor as seen from 

roads within the CNF. 

• Maintain an 80-foot “no-mow” zone as a buffer extending away from the road 

beginning at the edge of the ROW line. 

• When mitigation vegetation located at the edge of the ROW or within the “nomow” zone spreads beyond its intended boundaries into adjacent nonvegetated lands or beneath the centerline where mowing may be required, it 

should be removed in a way that retains the natural appearance of the 

surrounding plants within designated vegetation or “no-mow” zones. 

The CNF has requested that the Applicants assist CNF and LLDRM with dump site 

cleanup as a mitigation measure. 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

98 

3.2 Air Quality and Climate 

3.2. Air Quality and Climate 

This section describes the overall climate and air quality within the Study Area. 

Representative climate data and potential climate change issues are discussed and 

analyzed to determine the Study Area existing condition and the Project environmental 

effects on the local climate. The current air quality status of the Study Area also is 

presented, with an analysis of how the Project could impact the air quality status along 

with potential mitigation measures. 

Methodology and Sources of Information 

Areas of special concern related to air quality are regions designated by the Clean Air 

Act as Federal Class I areas. Class I areas have been designated as requiring special 

attention in regards to protecting and even improving the visibility in these areas. A 

Class I area is defined as national parks greater than 6,000 acres, national wilderness or 

memorial parks greater than 5,000 acres, and inter-nation parks in existence since 

August 1977. The state of Minnesota contains two Class I areas, Voyageurs National 

Park (100 miles NE of the center of the Study Area) and Boundary Waters Canoe Area 

Wilderness (150 miles ENE of the center of the Study Area). Two additional Class I 

areas, Isle Royale National Park and Seney Wilderness Area, reside in Michigan, and are 

250 and 390 miles away from the Study Area, respectively. There are no Class I areas 

within the Study Area. 

The following discussion about climate is based upon review of climate trends and 

locally and regionally representative historical temperature and precipitation records. 

The air quality discussion is based upon the air quality and attainment designations of 

the area, as determined by Minnesota Pollution Control Agency (MPCA) air quality 

monitoring data (MPCA, 2009b). 

3.2.1. Affected Environment 

The affected environment for air quality and climate for the Study Area is less variable 

across specific locations than other resources because ambient air, unlike land or water, 

is not restricted by physical boundaries. Thus, any discussion related to climate or air 

quality impacts is applicable to all of the build alternatives (i.e., Route Alternatives 1, 2, 

3, and 4 and Segment Alternatives A through T) or geographic areas (i.e., the Chippewa 

National Forest and Leech Lake Reservation) with a few noted differences. The affected 

region for the climate and air quality analysis is focused primarily on the area covering 

Beltrami, Hubbard, Cass, and Itasca counties in north-central Minnesota. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

99 

3.2 Air Quality and Climate 

3.2.1.1. Climate: Precipitation and Temperature 

The Midwestern Regional Climate Center (MRCC), which is a joint program of the 

Illinois State Water Survey and the National Climatic Data Center, maintains a climate 

monitoring network across the Midwest. This network includes three climate 

monitoring sites within or near the Study Area. These three sites are located near the 

cities of Bemidji (MRCC, 2009a), Cass Lake (MRCC, 2009b), and Walker/Ah Gwah 

Ching (MRCC, 2009c). All three stations have complete monthly and yearly datasets for 

temperature and precipitation dating back nearly 100 years. Their proximity to the 

Study Area provides an appropriate representation of the climate in that area. 

The climate records from the three monitors exhibit some local variations; therefore, 

discussion of weather norms is based upon an average of the three sites. Averaging the 

historical temperatures over the three stations for the 1971-2000 period indicates that the 

average annual daily maximum temperature is 49.8 degrees Fahrenheit (°F), and the 

average annual daily minimum temperature is 29.1°F. Historically, January is the 

coldest month, with an average daily maximum temperature of 15.9°F and an average 

daily minimum temperature of -5.4°F. The month of July is typically the warmest, with 

an average daily maximum temperature of 78.7 °F and an average daily minimum 

temperature of 57.0 °F. (MRCC, 2009a, 2009b, and 2009c) 

Precipitation data collected from the three sites indicate greater variation than 

temperature, likely due to localized nature of precipitation events. However, the data 

are reasonably consistent between the three sites. For the 1971-2000 period the normal 

yearly rainfall is 26.3 inches. July is historically the wettest month, averaging 4.3 inches 

(16 percent of normal annual total) of precipitation, while February is typically the driest 

month, averaging 0.6 inches of precipitation (2 percent of the normal annual total). For 

annual snowfall, the Study Area typically averages about 43.0 inches of snow per year, 

with the greatest average monthly snowfall of 10.6 inches (approximately 25 percent of 

the annual total) occurring in December. (MRCC, 2009a, 2009b, and 2009c) 

Based upon an examination of historical temperature extremes across the three sites, the 

Project Study Area can expect 4 to 5 days annually with daily maximum temperatures in 

excess of 90°F, while winter nights with daily minimums below 0°F can occur for 55 to 

60 days annually. For precipitation, the region can expect daily rainfall totals in excess 

of 1 inch on 5 days annually, and daily snowfall events of greater than 2.0 inches can 

occur for approximately 8 days annually. (MRCC, 2009a, 2009b, and 2009c) 

3.2.1.2. Air Quality 

Pursuant to the requirements of the 1990 Clean Air Act (CAA), the United States 

Environmental Protection Agency (USEPA) was tasked with setting National Ambient 

Air Quality Standards (NAAQS) as defined in Title 40, Code of Federal Regulations, Part 50 

(40 CFR 50) for pollutants that are considered harmful to public health and the 

environment (USEPA, 2009b). The USEPA’s Office of Air Quality Planning and 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

100 

3.2 Air Quality and Climate 

Standards (OAQPS) subsequently sets the standards for six principal pollutants, which 

are called "criteria pollutants“ (Table 3.2.1). These pollutants are sulfur dioxide (SO2), 

nitrogen dioxide (NO2), particulate matter (PM10/PM2.5), ozone (O3), carbon monoxide 

(CO), and lead (Pb). The original CAA established two types of national air quality 

standards. Primary standards set limits to protect public health, including the health of 

"sensitive" populations such as asthmatics, children, and the elderly. Secondary 

standards set limits to protect public welfare, including protection against decreased 

visibility, damage to animals, crops, vegetation, and buildings. These standards are 

mathematically defined using both parts per million (ppm) by volume and micrograms 

per cubic meter of air (μg/m3). 

Table 3.2-1: National Primary and Secondary Ambient Air Quality Standards 

Averaging NAAQS 

Emission Type Period Primary 

μ/m3 (ppm) 

Secondary 

μ/m3 (ppm) 

8-hour a 10,000 (9) 10,000 Carbon Monoxide (CO) 1-hour a 40,000 (35) 40,000 

Annual 80 (0.03) -- 

24-hour a 365 (0.14) -- 

3-hour a -- 1,300 (0.5) Sulfur Dioxide (SO2) 

1-hour a, 1,300 (0.5)/ 197 (0.75)g 

Annual 100 (0.05) 100 Nitrogen Dioxide (NO2) 1-hourh 188 (0.1) 

Ozone (O3) 8-hour b (0.075) (0.075) 

Annual e 50 50 PM10

24-hour a 150 150 

Annual d 15 15 

PM2.5d 

24-hour c 35 

65 e

35 

65 e

Lead (Pb) f Rolling 3-Month 

Average 0.15 -- 

Source: USEPA, 2009b 

Notes: a. Not to exceed more than once per year, per monitor location, averaged over a three year period. 

b. As of May 27, 2008, the 8-hour ozone standard is met if the 3-year average of the fourth highest 

8-hour ozone concentration at each monitor is not greater than 0.075 ppm. 

c. In September 2006, EPA revised the 24-hour PM2.5 standard from 65 to 35 μg/m3, but the 

previous standard is currently applicable until EPA completes the attainment designation and 

implementation process. During any 12 consecutive months, 98 percent of the values shall not 

exceed 35 μg/m3 under the new standard, and 65 μg/m3 under the currently applicable 

standard. Minnesota has retained the 65 μg/m3 standard. 

d. Spatial average standard, applied by EPA over a neighborhood scale. 

e. Standard is only a Minnesota standard. 

f. The final rule for new lead standard was signed on October 15, 2008. 

g. EPA promulgated a new 1-hour SO2 standard on June 2, 2010 and revoked the primary 

annual and 24-hour SO2 standards. Implications of the new standard will be phased in over 

time with attainment and non-attainment designations completed by June 2012. 

h. EPA promulgated a new 1-hour NO2 standard on January, 22, 2010, while also retaining 

the long-term annual standard. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

101 

3.2 Air Quality and Climate 

The MPCA operates a network of 45 air quality monitoring sites throughout the state 

(MPCA, 2009b). The agency also supports operation of additional sites at three tribal 

sites, six PM2.5 speciation sites, and 10 National Acid Deposition Program (NADP) sites. 

The air quality data collected from these monitors are analyzed to determine compliance 

with the NAAQS. The nearest MPCA ambient air quality monitors to the Study Area 

are located near the cities of Detroit Lakes (60 miles southwest of Bemidji; PM2.5/O3), 

Brainerd (84 miles southeast of Bemidji; PM2.5/O3), and Cloquet (120 miles east of 

Bemidji; NO2). Monitors are also located in “hotspot” urban areas such as MinneapolisSt. Paul and Duluth. As reported in the MPCA Annual Air Monitoring Network Plan 

for the State of Minnesota (MPCA, 2009a), the entire state of Minnesota has been in 

compliance with the NAAQS since 2002. 

The Leech Lake Band of Ojibwe Air Quality Program operates an FRM PM 2.5 monitor 

(AQS monitor number 270210001881011). This site represents the nearest PM 2.5 

monitor to the Study Area. The monitor is not part of the MPCA network, but is an 

independent, tribally operated monitor within the USEPA network. 

3.2.2. Direct/Indirect Effects 

This section discusses the potential direct and indirect impacts to air quality and climate 

for the Project alternatives. As discussed in Section 3.2.1, the potential impacts to 

climate and air quality from construction and operation of the transmission line for all 

build alternatives (Route Alternatives 1, 2, 3, and 4 and Segment Alternatives A through 

T), including segments traversing the Leech Lake Reservation (LLR) and Chippewa 

National Forest (CNF), would be generally similar. The direct and indirect effects of the 

No-Build Alternative are presented in Section 3.2.2.1, and potential impacts from the 

Project across the various Route and Segment Alternatives are discussed in Section 

3.2.2.2. 

Potential direct effects from the Project include: 

• Change in air quality 

• Contribution to climate change 

Potential indirect effects from the Project include: 

• Decrease in carbon sequestration 

• Increase in fugitive dust 

3.2.2.1. No-Build Alternative 

Under the No-Build Alternative, the Project would not be constructed. No new 

transmission lines, land use changes, additional new access roads, or other Project 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

102 

3.2 Air Quality and Climate 

related activities would occur. Consequently, there would be no direct impacts to local 

and regional climate or air quality. 

3.2.2.2. Route Alternatives 

Construction and operation of the Project would have some minor direct and indirect 

impacts on air quality and climate, as described below. Although the magnitude of 

ambient air quality impacts would generally be similar for all build alternatives, the 

duration, extent, and particular location of potential impacts would vary to some extent 

by alternative. Route Alternatives 1, 2, and 4 are of similar length, at 69, 68, and 70 miles 

respectively, and cross portions of the CNF and LLR. Route Alternative 3 traverses 116 

miles, the greatest distance, but avoids a majority of the CNF and LLR lands. Evaluation 

of feasible 125-foot rights of way for all four Route Alternatives show Route Alternative 

3 with the highest potential to remove tree cover at approximately 812 forested acres. 

Route Alternative 1 would remove an estimated 580 forested acres and Route 

Alternative 2 would remove an estimated 432 forested acres. Route Alternative 4 

would remove an estimated 575 forested acres. Thus, relative to the Route Alternatives 

1, 2, or 4, Route Alternative 3 would likely create the greatest magnitude and duration of 

construction related air quality impacts across its area and greatest reduction in carbon 

sequestration. However, Route Alternative 3 mostly avoids air quality impacts to the 

sensitive lands of the CNF and LLR. 

Air Quality 

Potential short-term impacts to air quality from construction of the Project could include 

temporary degradation of air quality from the emission of air pollutants during the 

operation of construction equipment and vehicles. 

Black Carbon is a dust particulate emitted into the ambient air as a product of 

incomplete combustion of heavy petroleum products, fossil fuels, and biofuels. Black 

Carbon could be emitted during operation of heavy construction equipment and 

vehicles, or open burning of certain construction materials. Black Carbon can contribute 

to global warming because it can absorb heat in the atmosphere. Unlike carbon dioxide, 

which can remain in the atmosphere for years, Black Carbon is typically deposited 

within days to weeks. Upon deposition, it can also contribute to warming by reducing 

the albedo (the ability to reflect sunlight) of land surfaces, especially snow covered 

areas. 

Minnesota Statute 88.171 addresses the issue of open burning in the state. Open burning 

of rubber, plastics, or chemically treated materials such as tires, lumber, composite 

shingles, paper, insulation, paint, and other material are prohibited. The Minnesota 

Department of Natural Resources handles open burning issues in the state and requests 

to open burn any material are subject to a ruling from the commissioner. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

103 

3.2 Air Quality and Climate 

Localized air quality impacts also could result from re-suspension of dust (i.e., 

particulate) in the ambient air as a consequence of earth moving activity and travel on 

unpaved roads. During construction activities, dust particulates have the potential to 

deposit on nearby or adjacent surfaces. However, for all of the alternatives, the air 

quality impacts are expected to be intermittent, to occur only during construction of the 

Project, and to remain within levels protective of the NAAQS. 

The long-term primary air quality concerns related to the operation of the transmission 

lines are emissions of ozone and nitrogen oxide near the conductor due to the 

development of a corona during Project operation. Physical damage, dust buildup, or 

water buildup may induce conductor irregularity, and potentially some corona 

discharge. The ionization of air results in an energy loss that creates audible noise, radio 

noise, light, heat, and small amounts of ozone. Corona consists of the breakdown or 

ionization of air within a few centimeters or less of the conductors. It usually occurs 

when the electric field intensity, or surface gradient, on the conductor exceeds the 

breakdown strength of air. Usually some imperfection, such as a scratch on the 

conductor or a water droplet, is necessary to cause corona. Corona discharges can be 

minimized by the proper selection of conductors. 

Ozone is a very reactive form of oxygen and combines readily with other elements and 

compounds in the atmosphere. Ozone forms naturally in the lower atmosphere from 

lightning discharges, and in the presence of sunlight from chemical reactions between 

ozone precursors such as nitrogen oxides and hydrocarbons. The natural production 

rate of ozone is directly proportional to temperature and sunlight, and inversely 

proportional to humidity. Humidity (or moisture), the same factor that increases corona 

discharges from transmission lines, inhibits the production of ozone. 

The USEPA has regulations regarding the permissible concentrations of ozone and 

oxides of nitrogen (62 Federal Register 38856) in the atmosphere. As shown in Table 

3.2.1, the national standard is 0.075 parts per million (ppm) over a rolling 8-hour 

averaging period (40 CFR 50). This standard is based upon the measured fourth greatest 

8-hour daily maximum average for ozone at each monitor in one year, average over a 3-

year period. 

Studies of monitored concentrations of ozone due to corona show no major incremental 

ozone concentrations increases at ground level, and minimal (0.001 to 0.008 ppm) 

concentrations at the transmission line elevation. Typically, the greater level of ozone 

concentration would only be detected during heavy corona in foul weather, often a time 

with low background ozone levels. Additional testing showed that production of 

nitrogen oxides due to corona would be approximately one-fourth of the production of 

ozone due to corona. Relative to the NAAQS, increased concentrations of ozone due to 

corona would likely be on the order of one–hundredth to one-tenth of the standard near 

the elevated transmission line, and would be temporally or spatially negligible. Thus, 

the Project would likely have a negligible impact on ozone air quality during operation 

on any of the Route or Segment Alternatives. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

104 

3.2 Air Quality and Climate 

Climate Change 

Climate change refers to an emerging consensus within the scientific community which 

indicates that global climate, particularly changes in temperatures, are affected by 

human activities. As described in the USDA Forest Service report, “Interim Update of the 

2000 Renewable Resources Planning Act Assessment” (2007), it is widely acknowledged that 

climate variability influences the health of plant, insect, and animal ecosystems. The 

concern is that anthropogenic (man-made) greenhouse gas emissions such as carbon 

dioxide, methane, and nitrous oxides contribute to the altering of climate and 

ecosystems globally. Anthropogenic activities such as burning of fossil fuels and the 

coincidental land surface changes due to deforestation, reforestation, and urbanization, 

directly or indirectly add quantities of greenhouse gases into the atmosphere, 

particularly carbon dioxide. The magnitude of the increased greenhouse gas emissions 

due to these activities is often quantified in terms of their “carbon footprint.” The 

carbon footprint can increase or decrease from activities that indirectly increase or 

decrease the atmospheric load of these greenhouse gases, which affect mechanisms that 

sequester carbon in other forms. 

According to the MPCA Report to the Minnesota Legislature, “Air Quality in Minnesota: 

Emerging Trends” (2009a), emissions of CO2 in Minnesota increased by 50 percent from 

1970 to 2006. This increase was largely due to an increased reliance on the combustion 

of coal to generate electricity to handle increased load demand. As a result, the 

Minnesota legislature and the Governor signed the Next Generation Energy Act (2007) 

which initiated efforts to increase renewable energy use in the state, increase energy 

conservation, and decrease greenhouse gas emissions, especially CO2. The Act also set 

specific greenhouse gas emissions reductions percentages from a 2005 baseline date for 

the years 2015, 2025, and 2050. 

Construction of the Project would reduce current energy losses resulting from 

transmission system inefficiency. Energy losses can be expressed as CO2 emissions, a 

key source of greenhouse gas emissions. As part of the Macrocorridor Study for the 

Project (Otter Tail Power et al., 2008b) the Applicants evaluated the annual CO2

reduction associated with the following four options for meeting electrical need: 1) 

rebuilding the existing 115 kV transmission line; 2) construction of a second WingerWilton 230 kV transmission line; 3) construction of the Badoura-Wilton 230 kV line; and 

4) construction of the Project. Construction of the Project would result in improving 

voltage and efficiency in meeting power supply needs. It was determined that the 

Project would result in an estimated annual CO2 reduction of 72,000 metric tons. The 

CO2 loss reduction for the Project was determined to be 10 times greater than the rebuild 

option, 40 times greater than the Winger-Wilton option, and six times greater than the 

Badoura-Wilton option (Otter Tail Power et al., 2008b). The reduction in transmission 

line losses (CO2 emissions) is greatest for Route Alternatives 1 and 2 due to their shorter 

length. 

The Macrocorridor Study also estimated reductions in annual emissions of SO2, NOx, 

PM10, CO2, and mercury of the proposed routes relative to the currently operating 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

105 

3.2 Air Quality and Climate 

transmission system. For Route Alternatives 1 and 2 relative to the current system, it 

was estimated that there would be a reduction of 240 tons per year (tpy) of SO2, 173 

tpy of NOx, 14 tpy of PM10, 81,158 tpy of CO2, and 1,704 grams per year of mercury. 

For Route Alternative 3, this reduction would be 193 tpy of SO2, 139 tpy of NOx, 11 

tpy of PM10, 65,198 tpy of CO2, and 1,369 grams per year of mercury. From a CO2, or 

carbon footprint perspective, Route Alternatives 1 and 2 are estimated to produce 24 

percent greater annual emissions reduction savings relative to Route Alternative 3. 

Route Alternative 4 was not yet identified at the time of the Macrocorridor Study; 

effects of Route Alternative 4 would be similar to those estimated for Route 

Alternatives 1 and 2. 

Construction of the Project may result in a minor decrease in terrestrial carbon 

sequestration (CO2) potential due to the removal of existing tree cover along all build 

alternatives, with the greatest magnitude experienced over the alternative which 

requires the most temporary and permanent tree removal (USEPA, 2009a). However, 

this effect is expected to be negligible because the Applicants would be required by the 

HVTL Route Permit to restore cleared ROW, storage areas, and access roads with a 

suitable vegetative species. 

In summary, the proposed alternatives and associated net change in air emissions are 

expected to be negligible. In addition, it is unlikely that temperature and precipitation 

climatology would deviate from the current natural trend as a result of the Project 

activities. 

3.2.3. Mitigation 

As construction of the Project proceeds, several mitigation measures could be 

implemented to minimize the short-term magnitude and spatial impact of off-site resuspended dust into the atmosphere. Because the effects of the Project on air quality are 

expected to be minor, air quality mitigation measures specific to controlling emissions 

would typically not be included in the HVTL permit. Direct and indirect impacts 

(discussed below) would instead be addressed through best management practices 

(BMPs) and adherence to federal, state, and local regulations. 

Temporary impacts from fugitive dust would be minimized or avoided by using BMPs 

to control dust during construction of the Project. During the construction phase, 

construction and traffic activities could be monitored for dust generation. To minimize 

dust particle displacement from travel on unpaved roads, vehicle traffic could be 

operated at reduced speeds. Water and other dust abatement methods could be used to 

wet down dust-laden roadways. Oil and other petroleum derivatives are not generally 

recommended for dust control as they can potentially increase runoff rates and 

contribute to water quality issues. MPCA air quality rules (Minn. R. 7011.0150) 

acknowledge the need to avoid release of fugitive particulate matter to the air and 

require reasonable control measures such as regular clearing of roadways, application of 

dust-free surfaces, water application or planting of vegetation. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

106 

3.2 Air Quality and Climate 

Restoration of cleared ROWs, storage areas, and access roads would be a condition in 

the HVTL permit issued by the Commission. Minimizing the extent of disturbed areas 

in the Project area would limit the potential for dust generation. Restoration of the 

natural landscape would commence shortly upon cessation of construction activities, as 

is typically required as a condition of the HVTL permits issued by the Commission. 

The permitting agencies could require that vehicles used during construction be well 

maintained in compliance with Federal and State air quality regulations. Equipment 

and vehicles that showed excessive emissions of exhaust gases due to poor engine 

adjustments, or other inefficient operating conditions, could be removed from service 

until repairs or adjustments were made. Limiting idle times and performing shutdowns 

of equipment when not in use could be practiced. LLDRM has requested that idle times 

be monitored and limited, and that construction contractors use ULSD fuel in on and 

off-road equipment. 

LLDRM has stated that slash piles will not be burned on or near the boundaries of the 

LLR in order to reduce the potential for black carbon and other emissions within the 

LLR. 

Decreases in terrestrial carbon sequestration from the clearing of ROW could be 

substantially offset by the re-planting of new growth vegetation (USEPA, 2009a). 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

107 

3.3 Geology and Soils 

3.3. Geology and Soils 

This section describes the topographic, geologic, and soils resources that are crossed by 

the Route and Segment Alternatives, the potential impacts of the Route and Segment 

Alternatives on those resources, and potential mitigation measures to reduce or 

eliminate those potential impacts. 

Methodology and Sources of Information 

The ecological land classification system was used to describe the Study Area. The 

ecological land classification system is used to identify, describe, and map 

progressively smaller areas of land with increasingly uniform ecological features. 

The U.S. Department of Agriculture Natural Resource Conservation Service (NRCS) 

Soil Survey Geographic (SSURGO) database was used to identify soil resources 

within the Study Area. 

3.3.1. Affected Environment 

This section describes the topography, geography, and soils present within the Study 

Area. The Study Area is defined as the 1,000-foot-wide route proposed by the 

Applicants for Route Alternatives 1, 2, 3, and 4 and Segment Alternatives A through T. 

Only potential effects to soils will be discussed. Background information on topography 

and geology are presented here to provide context for the soils effects discussion. 

3.3.1.1. Topography 

Surface topography in the Study Area is flat to gently rolling, with slopes generally 

ranging from 4 to 8 percent. Slopes may be infrequently as steep as 16 percent. The 

Study Area is characterized by low relief, where undulating plains are marked by gently 

sloping swells, sags, and depressions (Carney and Mooers, 1998). Surface elevations 

range from 1,250 to 1,450 feet above sea level in the Study Area (Otter Tail Power et al., 

2008a). 

The Study Area includes many lakes; rivers, streams, and creeks; and marshes and 

wetlands, which are typical of terrain subjected to geologically recent glacial occupation. 

The Mississippi River generally parallels the alternatives, running through Lake Bemidji, 

Cass Lake, and Lake Winnibigoshish. Other large bodies of water in the vicinity of the 

alternatives include Pike Bay, Portage Lake, and portions of Cass Lake, Lake 

Winnibigoshish, Ball Club Lake, Big Fork River, Bow String Lake, Sand Lake, Rice Lake, 

Turtle River, Turtle Lake, and Little Jesse Lake (Otter Tail Power et al., 2008a). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

108 

3.3 Geology and Soils 

3.3.1.2. Geology 

Approximately 100 to 600 feet of glacially derived sediments overlie the bedrock within 

the Study Area (MnDNR, 2009b). Approximately half of the Study Area is covered with 

glacial outwash, consisting of sands and gravels deposited during glacial melting, with 

approximately 40 percent covered by ground moraines, which are sandy loam to clay 

loam till deposits that were deposited at the base of a glacier. Discontinuous sand lenses 

may also be present in the Study Area (Otter Tail Power et al., 2008a). 

Due to the thickness of the glacial sediment deposits, it is appropriate to describe the 

geology of the Study Area based upon glacial sediment rather than bedrock geology. 

Transmission line structures and underlying foundations would be installed at depths of 

10 to 15 feet below ground surface. As such, it is not expected that bedrock would be 

encountered during construction. Due to the surficial boundaries of construction, this 

discussion is limited to an overview analysis of geological conditions. 

The Study Area is located within the northern Minnesota Drift and Lake Plains 

Ecological Section and covers portions of the Chippewa Plains and St. Louis Moraines 

subsections (MnDNR, 2009b; MnDNR, 2009d). The Chippewa Plains subsection covers 

most of the Study Area. This subsection is characterized by ground moraines, 

stagnation moraines, a lake plain, and an outwash plain. Moraines are topographically 

diverse deposits of mixed glacial till, left behind by retreating glaciers. Glacial outwash 

and lake plains are typically flat, comprised of finer sediments deposited by flowing or 

standing glacial melt water (Otter Tail Power et al., 2008a). The St. Louis Moraines 

subsection consists of ground moraines and a pitted outwash plain (MnDNR, 2009b). A 

cap of calcareous gray sediment from 1 to 10 feet in depth covers most of the subsection. 

Coarse loamy sediments underlie the cap (MnDNR, 2009b). 

Bedrock in the Study Area is primarily composed of Pre-Cambrian aged granitegreenstone in a belt that formed 2.5 to 2.9 billion years ago. The dominant bedrock type 

is of granitic composition, occupying approximately two-thirds of the Study Area. 

Bedrock in the remainder of the Study Area is composed of basalt and monzonite, with 

minor greywacke sandstone. (Morey and Meints, 2000) There are several small faults 

that run east-west within or on the edge of the Study Area. However, there is only a 

minor seismic hazard in Minnesota as a whole (USGS, 2007). 

3.3.1.3. Soils 

The U.S. Department of Agriculture Natural Resource Conservation Service (NRCS) Soil 

Survey Geographic (SSURGO) database describes the soil resources within the Study 

Area. Soils are generally grouped into categories known as associations. A soil 

association has a distinctive pattern of soils, relief and drainage, and is a unique natural 

landscape. Typically, an association consists of one or more major soils and some minor 

soils. The soils in the Study Area are grouped into 11 soil associations, as shown in 

Tables 3.3-1 and 3.3-2 and in Figure 3.3-1. Generally, the soils found along the Route 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

109 

3.3 Geology and Soils 

and Segment Alternatives are moderately well-drained to excessively well-drained 

sandy loams or loamy sands on uplands, with poorly-drained muck soils found in the 

large wetland depressions, peatlands, and bogs. Route Alternatives 1, 2, and 4 consist 

generally of well drained soils, approximately 81, 86, and 80 percent, respectively. 

Route Alternative 3 has a somewhat larger representation of poorly drained soils, 

resulting in approximately 73 percent well drained soils. Prime farmlands located in the 

Study Area and for each alternative are described in Section 3.14, Agriculture. 

Table 3.3-1: Soil Associations for the Route Alternatives (Percent of Route) 

Soil Associations Route 

Alternative 

1 

Route 

Alternative 

2 

Route 

Alternative 

3 

Route 

Alternative 

4 

Andrusia-Graycalm-Marquette (MN027) 

The Association consists of very deep, well 

drained and somewhat excessively drained 

soils. They formed in sandy and gravelly 

sediments and deposits on glacial outwash 

plains, glacial lake beaches, outwash plains, 

glacial stream terraces, and moraines, 

kames, and stream terraces.

3.7 0.0 2.2 3.9 

Cathro-Seelyeville-Markey (MN065) The 

Association consists of very deep; very 

poorly drained organic soils moderately deep 

to loamy materials. They formed in organic 

material 16 to 51 inches thick overlying 

loamy glacial or sandy deposits on ground 

moraines, end moraines, outwash plains, 

lake plains, stream/river terraces, flood 

plains, and valley trains. 

1.2 0.0 0.0 0.2 

Cutaway-Sandwick-Greenwood (MN279) 

The Cutaway-Sandwick series consists of 

very deep, moderately well to poorly drained 

soils formed in a sandy glacial outwash or 

eolian mantle and underlying calcareous, 

loamy till. These soils are on moraines, lake 

washed till plains and glacial beach ridges. 

The Greenwood series consists of very deep, 

very poorly drained soils formed in organic 

deposits more than 51 inches thick on 

outwash plains, till floored lake plains, or lake 

plains.

0.2 0.0 1.1 0.2 

Greenwood-Rifle-Cathro (MN473) The 

Association consists of very deep, very 

poorly drained soils formed in organic 

deposits more than 51 inches thick on 

outwash plains, till floored lake plains, lake 

plains, ground moraines, end moraines, or in 

bogs and depressional areas.

10.2 6.8 12.5 15.1 

Indus-Taylor-Dalbo (MN277) The 

Association consists of deep, poorly and 

somewhat poorly to moderately well drained 

soils formed in clayey calcareous, glacial 

3.0 6.3 10.2 3.6 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

110 

3.3 Geology and Soils 

Soil Associations Route 

Alternative 

1 

Route 

Alternative 

2 

Route 

Alternative 

3 

Route 

Alternative 

4 

lacustrine sediment on lake plains.

Menahga-Graycalm-Mooselake (MN026) 

The Association consists of very deep, 

excessively drained to well drained soils that 

formed in sandy glacial outwash sediments 

on outwash plains, valley trains, and some 

moraines, drumlins, kames, and stream 

terraces. Some components consist of very 

poorly drained organic soils that formed 

mostly in hemic organic soil material with 

woody fiber.

16.6 42.5 18.6 30.5 

Nebish-Shooker-Beltrami (MN045) The 

Association consists of very deep, well 

drained to poorly drained soils formed in 

calcareous loamy glacial till on glacial 

moraines and till plains.

8.1 2.3 29.8 8.4 

Rifle-Tacoosh-Seelyeville (MN066) The 

Association consists of very deep, very 

poorly drained soils formed in organic 

deposits more than 51 inches thick in bogs 

and depressional areas within ground 

moraines, end moraines, outwash plains, 

lake plains, till plains, valley trains, and flood 

plains.

3.7 1.4 0.0 1.2 

Sol-Nary-Stuntz (MN055) The Association 

consists of very deep, well drained to 

somewhat-poorly drained soils that formed in 

loamy or calcareous glacial till on moraines. 

They are on glaciated ground moraines and 

end moraines.

0.0 0.3 4.0 0.0 

Warba-Cutaway-Stuntz (MN015) The 

Association consists of very deep, 

moderately well and well drained soils 

formed in loamy 

calcareous glacial till on moraines, sandy 

glacial outwash or eolian mantle, lake 

washed till plains, and glacial beach ridges.

20.6 6.9 0.0 5.9 

Zimmerman-Cowhorn-Mooselake (MN272) 

The Association consists of very deep, 

excessively drained soils that formed in 

sandy glacial outwash or eolian sediments 

on glacial outwash plains, stream terraces, 

deltas, lake terraces, dunes, beach deposits 

and valley trains. Some components consist 

of very poorly drained organic soils that 

formed mostly in hemic organic soil material 

with woody fiber.

32.7 33.6 0.9 30.9 

Sources: U.S. Department of Agriculture, NRCS. 2003. State Soil Survey Geographic (SSURGO) Data Base 

for Minnesota. 
Bemidji – Grand Rapids Transmission Line Sept

Final EIS 

111 

3.3 Geology and Soils 

Table 3.3-2: Soil Associations for Segment Alternatives (Percent of Segment Alternative) 

Soil Associations Segment Alternatives 

A B C D E F G H I J K L M N O P 

Cathro-Seelyeville- Markey (MN065) The Association consists of very deep; very poorly drained organic soils moderately deep to loamy materials. They formed in organic material 16 to 51 inches thick overlying loamy glacial or sandy deposits on ground moraines, end moraines, outwash plains, lake plains, stream/river terraces, flood plains, and valley trains.

6 0 0 0 0 0

0

0

0

0

0

0

0

0

0

0

Greenwood-Rifle- Cathro (MN473) The Association consists of very deep, very poorly drained soils formed in organic deposits more than 51 inches thick on outwash plains, till floored lake plains, lake plains, ground moraines, end moraines, or in bogs and depressional areas.

0 0 0 0 8 0

0

0

0

0

0

0

0

0

0

0

Indus-Taylor-Dalbo (MN277) The Association consists of deep, poorly and somewhat poorly to moderately well drained soils formed in clayey calcareous, glacial lacustrine sediment on lake plains.

0 0 0 0 60 0

0

0

0

0

0

0

0

0

0

0

Menahga-Graycalm- Mooselake (MN026) The Association consists of very deep, excessively drained to well drained soils that formed in sandy glacial outwash sediments on outwash plains, valley trains, and some moraines, drumlins, kames, and stream terraces. Some components consist of very poorly drained organic soils that formed mostly in hemic organic soil material with woody fiber.

7 49 0 16 0 100 100 100 100 0 65 0 51 0

0

0
Bemidji – Grand Rapids Transmission Line Sept

Final EIS 

112 

3.3 Geology and Soils 

Soil Associations Segment Alternatives 

A B C D E F G H I J K L M N O P 

Nebish-Shooker- Beltrami (MN045) The Association consists of very deep, well drained to poorly drained soils formed in calcareous loamy glacial till on glacial moraines and till plains.

75 0 0 0 0

0

0

0

0 100 0

0

0

0

0

0

Warba-Cutaway-Stuntz (MN015) The Association consists of very deep, moderately well and well drained soils formed in loamy calcareous glacial till on moraines, sandy glacial outwash or eolian mantle, lake washed till plains, and glacial beach ridges.

11 51 0 84 0

0

0

0

0

0 27 100 49 100 100 0

Zimmerman- Cowhorn-Mooselake (MN272) The Association consists of very deep, excessively drained soils that formed in sandy glacial outwash or eolian sediments on glacial outwash plains, stream terraces, deltas, lake terraces, dunes, beach deposits and valley trains. Some components consist of very poorly drained organic soils that formed mostly in hemic organic soil material with woody fiber.

0

0 100 0

0

0

0

0

0

0

0

0

0

0

0 10

Sources: U.S. Department of Agriculture, NRCS. 2003. State Soil Survey Geographic (SSURGO) Data Base for Minnesota. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

113 

3.3 Geology and Soils 

3.3.2. Direct/Indirect Effects 

Potential effects on soils from the Project build alternatives on the 125-foot right-of-way 

(ROW) are discussed below. No changes to topography or geology are expected and 

will not be discussed further. 

Potential direct effects to soils include: 

• Soil movement and displacement 

Potential indirect effects to soils include: 

• Changes in plant and wildlife habitat 

• Changes to water quality from erosion and sedimentation if best management 

practices (BMPs) are not followed during construction 

• Changes to land use 

3.3.2.1. No-Build Alternative 

The No-Build Alternative would result in no additional transmission line development 

and, as such would not impact area soils. 

3.3.2.2. Route Alternatives and Segment Alternatives 

Surface soils would be disturbed by site clearing, grading, and excavation activities at 

structure locations, pulling and tensioning sites, setup areas, and during the transport of 

crews, machinery, materials, and equipment over access routes (primarily along the 

transmission ROW). 

Disturbed soils can be subject to erosion, defined as the detachment and transport of 

individual soil grains by wind or water. Erosion by wind is related to soil moisture, soil 

texture, organic matter content, soil structure, vegetative cover, and climate. Wind 

erosion often occurs on dry, fine sandy soils when vegetation cover is sparse and strong 

winds are prevalent. Water erosion is related closely to a soil's infiltration capacity and 

the coherence of the soil particles that comprise the soil. Soil properties that influence 

water erosion include soil texture, percent organic matter, soil structure, soil infiltration 

capacity, and soil permeability. Soils containing high proportions of silt and very fine 

sand are most erodible. Well-drained and well-graded gravels and gravel sand mixtures 

with little or no silt are the least erodible soils. Water erosion is also influenced by slope 

length and gradient, as well as frequency, intensity, and duration of rainfall and the 

amount of time bare soils are exposed (USDS, 2008). Erosion in the Study Area could be 

caused by site clearing and earthmoving in addition to natural processes. However, 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

114 

3.3 Geology and Soils 

analysis of the soil types in the Study Area indicates that there are no soils in the Study 

Area that are considered highly erodible by wind or water. 

During extended periods of saturation, poorly drained soils can be prone to compaction 

and rutting. If construction activities, particularly the operation of heavy equipment, 

occur when these soils are saturated, compaction and rutting could occur. Soil 

compaction is defined as the packing of soils by the application of loads or pressure, 

such as by the movement of heavy construction equipment over the soils. This is 

primarily expected to occur during construction, but could also occur if heavy 

equipment is driven over ROWs for maintenance during operation of the Project. Soil 

compaction has a restrictive action on water penetration, root development, and the rate 

of oxygen diffusion into soils. Low density and change of vegetation types may be an 

indirect effect of soil compaction. Soil characteristics that affect soil compaction include 

soil texture, soil moisture, and grain size. All soil types are susceptible to compaction 

and would also be susceptible to rutting if construction occurs when the upper layers of 

these soils are moist or near saturation. Wet organic soils pose a challenge for 

construction and are most susceptible to compaction (USDA, 2001). 

Construction of the Project is expected to disturb approximately 882 to 1,378 acres of 

soil, depending upon the Route Alternative. Disturbed soils have the potential for 

erosion and compaction, although the quantity and extent of acreage affected by 

erosion or compaction would depend on the localized soil qualities and placement 

and movement of equipment within the ROW. Long-term impacts from the placement 

of Project structures were calculated for a feasible 125-foot ROW assuming an impact 

area of approximately 300 square feet per structure. Long-term impacts are defined as 

soils removed for pole placement where vegetation would not return during the Project 

lifetime due to the placement of structures. Temporary impacts were assumed to occur 

along the entire ROW evaluated, except in locations where the ROW would be reduced 

to 30 feet to reduce crop damage (Otter Tail Power et al., 2008a). 

Temporary impacts are defined as the disturbance of soils during Project construction, 

which could lead to erosion or compaction. These impacts are considered temporary, as 

the ROW would largely be returned to pre-construction conditions, as possible, during 

restoration. However, in some areas, temporary impacts such as soil compaction would 

be prolonged if heavy equipment is driven over the ROW for maintenance purposes 

during operation of the Project. The vast majority of impacted acreage, from 879 acres 

for Route Alternative 1 to 1,373 acres for Route Alternative 3, would be related to 

construction equipment and clearing of the ROW and thus temporary impacts. 

Depending upon the Route Alternative, approximately 3 to 5 acres would undergo longterm conversion from current cover types due to the installation of pole structures (Table 

3.3-3). 

For the ROWs evaluated, Segment Alternative A would impact the greatest amount of 

acreage (181 acres) on both a long-term and temporary basis, while Segment Alternative 

Q would impact the least amount of acreage (2 acres) on both a long-term and 

temporary basis. This analysis assumes that setup and staging sites would be limited to 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

115 

3.3 Geology and Soils 

existing disturbed areas; temporary or long-term impacts are not accounted for in Table 

3.3-3. If non-disturbed areas are used for set-up and staging, including existing ROWs 

that have been restored, these areas could experience temporary impacts from 

construction activities. 

Table 3.3-3: Effects upon Soils within a Feasible 125-foot Right-of-Way 

 

Route and Segment 

Alternatives 

Acres of 

Long-Term Impacts 

Acres of 

Temporary 

Impacts 

Total Impact 

Acres Total ROW Acres

Route Alternatives

1 3 879 882 1,048 

2 3 919 922 1,018 

3 5 1,373 1,378 1,759 

4 3 904 907 1,064 

Segment Alternatives

A 0.71 181 181.71 1,901 

B 0.48 154 154.48 1,271 

C 0.20 67 67.02 525 

D 0.23 49 49.23 591 

E 0.48 119 119.48 1,299 

F 0.06 18 18.06 179 

G 0.07 15 15.07 199 

H 0.05 12 12.05 121 

I 0.02 3 3.02 59 

J 0.02 8 8.02 53 

K 0.27 71 71.27 735 

L 0.11 27 27.11 298 

M 0.11 34 34.11 296 

N 0.17 56 56.17 441 

O 0.13 42 42.13 325 

P 0.02 5 5.02 64 

Q 0.01 2 2.01 5 

R 0.08 14 14.08 233 

S 0.04 7 7.04 133 

T 0.09 19 19.09 262 

Route Alternative 1 would require construction of a new substation located in the Cass 

Lake area and may entail construction of a Nary Breaker Station (under Segment 

Alternative A). Route Alternative 2 would require the expansion of an existing Cass 

Lake Substation. The location proposed for the new Cass Lake substation associated 

with Route Alternative 1 consists of approximately four acres of forested land. The Nary 

Breaker Station would require the removal of approximately 2.5 acres of woody 

vegetation. The Cass Lake Substation expansion would be constructed on previously 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

116 

3.3 Geology and Soils 

disturbed land owned by Otter Tail Power. All acreage used for substation construction 

or expansion would represent a long-term impact to soils. 

3.3.2.3. Leech Lake Reservation 

Soil types within the Leech Lake Reservation (LLR) are consistent with those found 

throughout the Study Area. Table 3.3-4 summarizes potential soil impacts for the 

feasible 125-foot ROW evaluated within each Route Alternative and Segment 

Alternative. Temporary impacts associated with construction, as described above, 

within the ROW evaluated would range from 4 acres with Route Alternative 3 to 636

acres with Route Alternative 4. Temporary impacts include all soils that would be 

disturbed by the Project and have the potential to result in erosion and compaction. 

The quantity and extent of acreage affected by erosion or compaction would depend 

on the localized soil qualities and placement and movement of equipment within the 

ROW. Thus, the range of temporary impacts provided represent a maximum 

estimated temporary impact for the feasible 125-foot ROW. No Project structures 

would be placed within the LLR for Route Alternative 3; thus, Route Alternative 3 

would result only in temporary impacts to the LLR during the construction phase. 

Route Alternatives 1, 2, and 4 would all have approximately 2 acres of long-term 

impacts within the Leech Lake Reservation from placement of Project structures. 

Segment Alternative E would impact the greatest amount of acreage (1,268 acres) within 

the 125-foot ROW. However, Segment Alternative B would impact the greatest amount 

of acreage (154 acres) during construction on a temporary basis for the ROW evaluated. 

Segment Alternative Q would impact the least amount of acreage (2 acres) due to 

construction and pole placement within the ROW evaluated. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

117 

3.3 Geology and Soils 

Table 3.3-4: Effects upon Soils within a Feasible 125-foot Right-of-Way within the LLR 

Route and 

Segment 

Alternatives 

Acres of 

Long-Term Impacts 

Acres of 

Temporary Impacts 

Total Impact 

Acres 

Total ROW 

Acres 

Route Alternatives

1 2 618 620 664 

2 2 632 634 656 

3 0 4 4 4 

4 2 636 638 672 

Segment Alternatives

A N/A 

B 0.48 154 154.48 1,270 

C 0.18 61 61.18 482 

D 0.21 45 45.21 536 

E 1,161 107 1,268 1,161 

F 0.06 18 18.06 179 

G N/A 

H N/A 

I N/A 

J N/A 

K 0.10 29 29.10 285 

L 0.08 20 20.08 206 

M 0.11 34 34.11 296 

N 0.17 56 56.17 441 

O 0.13 42 42.13 325 

P 0.02 5 5.02 64 

Q 0.01 2 2.01 5 

R N/A 

S N/A 

T N/A 

3.3.2.4. Chippewa National Forest 

Soil types within the Chippewa National Forest (CNF) are consistent with those found 

throughout the Study Area. Table 3.3-5 summarizes potential soil impacts for the ROW 

evaluated within each Route and Segment Alternative. Construction impacts would 

range from 486 acres with Route Alternative 2 to 837 acres with Route Alternative 3. 

Temporary impacts include all soils that would be disturbed by the Project and have 

the potential to result in erosion and compaction. The quantity and extent of acreage 

affected by erosion or compaction would depend on the localized soil qualities and 

placement and movement of equipment within the ROW. Thus, the range of 

temporary impacts provided represent a maximum estimated temporary impact for 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

118 

3.3 Geology and Soils 

the feasible 125-foot ROW. Long-term impacts from structure placement would be 

considerably smaller; approximately 1 acre with Route Alternatives 1, 2, and 4 and 3 

acres with Route Alternative 3. Segment Alternative E would impact the greatest 

amount of acreage both long-term (0.48 acre) and temporarily (119 acres), while Segment 

Alternative S would not affect any acreage. 

Table 3.3-5: Effects upon Soils within a Feasible 125-foot Right-of-Way within the CNF* 

Route and Segment 

Alternatives 

Acres of 

Long-Term Impacts 

Acres of 

Temporary 

Impacts 

Total Impact 

Acres Total ROW Acres

Route Alternatives

1 1 531 532 543 

2 1 486 487 495 

3 3 837 840 918 

4 1 538 539 552 

Segment Alternatives

A N/A 

B 0.23 77 77.23 619 

C 0.05 16 16.05 125 

D 0.01 2 2.01 19 

E 0.48 119 119.48 1,163 

F 0.06 18 18.06 179 

G N/A 

H N/A 

I N/A 

J N/A 

K N/A 

L N/A 

M N/A 

N 0.17 56 56.17 27 

O 0.13 42 42.13 325 

P 0.02 5 5.02 64 

Q N/A 

R 0.04 7 7.04 110 

S 0.00 0.00 0.00 8 

T 0.03 6 6.03 73 

Notes: *Includes all land within the administrative boundary of the CNF. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

119 

3.3 Geology and Soils 

3.3.3. Mitigation 

The following section summarizes the mitigation measures that could be implemented 

to reduce the potential impacts from construction equipment and activities. Mitigation 

measures that are typically included in permits are noted. Cases where additional 

mitigation measures may be incorporated as a permit condition are also noted. 

Areas disturbed during construction would be re-graded to reflect topography existing 

prior to construction to the extent practicable; this is typically included as a HVTL 

permit condition. The Applicants have also agreed to evenly spread within the ROW, in 

an upland topographic position, any soil material that had been removed for pole 

installation (Otter Tail Power et al., 2008a). If topsoil is removed from the CNF, which 

may affect surficial topography, it must be salvaged and reused in accordance with the 

2004 Forest Plan. 

Avoidance of soil disturbance and excavation activities in steep slope areas, to the extent 

possible, is the preferred mitigation strategy to minimize the potential for erosion during 

construction and operation of the Project. Where disturbance and excavation cannot be 

avoided entirely, it could be minimized using Best Management Practices (BMPs). 

Under the HVTL permit conditions, the Applicants would be required to develop a Soil 

Erosion and Sediment Control Plan. Additionally, the Applicants would be required to 

obtain coverage under the state general permit for storm water discharges associated 

with construction activities, and to develop a Storm Water Pollution Prevention Plan 

(SWPPP) prior to the start of construction. These plans are required to outline the BMPs 

that would be used during construction, especially focusing upon periods of major 

precipitation events. The plans require visual inspections of affected areas to ensure that 

the BMPs stated in the plans are conducted. To minimize runoff and soil erosion, BMPs 

would include one or more of the following: the installation of silt fencing, straw bales 

or ditch blocks and/or covering bare soils with mulch, plastic sheeting, or fiber rolls to 

protect drainage ways and streams from sediment runoff from exposed soils. 

The following BMPs are often used to minimize effects on soils that may result from 

construction of high voltage transmission lines. The Applicants (Otter Tail Power et al., 

2008a) have agreed to implement the following mitigation measures: 

• to restore compacted soils to their native state through tillage operations, using a 

subsoiler; 

• limit setup and staging sites to previously disturbed areas; 

• identification of wet organic soils through mapping and, if necessary on-site 

investigations and soil borings; 

• to the extent practicable, to complete construction in the wet organic soils when 

the ground is frozen; and 

• to revegetate all disturbed areas once construction is complete. Seed mixes could 

be specified based upon site characteristics and in accordance with regulatory 

permits. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

120 

3.3 Geology and Soils 

If topsoil is removed from the CNF, it must be salvaged and reused in accordance with 

the 2004 Forest Plan. 

Additional mitigation measures that could be implemented include: 

• In the event that previously contaminated soils are discovered during 

construction, the Applicants could stop work immediately, contact the 

appropriate state or tribal agency, and consult with the agency with respect to an 

acceptable plan of action. 

• The SWPPP could also include procedures for proper storage and disposal of all 

hazardous and non-hazardous wastes generated during the construction process. 

• Use controlled staging areas for refueling and hazardous material 

loading/unloading operations, and provide adequate spill cleanup materials and 

equipment. In the event that a spill did occur and cause damage to soil 

productivity, the Applicants could restore the productivity of the ROW. Any 

spill impacts would have to be mitigated in compliance with applicable federal, 

state, tribal, and local cleanup standards. 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

121 

3.4 Water Resources 

3.4. Water Resources 

Hydrologic features, such as, lakes, rivers, streams, wetlands, and floodplains perform 

important functions within a landscape, including flood attenuation, groundwater 

recharge, water quality protection, and wildlife habitat production. This section 

provides a summary of surface water, water quality, and groundwater resources present 

in the Study Area, which is defined as the 1,000-foot-wide route for each Route and 

Segment Alternative. Floodplains are discussed in Section 3.5, while wetlands are 

addressed in Section 3.6. 

Methodology and Sources of Information 

Information about Public Waters in Minnesota was obtained from the Minnesota 

Department of Natural Resources (MnDNR). Information about surface and 

groundwater quality was obtained from the Minnesota Pollution Control Agency 

(MPCA). Information about Public Waters obtained from the MnDNR and MPCA was 

supplemented with information regarding waters of the United States from the U.S. 

Army Corps of Engineers (USACE), as needed. This information was analyzed to 

determine the location and condition of surface and groundwater resources within the 

Study Area and potential effects of the Project on those conditions. 

3.4.1. Affected Environment 

The following sections provide a summary of the existing surface water, water quality, 

and groundwater resources present in the Study Area. 

3.4.1.1. Surface Waters 

Numerous streams, rivers, and lakes are present within the Study Area. The Study Area 

includes 99 Public Water Inventory (PWI) basins (i.e., lakes and ponds) and 32 PWI 

watercourses (i.e., rivers and streams) (MnDNR, 2009m). Waters of the U.S., as defined 

by the USACE, are included in the state’s PWI database and are incorporated in the 

discussion of PWI basins and watercourses. The locations of the PWI water bodies in the 

Study Area are summarized by county in Table 3.4-1. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

122 

3.4 Water Resources 

Table 3.4-1: PWI Water Bodies within the Study Area Counties 

PWI Type Beltrami County Cass County Hubbard County Itasca County Totals 

Basins* 21 37 9 32 99 

Watercourses** 7 4 5 16 32 

Notes: * Two of these basins overlap county boundaries. 

 ** The Mississippi River forms portions of the Cass County and Itasca County borders. 

Source: MnDNR, 2009m 

The Study Area primarily lies within the Mississippi River Headwaters and the Leech 

Lake River watersheds of the Upper Mississippi River Basin. The Mississippi River 

Watershed is approximately 1,961 square miles in size and contains 180,286 acres of 

lake habitat and 196,522 acres of wetland habitat (Enbridge Energy, 2009). The Leech 

Lake River Watershed is approximately 1,335 square miles in size and contains 

168,807 acres of lake habitat and 139,650 acres of wetland habitat (Enbridge Energy, 

2009). Surface waters within the Mississippi River-Headwaters watershed flow towards 

the Mississippi River, and surface waters within the Leech Lake River watershed flow 

towards the Leech Lake River. The Leech Lake River generally flows in an easterly 

direction, reaching a confluence with the Mississippi River at the Itasca-Cass County 

line, about 1.5 miles south of Ball Club Lake. The Study Area also includes areas within 

the Big Fork River and Upper and Lower Red Lake watersheds. 

Major streams and rivers within the vicinity of the Study Area include the Mississippi 

River, Schoolcraft River, Necktie River, Leech Lake River, Ball Club River, Deer River, 

Turtle River, Gull River, Bowstring River, and Big Fork River. Large lakes include Cass 

Lake, Pike Bay, Leech Lake, Lake Winnibigoshish, Ball Club Lake, and Jessie Lake. Most 

of these lakes are hydrologically connected to nearby streams and rivers. Figure 3.4-1 

illustrates the locations of water resources identified within the Study Area. 

State-protected Public Waters are water basins and watercourses in Minnesota with 

significant recreational or natural resource value, as defined in Minnesota Statutes § 

103G.005. The MnDNR has regulatory jurisdiction over these waters. 

The USACE has regulatory jurisdiction over waters of the United States including many 

lakes, rivers, streams, and wetlands pursuant to Section 404 of the Clean Water Act, and 

jurisdiction over Navigable Waters of the United States pursuant to Section 10 of the 

1899 Rivers and Harbors Act. The placement of transmission line pole structures, land 

clearing that involves soil disturbance, or placement of construction mats may be 

considered a discharge of fill material that would require a permit from the Department 

of the Army pursuant to Section 404 of the Clean Water Act. Receipt of a Section 404 

permit and adherence to the terms and conditions of the permit, including any 

associated compensatory mitigation and best management practices to reduce 

sedimentation and erosion control, would demonstrate the Project’s compliance with 

the Clean Water Act. Examples of best management practices to ensure compliance 

with the Clean Water Act are described in Section 3.4.3. Specific permit conditions, 

including the quantity or extent of compensatory mitigation and specific best 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

123 

3.4 Water Resources 

management practices, would be determined by the USACE after a Project alternative 

has been selected. Field inspections of the Project would evaluate and verify 

compliance with permits and the Clean Water Act. In addition, the placement of a 

transmission line in, on, or over a navigable water body (i.e., Mississippi River) would 

require a permit pursuant to Section 10. A description of this permit and other federal, 

state, and local permits and regulatory approvals that may be required for construction 

and operation of the Project are discussed in Section 6.0, Regulatory Permits. 

Transmission lines that cross Navigable Waters of the United States, as defined by 

Section 10 of the 1899 Rivers and Harbors Act, which includes the Mississippi River, 

must maintain a minimum height requirement above that required for bridges. For a 

230 kV transmission line, the minimum height requirement is 26 feet above required 

bridge height, as stated in 33 CFR 322.5. 

A license would be required for the Project to cross public waters or lands 

administered by the MnDNR. Licenses are issued by the MnDNR Division of Lands 

and Minerals. The Applicants would need to supply information detailing the type 

of work to be performed, the location of the work, restoration methods, and 

maintenance methods in the application license. 

Route Alternatives and Segment Alternatives 

PWI rivers and streams within or adjacent to the Route Alternatives are shown in Table 

3.4-2. Route Alternative 3 has more river and stream crossings, 27, than Route 

Alternatives 1, 2, or 4, which cross between 7 and 12 of the 32 total PWI rivers and 

streams in the Study Area. Route Alternatives 1, 2, and 4 do not follow existing 

transmission lines for the majority of their length; thus, the majority of river and stream 

crossings listed would represent new crossings. Route Alternative 3 would follow an 

existing 69 kV transmission line easement for 79 percent of its length; thus, the majority 

of river and stream crossings listed for Route Alternative 3 would represent existing 

crossings. The introduction of new crossings is discussed as a potential impact in 

Section 3.4.2.1. The locations of the PWI wetlands are described in Section 3.6, Wetlands. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

124 

3.4 Water Resources 

Table 3.4-2: Rivers and Streams Crossed by Route Alternatives 

PWI 

Watercourses 

Route 

Alternative 

1 

Route 

Alternative 

2 

Route 

Alternative 

3 

Route 

Alternative 

4 

Mississippi River X X X X 

Schoolcraft River X - X X 

Necktie River X - - X 

Unnamed Necktie 

Tributary 

X - - X 

Unnamed Tributary 

at Pike Bay/Cass 

Lake 

X X - X 

Sucker Creek X - - - 

Portage Creek X - - - 

Ball Club River X X - X 

Deer River X X X X 

Blackwater Creek X X X X 

Turtle River - - X - 

Gull River - - X - 

Skimmerhorn Creek - - X - 

Spring Creek - - X - 

Moore Creek - - X - 

Popple River - - X - 

Wagner River - - X - 

Bowstring River - - X - 

Hinken Creek - - X - 

Unnamed stream 

near Bowstring 

River

- - X - 

Little Turtle Creek - - X - 

Unnamed Tributary 

at Jessie Lake 

- - X - 

Unnamed Tributary 

at Four Town Lake 

- - X - 

Deer River - - X - 

Unnamed Tributary 

at Deer River 

- - X - 

Total Crossings 12 7 27 10 

 Notes: 1. X indicates that part of the PWI watercourse is crossed by the right-of-way. 

 2. Route Alternatives 1, 2, and 4 cross the Mississippi River in multiple locations. 

Route Alternative 3 crosses the Turtle River and Bowstring River in multiple locations. 

The calculated Total Crossings presented in the table reflect the total number of 

crossings, not the number of individual rivers and streams crossed. Those rivers and 

streams that are crossed in multiple locations are accounted for in the number of total 

crossings. 

Source: MnDNR, 2009m 

PWI basins within or adjacent to the Route Alternatives are shown in Table 3.4-3. As 

with the water crossings, Route Alternative 3 has more PWI basins, 19, compared to 

Route Alternatives 1 and 2, which both have six, and Route Alternative 4, which has 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

125 

3.4 Water Resources 

five. Route Alternative 3 crosses approximately 20 percent of the 99 PWI basins in the 

Study Area, while Route Alternatives 1, 2, and 4 cross approximately six percent of the 

99 PWI basins in the Study Area. The water bodies identified in Tables 3.4-2 and 3.4-3 

are all Minnesota Protected Waters. 

Table 3.4-3: PWI Basins Identified within the Route Alternatives 

PWI Basin 

Route 

Alternative 

1 

Route 

Alternative 

2 

Route 

Alternative 

3 

Route 

Alternative 

4 

Marquette Lake X - - X 

Moss Lake X - - - 

Twin Lake X - - - 

Nushka Lake X - - - 

White Oak Lake X X - X 

Blackwater Lake X - - - 

Strawberry Lake - X - - 

Pike Bay - X - X 

Unnamed Lake near 

Winnibigoshish Lake 

- X - X 

Midge Lake - X - - 

Ball Club Lake - X - - 

Upper Sucker Lake - - - X 

Bemidji Lake - - X - 

Unnamed Lake near 

Bemidji Lake 

- - X - 

Turtle River Lake - - X - 

Gallagher (Rhoda) 

Lake 

- - X - 

Carter Lake - - X - 

Erickson Lake - - X - 

Crandall Lake - - X - 

Natures Lake - - X - 

Whitefish Lake - - X - 

Holloway Lake - - X - 

Unnamed Lake (Just 

south of Spur Lake) 

- - X - 

Unnamed Lake (Just 

north of Crooked Lake) 

- - X - 

Big Rose Lake - - X - 

Unnamed Lake (Just 

south of Big Rose 

Lake) 

- - X - 

Big Too Much Lake - - X - 

Jessie Lake - - X - 

Total Crossings 6 6 19 5 

 Notes: 1. X indicates that part of the PWI basin is within the right-of-way. 

2. Route Alternative 3 crosses the Unnamed Basins (3) west of Route 6 in 

multiple locations. This has been accounted for in the calculation of Total 

Crossings presented in the table. 

Source: MnDNR, 2009m
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

126 

3.4 Water Resources 

PWI water crossings for Segment Alternatives are shown in Table 3.4-4. 

Table 3.4-4: Segment Alternative Water Crossings 

Segment 

Alternatives 

PWI Rivers and 

Streams Crossed 

PWI Water Basins 

A 3 N/A 

B N/A N/A 

C 1 N/A 

D N/A N/A 

E 2 N/A 

F N/A N/A 

G N/A N/A 

H N/A N/A 

I N/A N/A 

J N/A N/A 

K 1 1 

L N/A N/A 

M N/A N/A 

N N/A N/A 

O N/A N/A 

P N/A N/A 

Q N/A N/A 

R N/A N/A 

S N/A N/A 

T N/A N/A 

Source: MnDNR, 2009m 

Leach Lake Reservation 

Route Alternative 1 would cross the following rivers, streams, and water basins within 

the LLR: Moss Lake, Twin Lake, an unnamed wetland/basin associated with Portage 

Water Basin, an unnamed stream north of Moss Water Basin, Sucker Creek, Portage 

Creek, Nushka Lake, Mississippi River, and White Oak Lake. 

Route Alternative 2 would cross the following rivers, streams, and water basins within 

the LLR: Pike Bay, an unnamed connector stream near Pike Bay, Mississippi River, and 

Ball Club River. 

Route Alternative 3 was designed to largely avoid the LLR and would not cross any 

rivers, streams, and water basins within the boundaries of the LLR. 

Route Alternative 4 would cross the following rivers, streams, and water basins 

within the LLR: Pike Bay, an unnamed stream near Pike Bay, Upper Sucker Lake, 

Mississippi River, Ball Club River, and White Oak Lake. 

The following Segment Alternatives would cross rivers, streams, and water basins 

within the LLR: 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

127 

3.4 Water Resources 

• Segment Alternative C would cross the Leech Lake River. 

• Segment Alternative E would cross an unnamed stream and Grouse Creek. 

Chippewa National Forest 

Route Alternative 1 would cross the following rivers, streams, and water basins within 

the CNF: Moss Lake, Twin Lake, White Oak Lake, an unnamed wetland directly south 

of Portage Water Basin, an unnamed stream north of Moss Lake, Sucker Creek, Portage 

Creek, Mississippi River, and Deer River. 

Route Alternative 2 would cross the following rivers, streams, and water basins within 

the CNF: Pike Bay, White Oak Lake, an unnamed connector stream near Pike Bay, and 

the Mississippi River. 

Route Alternative 3 would cross the following rivers, streams, and water basins within 

the CNF: Carter Lake, Jessie Lake, Whitefish Lake, Natures Lake (multiple crossings), an 

unnamed wetland east of Long Water Basin, an unnamed wetland north of Crooked 

Water Basin, an unnamed connector stream to the west of Gull Water Basin (multiple 

crossings), an unnamed stream east of Erickson Water Basin, Popple River (multiple 

crossings), Wagner Creek, Bowstring River (multiple crossings), an unnamed stream 

near the Bowstring River, Hinken Creek (west and east branches), Fletcher Creek, Little 

Turtle Creek, and an unnamed stream out of Jessie Lake (multiple crossings). 

Route Alternative 4 would cross the following rivers, streams, and water basins 

within the CNF: Pike Bay, an unnamed connector stream near Pike Bay, White Oak 

Lake, Upper Sucker Lake, Mississippi River, and Deer River. 

The following Segment Alternatives would cross rivers, streams, and water basins 

within the CNF: 

• Segment Alternative C would cross the Leech Lake River. 

• Segment Alternative E would cross an unnamed stream and Grouse Creek. 

3.4.1.2. Water Quality 

MPCA oversees water quality studies and regulations in Minnesota for lands outside of 

federally recognized reservations. Water quality regulations within the Leech Lake 

Reservation are enforced by the USACE. A list of impaired waters within the State is 

maintained by MPCA. Table 3.4-5 displays the water bodies within the Study Area that 

the MPCA has identified as impaired. In total, eight water bodies exceed total 

maximum daily load (TMDL) levels for mercury and two exceed TMDLs for dissolved 

oxygen. All four alternatives cross the Mississippi River and the Leech Lake River 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

128 

3.4 Water Resources 

where dissolved oxygen levels are exceeded. Similarly, Carr Lake, where mercury levels 

are exceeded, is part of all four Route Alternatives. 

In addition, Route Alternatives 1, 2, and 4 contain Blackwater Lake, Pike Bay, and Ball 

Club Lake, which exceed TMDL levels for mercury. Route Alternative 3 contains the 

Turtle River, Jessie Lake, Blackduck Lake, and Stump Lake where TMDL mercury levels 

are also exceeded. 

Table 3.4-5: Water Resources with Designated Impairments in the Study Area 

Water Resource 

Route 

Alternative Type of Impairment* 

Mississippi River, south of Bemidji 1, 2, 3, 4 Dissolved Oxygen 

Carr Lake, located about 1 mile south of Bemidji 1, 2, 3, 4 Mercury 

Blackwater Lake 1 Mercury 

Leech Lake River, south of Ball Club Lake 1, 2, 3, 4 Dissolved Oxygen 

Pike Bay 1, 2, 4 Mercury 

Ball Club Lake 1, 2, 4 Mercury 

Turtle River 3 Mercury 

Jessie Lake 3 Mercury 

Blackduck Lake 3 Mercury 

Stump Lake 3 Mercury 

Note: *Impairment is defined as exceeding the MPCA TMDL levels. 

Source: MPCA, 2009c 

3.4.1.3. Groundwater 

Groundwater resources in the Study Area include a Quaternary aquifer (comprised of 

glacial outwash-derived sand and gravel deposits) and to a much lesser extent, 

Cretaceous and Precambrian bedrock aquifers that are scattered throughout. In general, 

the glacial aquifers provide abundant groundwater resources throughout the region, 

and groundwater quantity and/or accessibility is not a problem in the Study Area. 

Depths to the water table vary throughout the Study Area, from less than 5 feet to over 

50 feet. Generally, groundwater in the Study Area is within 25 feet of the surface. 

Groundwater quality in the Study Area is relatively good, with water quality indicators 

similar or better than those found in similar aquifers elsewhere in Minnesota (MPCA, 

1998). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

129 

3.4 Water Resources 

3.4.2. Direct/Indirect Effects 

This section identifies potential direct and indirect effects of the Project on water 

resources. Potential direct effects from the Project include: 

• Changes in surface water quality or flow that exceed applicable MPCA standards 

• Changes in groundwater quality that exceed applicable MPCA standards 

• Loss of groundwater table height or localized loss of groundwater 

Potential indirect effects from the Project include: 

• Soil erosion and sedimentation resulting in changes in water turbidity, which can 

affect vegetation, aquatic, and wildlife habitat 

• Changes in watershed function 

• Fuel and chemical spills in water resources that could adversely affect surface 

water quality 

• Increased potential for runoff from cleared right-of-ways (ROWs) that could 

adversely affect surface water quality 

If pole placement were to occur within a water basin or watercourse, temporary direct 

impacts may include soil erosion along the shoreline and sedimentation caused by 

construction. The deposition of sediment could result in a long-term impact to water 

turbidity. Changes in water quality due to pole placement could result in a change in 

the watershed function. The Project has been designed to span surface water bodies, 

such that these potential impacts can be avoided. 

The Applicants propose to use two-pole, H-frame wood structures for a majority of the 

Project length and single steel pole structures in more congested areas. The two Hframe poles would be set approximately 20 feet apart in holes augured to a depth of 

approximately 10 to 15 feet and a diameter of 24 to 36 inches. After the poles are 

embedded, the holes would then be backfilled with native soils or granular material. 

The exposure of Project materials (e.g., wood poles, native soil, and granular material) to 

storm water runoff is not expected to adversely affect surface water or groundwater in 

the Study Area. 

Due to the depth of groundwater in the Study Area (between 5 and 50 feet below 

ground surface), groundwater resources may be encountered during excavations for 

transmission line structures or surface grade changes in low-lying and/or wet areas. In 

areas where shallow groundwater is encountered, dewatering prior to structure 

installation may be required. Depending on the scale of dewatering activities, it would 

be possible that shallow groundwater levels could be directly affected from dewatering. 

However, because installation of structure foundations would be installed at depths of 

10 to 15 feet below ground surface, changes in groundwater levels would be confined to 

shallow groundwater with no resulting effect on deep water aquifers. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

130 

3.4 Water Resources 

Indirect impacts are possible due to construction activity within or adjacent to water 

bodies. Construction activities, including use of heavy equipment on sloped shore 

banks, could result in erosion along the shoreline and increased runoff into water 

resources from cleared ROWs. Additionally, fuel or chemical spills from construction 

equipment could degrade storm water runoff quality. The potential likelihood of fuel or 

chemical releases would be reduced through implementation of Best Management 

Practices (BMPs) as required to be contained in the Applicants’ Storm Water Pollution 

Prevention Plan (SWPPP) and Spill Prevention Control and Countermeasures (SPCC) 

Plan. Impacts to surface water quality could result from the use of herbicides or 

pesticides in maintaining the transmission line ROW during operation; however, use of 

these substances would be limited because the CNF would not allow for the application 

of herbicides or pesticides on CNF land. 

3.4.2.1. Surface Water 

Temporary or long-term direct impacts to surface water resources are unlikely to occur 

to PWI basins or watercourses. This discussion excludes potential impacts to wetlands, 

which are addressed separately in Section 3.6, Wetlands. Route and Segment 

Alternatives have been located to avoid surface water features to the extent practicable. 

In areas where surface water features are present, it is anticipated that ROW alignments 

could be directed to avoid surface water or that water bodies could be spanned. All 

water crossings under all of the alternatives, including the Mississippi River crossing 

west of Deer River, would be spanned by poles placed from 800 to 1,000 feet apart. All 

stream and river crossings within the Study Area can be spanned, and the feasible 125-

foot ROWs evaluated avoid crossing larger water bodies. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

131 

3.4 Water Resources 

Table 3.4-6: PWI Water Resources Crossed by Feasible 125-Foot Right-of-Way 

Route and 

Segment 

Alternatives 

Associated 

Route 

Alternatives 

Leech Lake 

Reservation 

Chippewa 

National Forest

Water Basin 

Crossings 

Water Course 

Crossings 

Route Alternatives 

1 Yes Yes 4 6 

2 Yes Yes 2 7 

3 No Yes 9 27 

4 Yes Yes 5 10 

Segment Alternatives 

A 1 No No 1 1 

B 1 Yes Yes 0 0 

C 1, 2 Yes Yes 0 2 

D 1 Yes Yes 0 0 

E 3 Yes Yes 0 2 

F 2 Yes Yes 0 0 

G 2 No No 0 0 

H 2 No No 0 0 

I 2 No No 0 0 

J 1, 2 No No 0 0 

K 1, 2 Yes No 1 0 

L 1 Yes No 0 0 

M 1, 2 Yes No 1 0 

N 1, 2 Yes Yes 0 0 

O 1, 2 Yes Yes 0 0 

P 1, 2 Yes No 0 1 

Q 1, 2 Yes No 0 0 

R 3 No Yes 0 0 

S 3 No Yes 0 0 

T 3 no Yes 0 0 

Source: MnDNR, 2009m 

No-Build Alternative 

The No-Build Alternative would result in no additional transmission line development 

and, as such would not impact any water resources within the Study Area. 

Route Alternative 1 and Associated Segment Alternatives 

As shown in Table 3.4-6, the feasible 125–foot ROW evaluated for Route Alternative 1 

crosses four water basins and six water courses. The feasible ROW for Route 

Alternative 1 would require crossing approximately 19 percent of the water courses 

and four percent of the water basins in the Study Area. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

132 

3.4 Water Resources 

Route Alternative 1 would introduce another plane of wires across the Mississippi River 

near Ball Club. Under this Alternative, the structures supporting Great River Energy’s 

existing 69 kV crossing at this location would either be replaced with larger structures to 

support both the new 230 kV crossing as well as the 69 kV transmission line that 

currently exists, or a new set of structures would be built parallel to the existing 69 kV 

transmission line. In either of these crossing scenarios, the new transmission 

structures would be taller than the existing 69 kV structures. 

With the following exceptions, the Segment Alternatives associated with Route 

Alternative 1 would not change the water crossings for this Route Alternative: 

• Segment Alternative A would cross the Bungashing Creek and Necktie River, 

while avoiding a crossing an unnamed Necktie Tributary; 

• Segment Alternative B would avoid crossing an unnamed tributary at Pike 

bay/Cass Lake; 

• Segment Alternative K would cross the Necktie River; and 

• Segment Alternative C would introduce a new crossing of the Leech Lake River; 

moving the existing 69 kV transmission line from its current Mississippi River 

Crossing near Ball Club. The existing crossing near Ball Club would be 

maintained, the existing 69 kV structures would be replaced with taller 

structures to support the new 230 kV transmission line. 

The addition of new water crossings would represent a change in viewshed for users of 

the water bodies. Potential direct impacts to surface water from structure placement 

would not occur, as Project structures would span all surface water bodies. During 

construction, clearing of ROW adjacent to surface water and use of heavy equipment 

could result in soil erosion, which may increase the potential for run-off to surface water 

bodies. Increased run-off could result in changes in sedimentation and turbidity, which 

could affect water quality and aquatic habitat. 

Route Alternative 2 and Associated Route Segment Alternatives

As shown in Table 3.4-6, the feasible 125-foot ROW evaluated for Route Alternative 2 

would cross two PWI water basins and seven water courses. The feasible ROW for 

Route Alternative 2 would require crossing approximately 22 percent of the water 

courses and two percent of the water basins in the Study Area. 

As with Route Alternative 1, Route Alternative 2 would also introduce another plane of 

wires across the Mississippi River near Ball Club. Under this Route Alternative, the 

Project would cross the Mississippi River at a new crossing north of U.S. Highway 2. 

The existing 69 kV transmission line, located south of the railroad, would remain in 

place. The new transmission structures would be taller than the existing 69 kV 

structures. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

133 

3.4 Water Resources 

With the following exception, the Segment Alternatives associated with Route 

Alternative 2 would not change the water crossings for this Route Alternative: 

• Segment Alternative C would introduce a new crossing of the Leech Lake River; 

moving the existing 69 kV transmission line from its current Mississippi River 

Crossing near Ball Club. The existing crossing near Ball Club would be 

maintained, the existing 69 kV structures would be replaced with taller 

structures to support the new 230 kV transmission line; and 

• Segment Alternative K would cross the Necktie River. 

The addition of new water crossings would represent a change in viewshed for users of 

the water bodies. Potential direct impacts to surface water from structure placement 

would not occur, as Project structures would span all surface water bodies. During 

construction, clearing of ROW adjacent to surface water and use of heavy equipment 

could result in soil erosion, which may increase the potential for run-off to surface water 

bodies. Increased run-off could result in changes in sedimentation and turbidity, which 

could affect water quality and aquatic habitat. 

Route Alternative 3 and Associated Segment Alternatives 

As shown in Table 3.4-6, the feasible 125-foot ROW evaluated for Route Alternative 3 

would have a greater number of water crossings than Route Alternatives 1, 2, or 4. 

Route Alternative 3 would result in nine water basin crossings and 27 water course 

crossings, which is three to four times the number of crossings required for Route 

Alternatives 1, 2, and 4. The feasible ROW for Route Alternative 3 would require 

crossing approximately 84 percent of the water courses and nine percent of the water 

basins in the Study Area. 

Segment Alternative E would cross Grouse Creek at several locations, while avoiding a 

crossing of the Deer River. 

The addition of new water crossings would represent a change in viewshed for users of 

the water bodies. Potential direct impacts to surface water from structure placement 

would not occur, as Project structures would span all surface water bodies. During 

construction, clearing of ROW adjacent to surface water and use of heavy equipment 

could result in soil erosion, which may increase the potential for run-off to surface water 

bodies. Increased run-off could result in changes in sedimentation and turbidity, which 

could affect water quality and aquatic habitat. 

Route Alternative 4 and Associated Segment Alternatives 

As shown in Table 3.4-6, the feasible 125-foot ROW evaluated for Route Alternative 4 

would have a slightly higher number of water crossings than Route Alternatives 1 or 

2. Route Alternative 4 would result in five water basin crossings and 10 water course 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

134 

3.4 Water Resources 

crossings. The feasible ROW for Route Alternative 4 would require crossing 

approximately 31 percent of the water courses and five percent of the water basins in 

the Study Area. 

As with Route Alternatives 1 and 2, Route Alternative 4 would introduce another 

plane of wires across the Mississippi River near Ball Club. Under this Alternative, 

the structures supporting Great River Energy’s existing 69 kV crossing at this location 

would either be replaced with larger structures to support both the new 230 kV 

crossing and the existing 69 kV transmission line, or a new set of structures would be 

built parallel to the existing 69 kV transmission line. In either of these crossing 

scenarios, the new transmission structures would be taller than the existing 69 kV 

structures. Route Alternative 4 also crosses the Necktie River. 

If this Route Alternative is used in conjunction with Segment Alternative C (see 

above), a new set of structures would replace the existing river crossing and Great 

River Energy’s 69 kV transmission line would be relocated along a new ROW to cross 

the Leech Lake River. 

The addition of new water crossings would represent a change in viewshed for users 

of the water bodies. Potential direct impacts to surface water from structure 

placement would not occur, as Project structures would span all surface water bodies. 

During construction, clearing of ROW adjacent to surface water and use of heavy 

equipment could result in soil erosion, which may increase the potential for run-off to 

surface water bodies. Increased run-off could result in changes in sedimentation and 

turbidity, which could affect water quality and aquatic habitat. 

Leech Lake Reservation 

PWI water crossings within the Leech Lake Reservation are shown in Table 3.4-7. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

135 

3.4 Water Resources 

Table 3.4-7: PWI Water Resources Crossed by Feasible 125-Foot Right-of-Way within the LLR 

Route and Segment

Alternatives 

Associated Route 

Alternatives 

Water Basin 

Crossings 

Water Course 

Crossings 

Route Alternatives

1 3 5 

2 1 3 

3 0 0 

4 4 4 

Segment Alternatives

B 1 0 0 

C 1, 2 0 1 

D 1 0 0 

E 3 0 2 

F 2 0 0 

K 1, 2 1* 0 

L 1 0 0 

M 1, 2 1 0 

N 1, 2 0 0 

O 1, 2 0 0 

P 1, 2 0 0 

Q 1, 2 0 0 

Source: MnDNR, 2009m 

Notes: *Segment Alternative K is partially located within the LLR. The water basin crossing for 

Segment Alternative K is outside the boundaries of the LLR. 

Route Alternative 1 would cross the following rivers, streams, and water basins within 

the LLR: Moss Lake, Twin Lake, an unnamed wetland south of Portage Water Basin, an 

unnamed stream north of Moss Water Basin, Sucker Creek, Portage Creek, and 

Mississippi River. 

Route Alternative 2 would cross the following rivers, streams, and water basins within 

the LLR: Pike Bay, an unnamed connector stream near Pike Bay, Mississippi River, and 

Ball Club River. 

Route Alternative 3 was designed to largely avoid the LLR and would not cross any 

rivers, streams, and water basins within the boundaries of the LLR. 

Route Alternative 4 would cross the following rivers, streams, and water basins 

within the LLR: Pike Bay, an unnamed stream north of Moss Water Basin, Upper 

Sucker Lake, and Mississippi River. 

Route Alternatives 1, 2, and 4 would introduce another plane of wires across the 

Mississippi River near Ball Club. There are several routing scenarios under these 

Route Alternatives: 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

136 

3.4 Water Resources 

• A new set of structures would be constructed to support the Project north of 

U.S. Highway 2 (Route Alternative 2); 

• A new set of structures would be constructed south of U.S. Highway 2, parallel 

to the existing 69 kV transmission line (Route Alternatives 1 or 4); or 

• The structures supporting Great River Energy’s existing 69 kV crossing at this 

location would be replaced with larger structures to support both the new 230 

kV crossing as well as the 69 kV transmission line that currently exists (Route 

Alternatives 1, 2, or 4). These new transmission structures would be taller than 

the existing 69 kV structures. 

Potential effects from the Segment Alternatives located on the LLR include: 

• Segment Alternative C would introduce a new crossing of the Leech Lake River; 

moving the existing 69 kV transmission line from its current Mississippi River 

Crossing near Ball Club. The existing crossing near Ball Club would be 

maintained, the existing 69 kV structures would be replaced with taller 

structures to support the new 230 kV transmission line; and 

• Segment Alternative E would cross Grouse Creek at several locations within the 

Leech Lake Reservation. 

The addition of new water crossings would represent a change in viewshed for users of 

the water bodies. Potential direct impacts to surface water from structure placement 

would not occur, as Project structures would span all surface water bodies. During 

construction, clearing of ROW adjacent to surface water and use of heavy equipment 

could result in soil erosion, which may increase the potential for run-off to surface water 

bodies. Increased run-off could result in changes in sedimentation and turbidity, which 

could affect water quality and aquatic habitat. 

The LLDRM has identified the Mississippi River, Upper Sucker Lake, and Pike Bay 

as high value water bodies (LLDRM, 2010b). The water bodies are considered high 

value due to their scenic value and accessibility for tribal members engaging in 

fishing, hunting, and gathering. Depending on the placement of the transmission 

line pole structures, access to these water bodies may be affected. Although Route 

Alternative 2 would require the fewest crossings of water courses and basins within 

the LLR, the crossings required along Route Alternative 2 would include water bodies 

considered to have high value by the LLDRM (LLDRM, 2010b). Because it follows 

Route Alternative 2 through the LLR, Route Alternative 4 also includes the high value 

water bodies identified by LLDRM. 

The 1,000-foot wide route developed for Route Alternative 2 would not cross Upper 

Sucker Lake, although the route boundary comes within approximately 500 feet of the 

lake. The 1,000-foot wide route developed for Route Alternative 4 varies slightly from 

Route Alternative 2 near Upper Sucker Lake to allow for placement of the 

transmission line to the south of existing pipelines. Due to the variation in route 

location, Route Alternative 4 would cross the northernmost portion of Upper Sucker 

Lake. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

137 

3.4 Water Resources 

Chippewa National Forest 

PWI water crossings within the Chippewa National Forest (CNF) are shown in Table 

3.4-8. 

Table 3.4-8: PWI Water Resources Crossed by Feasible 125-Foot Right-of-Way within the CNF 

Route and Segment

Alternatives 

Associated 

Route 

Alternatives 

Water Basin 

Crossings 

Water Course 

Crossings 

Route Alternatives

1 4 5 

2 2 2 

3 8 15 

4 4 1 

Segment Alternatives

B 1 0 0 

C 1, 2 0 1 

D 1 0 0 

E 3 0 2 

F 2 0 0 

N 1, 2 0 0 

O 1, 2 0 0 

P 1,2 0 0 

R 3 0 0 

S 3 0 0 

T 3 0 0 

Source: MnDNR, 2009m 

Notes: Includes all lands within the CNF administrative boundaries. 

Route Alternative 1 would cross the following rivers, streams, and water basins within 

the CNF: Moss Lake, Twin Lake, White Oak Lake, an unnamed wetland/basin 

associated with Portage Water Basin, an unnamed stream north of Moss Lake, Sucker 

Creek, Portage Creek, and Mississippi River. 

Route Alternative 2 would cross the following rivers, streams, and water basins within 

the CNF: Pike Bay, White Oak Lake, an unnamed connector stream near Pike Bay, and 

the Mississippi River. 

Route Alternative 3 would cross the following rivers, streams, and water basins within 

the CNF: Carter Lake, Jessie Lake, Whitefish Lake, Natures Lake (multiple crossings), an 

unnamed wetland east of Long Water Basin, an unnamed wetland north of Crooked 

Water Basin, an unnamed connector stream to the west of Gull Water Basin (multiple 

crossings), an unnamed stream east of Erickson Water Basin, Popple River (multiple 

crossings), Wagner Creek, Bowstring River (multiple crossings), Hinken Creek (west 

and east branches), Fletcher Creek, Little Turtle Creek, and an unnamed stream out of 

Jessie Lake (multiple crossings). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

138 

3.4 Water Resources 

Route Alternative 4 would cross the following rivers, streams, and water basins 

within the CNF: Pike Bay, White Oak Lake, Upper Sucker Lake, and Mississippi 

River. 

Route Alternatives 1, 2, and 4 would introduce another plane of wires across the 

Mississippi River near Ball Club. There are several routing scenarios under these 

Route Alternatives: 

• A new set of structures would be constructed to support the Project either 

north of U.S. Highway 2 (Route Alternative 2); 

• A new set of structures would be constructed south of U.S. Highway 2, parallel 

to the existing 69 kV transmission line (Route Alternatives 1 or 4); or 

• The structures supporting Great River Energy’s existing 69 kV crossing at this 

location would be replaced with larger structures to support both the new 230 

kV crossing as well as the 69 kV transmission line that currently exists (Routes 

1, 2, and 4). These new transmission structures would be taller than the 

existing 69 kV structures. 

Potential effects from the Segment Alternatives located on the CNF include: 

• Segment Alternative C would introduce a new crossing of the Leech Lake River; 

moving the existing 69 kV transmission line from its current Mississippi River 

Crossing near Ball Club. The existing crossing near Ball Club would be 

maintained, the existing 69 kV structures would be replaced with taller 

structures to support the new 230 kV transmission line; and 

• Segment Alternative E would cross Grouse Creek at several locations within the 

CNF. 

The addition of new water crossings would represent a change in viewshed for users of 

the water bodies. Potential direct impacts to surface water from structure placement 

would not occur, as Project structures would span all surface water bodies. During 

construction, clearing of ROW adjacent to surface water and use of heavy equipment 

could result in soil erosion, which may increase the potential for run-off to surface water 

bodies. Increased run-off could result in changes in sedimentation and turbidity, which 

could affect water quality and aquatic habitat. The quantity and extent of acreage 

affected by erosion would depend on the localized soil qualities and placement and 

movement of equipment within the ROW. The use of best management practices, as 

discussed in Section 3.4.3, would reduce or eliminate these potential impacts. 

3.4.2.2. Groundwater 

Adverse impacts on groundwater resources are not anticipated from any of the Project 

Alternatives evaluated, as discussed below. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

139 

3.4 Water Resources 

No-Build Alternative 

The No-Build Alternative would result in no additional transmission line development 

and, as such would not impact any water resources within the Study Area. 

Route Alternatives 1, 2, 3, and 4, and Associated Segment Alternatives 

Due to the depth of groundwater in the Study Area (between 5 and 50 feet below 

ground surface), groundwater resources may be encountered during excavations for 

transmission line structures or surface grade changes in low-lying and/or wet areas. In 

areas where shallow groundwater is encountered, dewatering prior to structure 

installation may be required. Depending on the scale of dewatering activities, it would 

be possible that shallow groundwater levels could be directly affected from dewatering. 

However, because installation of structure foundations would be installed at depths of 

10 to 15 feet below ground surface, changes in groundwater levels would be confined to 

shallow groundwater with no resulting effect on deep water aquifers. 

No water storage, reprocessing, or cooling is required for the construction or operation 

of the transmission line or substations and no associated discharges to surface water or 

groundwater are anticipated. The Project would not be expected to result in violations 

of groundwater quality standards, unless a significant fuel or chemical spill associated 

with construction equipment or substation operations were to occur. 

3.4.3. Mitigation 

A variety of mitigation measures could be implemented to reduce the potential impacts 

to water resources from construction and operation of the Project. Mitigation measures 

that are typically included in permits are noted. Cases where additional mitigation 

measures may be incorporated as a permit condition are also noted. 

To mitigate the potential for erosion, under the HVTL permit, the Applicants could be 

required to implement reasonable measures to minimize runoff during construction. 

Planting or seeding non-agricultural areas that were disturbed by transmission line 

structures could be required to prevent runoff and impacts to water resources. The 

Applicants could work with applicable agencies to develop seed mixes from plants 

indigenous to the immediate area of disturbance. 

To minimize long-term impacts to water resources, the HVTL permit could require the 

Applicants to span water resource when possible and avoid water resource crossings by 

movement of the ROW within the selected route. The HVTL permit may also require 

co-location with existing transmission facilities along certain segments of a permitted 

route. Co-location could minimize introduction new water course and water basin 

crossings. However, it should be noted that co-location through double circuiting 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

140 

3.4 Water Resources 

would still require new structure construction that would create temporary impacts to 

water resources. 

The Project would require a number of water resource permits, including coverage 

under the National Pollution Discharge Elimination System (NPDES) General Permit 

for Storm Water Discharges Associated with Construction, License to Cross Public 

Waters, Public Waters Work Permit, Section 404 Clean Water Act permit, and Section 

10 Permit. Additional permits or approvals may be required by local governmental 

units. The placement of transmission line pole structures, land clearing that involves 

soil disturbance, or placement of construction mats may be considered a discharge of fill 

material that would require a permit from the Department of the Army pursuant to 

Section 404 of the Clean Water Act. These permits would require the Applicants to 

develop and implement Best Management Practices (BMPs) for sediment and erosion 

control during construction and operation of the Project to protect topsoil and adjacent 

surface and groundwater resources, and to minimize soil erosion. Typical BMPs may 

include: 

• Locate structures and disturbed areas away from rivers and lakes, where 

practicable; 

• Contain stockpiled material, including fuel and chemicals, away from stream 

banks and lake shorelines; 

• Install sediment control measures prior to construction, in accordance with plans 

and permits. These may include, but are not limited to, the following: using 

mulch produced through the chipping of removed trees; using soils berms; 

and partially burying logs along the ROW;

• Use wastewater and storm water control measures to meet the effluent limits 

in permits prior to discharging from construction sites to surface waters; 

• Spread topsoil and seed in a timely manner; 

• Avoid use of fertilizers, pesticides, or herbicides in or near water bodies, 

including wetlands; 

• Fuel construction vehicles outside of water bodies, including wetlands, and use 

appropriate spill prevention and containment procedures; and 

• Implement procedures to minimize and control inadvertent fluid returns during 

horizontal directional drilling (HDD) operations, if they are used. 

The Applicants could work with the jurisdictional agencies (i.e., the MPCA, MnDNR, 

and the USACE) to determine the best ways to minimize impacts and create appropriate 

BMPs. Operation under a NPDES permit and receipt of a USACE Section 404 permit, 

and adherence to the terms and conditions of the permit, including implementation of 

BMPs to reduce sedimentation and erosion control, would demonstrate the Project’s 

compliance with the Clean Water Act. Field inspections of the Project would evaluate 

and verify compliance with permits and the Clean Water Act. 

If the Project structures cannot be sited such that impacts to water resources are avoided, 

compensatory mitigation under a USACE Section 404 permit would be required to 

replace the loss of aquatic resource functions in the watershed. Compensatory 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

141 

3.4 Water Resources 

mitigation could include the restoration, establishment, enhancement, or preservation of 

wetlands or other aquatic resources to off-set Project impacts. Specific permit 

conditions, including the quantity or extent of compensatory mitigation and specific 

best management practices, would be determined by the USACE after a Project 

alternative has been selected. 

The following license conditions may be imposed by the MnDNR for licenses to cross 

state land and public waters: 

• Adherence to MnDNR invasive species standards; 

• Use of native species for re-vegetation and clean weed free straw for mulch; 

and 

• Avoidance of in-stream work during fish spawning times. 

As described above in Section 3.4.2.2, temporary impacts during construction may occur 

if dewatering is necessary to install the transmission structures. Any dewatering effects 

on water tables would be localized and short-term. If dewatering is necessary, a 

dewatering permit would be obtained from the MnDNR. If the dewatered groundwater 

contains substantial quantities of suspended sediments, then the water would be filtered 

through silt fences or bio-rolls prior to discharge. 

Construction activities carried out on CNF lands that take place within or in close 

proximity to lakes, streams, wetlands, or other water bodies would be conducted and 

monitored in accordance with objectives, standards, and guidelines of the Forest-Wide 

Management Directions provided in the 2004 Forest Plan (USDA, 2004). Construction 

plans would also be modified in accordance with any guidelines specific to each CNF 

Management Area. 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

142 

3.5 Floodplains 

3.5. Floodplains 

This section describes floodplains in the Study Area, defined as the 1,000-foot-wide 

route identified for each Route Alternative and Segment Alternative. 

Methodology and Sources of Information 

Where available, flood data derived from the Federal Emergency Management Agency 

(FEMA) Flood Insurance Rate Maps (FIRM) have been used to identify portions of the 

Study Area that fall within a 100-year floodplain. Non-FEMA-designated floodplains, 

riparian areas, and other flood-prone areas have been identified from USGS topographic 

maps and the 2004 Forest Plan. Additional related information is presented in Section 

3.4, Water Resources. 

3.5.1. Affected Environment 

Floodplains are low-lying areas that are subject to periodic inundation due to heavy 

rains or snow melt. Floodplain areas are generally adjacent to lakes, rivers, and streams. 

In their natural state, floodplains provide necessary temporary water storage during 

flooding events. The periodic flooding and drying in these areas creates a unique 

habitat that supports a wide variety of plant and animal species. 

Federal Emergency Management Agency (FEMA) Floodplain data have not been fully 

developed for the Route and Segment Alternatives. Identified FEMA floodplains 

include (FEMA, 2003a, 2003b, 2003c, and 2003d): 

• The Mississippi River at the eastern end of the Study Area; and 

• White Oak Lake near the town of Deer River. 

Other floodplain or floodway areas are likely present within the Study Area, but have 

not been included in the FEMA GIS dataset. These areas include, but may not be limited 

to, upper reaches of the Mississippi River near the western terminus of the Project 

alternatives (Wilton Substation) and other Mississippi River tributaries, Big Fork River 

tributaries, Ball Club Lake, Lake Winnibigoshish, Cass Lake, and Sucker Lake. 

In addition, the 2004 CNF Forest Plan (USDA, 2004) identifies Riparian Emphasis (RE) 

Management Areas that are often associated with rivers, streams, lakes, and wetlands 

that are prone to periodic flooding. These areas include the Turtle River, Turtle River 

Lake, and Big Lake catchment; the Third River and Lake Winnibigoshish catchment; the 

Squaw Lake and Round Lake catchment; and the Sand Lake and Bowstring Lake 

catchment. Additional rivers, streams, and lakes are located in the Study Area, as 

described in Section 3.4, Water Resources. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

143 

3.5 Floodplains 

3.5.2. Direct/Indirect Effects 

This section discusses potential effects from the Project on floodplains and related 

resources if Project structures were placed directly in floodplains and avoidance of 

floodplains were not possible. Potential direct effects include: 

• Loss of floodplains and floodplain storage 

• Impairment of floodplains and floodplain storage 

Due to the footprint of the Project transmission line structures and that the Route 

Alternatives have been sited to cross surface waters, wetlands, and floodplains 

perpendicularly rather than in parallel, the Project is not expected to result in adverse 

affects to floodplains. Thus, there are no potential indirect effects identified. 

The Project would locate structures outside of floodplains to the extent practicable, such 

that potential impacts are expected to be minimal. If Project structures were placed 

directly in floodplains, construction of the transmission line is not expected to alter 

existing drainage patterns or floodplain elevations due to the small footprint of the poles 

and their relatively wide spacing. The transmission structures placed in floodplains 

have a small cross section, resulting in negligible fill. No change in floodplain functions 

would occur from construction of the Project. 

3.5.2.1. No-Build Alternative 

The No-Build Alternative would not construct any transmission facilities in the Study 

Area; as such there would be no impact on floodplains within the Study Area. 

3.5.2.2. Route Alternative 1 

A review of digital floodplain data shows that eight transmission structures may be 

placed in floodplains adjacent to the Mississippi River (two structures) and White Oak 

Lake (six structures). The estimated long-term impact would be approximately 14 

square feet per tower location. Assuming an average spacing of 800 feet between 

structures (FEMA, 2003a, 2003b, 2003c, and 2003d), the estimated long-term impact 

would be 113 square feet (0.002 acre). Because floodplain impacts are, generally, 

regulated based on changes to floodplain storage (volume), the overall storage impact 

would correspond to approximately 0.5 cubic yard of displaced water for every foot of 

inundation for each structure. The estimated long-term change in acreage and storage 

volume represents a negligible change. 

Additional impacts to unmapped floodplains are possible. The feasible right-of-way 

(ROW) evaluated for Route Alternative 1 would cross six water courses and four water 

basins (Table 3.4-6). Some of these water course crossings may have associated 

floodplains. As discussed in Section 3.4.2, it is anticipated that all surface water features 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

144 

3.5 Floodplains 

would be avoided by spanning the transmission line over the water bodies or 

redirecting the route to avoid these areas entirely; as a result, additional floodplain 

impacts are expected to be negligible. 

None of the Segment Alternatives associated with Route Alternative 1 cross floodplains 

adjacent to either the Mississippi River or White Oak Lake. Segment Alternatives A, C, 

and K do cross water courses (Table 3.4-6). As with Route Alternative 1, some of these 

water course crossings may have associated floodplains. It is anticipated that all surface 

water features would be avoided by spanning the transmission line over the water 

bodies or redirecting the route to avoid these areas entirely. As a result, additional 

floodplain impacts are expected to be negligible. 

Route Alternative 1 would require construction of a new substation located in the Cass 

Lake area and may include construction of a Nary Breaker Station (proposed under 

Segment Alternative A). The proposed location for the new Cass Lake substation and 

Nary Breaker Station are not located within FEMA-identified floodplains. 

3.5.2.3. Route Alternative 2 

The effects of Route Alternative 2 would be similar to those described for Route 

Alternative 1, above. Route Alternative 2 would have four transmission structures 

placed in the floodplains adjacent to the Mississippi River (two structures) and White 

Oak Lake (two structures) (FEMA, 2003a, 2003b, 2003c, and 2003d). Under this 

configuration, approximately 57 square feet (0.001 acre) of impact is anticipated. 

Because floodplain impacts are, generally, regulated based on changes to floodplain 

storage (volume), the overall storage impact would correspond to approximately 0.5 

cubic yard of displaced water for every foot of inundation for each structure. The 

estimated long-term change in acreage and storage volume represents a negligible 

change. 

Additional impacts to unmapped floodplains are possible. The feasible ROW evaluated 

for Route Alternative 2 would cross seven water courses and two water basins. As with 

Route Alternative 1, additional floodplain impacts from these water course crossings are 

expected to be negligible. 

None of the Segment Alternatives associated with Route Alternative 2 cross floodplains 

adjacent to either the Mississippi River or White Oak Lake. Segment Alternatives C and 

K do cross water courses (Table 3.4-6). As with Route Alternative 2, some of these water 

course crossings may have associated floodplains. It is anticipated that all surface water 

features would be avoided by spanning the transmission line over the water bodies or 

redirecting the route to avoid these areas entirely. As a result, additional floodplain 

impacts are expected to be negligible. 

Route Alternative 2 would require the expansion of an existing Cass Lake Substation. 

The existing substation is not located within a FEMA-identified floodplain. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

145 

3.5 Floodplains 

3.5.2.4. Route Alternative 3 

Route Alternative 3 would cross the Mississippi River east of Bemidji. This reach of the 

Mississippi is designated as a FEMA floodway (FEMA, 2009). The proposed H-frame 

transmission towers would allow spans of up to 1,000 feet, and no transmission 

structures would be placed within the floodway at this location. 

Route Alternative 3 would also cross a major wetland complex associated with the 

Bowstring Lake and Bowstring River floodways. This wetland complex is located on 

both CNF and Bowstring Lake State Forest lands and is designated as a CNF Riparian 

Emphasis (RE) Management Area. Approximately 46 transmission structures may be 

placed within this wetland complex. Under this configuration, the estimated long-term 

impact would be approximately 650 square feet (0.015 acre). Because floodplain impacts 

are, generally, regulated based on changes to floodplain storage (volume), the overall 

storage impact would correspond to approximately 0.5 cubic yard of displaced water for 

every foot of inundation for each structure. The estimated long-term change in acreage 

and storage volume represents a negligible change. 

Additional impacts to unmapped floodplains are possible. The feasible ROW evaluated 

for Route Alternative 3 would cross 27 water courses, or roughly triple the number as 

the other alternatives (Table 3.4-6). Additional floodplain impacts from these water 

course crossings are expected to be negligible. 

Segment Alternative E crosses Grouse Creek, adding an additional three river and 

stream crossings. As with Route Alternative 3, some of these water course crossings 

may have associated floodplains. It is anticipated that all surface water features would 

be avoided by spanning the transmission line over the water bodies or redirecting the 

route to avoid these areas entirely. As a result, additional floodplain impacts are 

expected to be negligible. 

3.5.2.5. Route Alternative 4 

The effects of Route Alternative 4 would be similar to those described for Route 

Alternative 1 above. Route Alternative 4 follows a similar path as Route Alternative 1 

through the mapped FEMA floodplains near the Mississippi River at the eastern end 

of the Study Area and near White Oak Lake. A review of digital floodplain data 

shows that eight transmission structures may be placed in floodplains adjacent to the 

Mississippi River (two structures) and White Oak Lake (six structures) if the ROW for 

Route Alternative 4 followed the feasible alignment and pole placement identified 

for Route Alternative 1 in those locations. The estimated long-term impact would be 

approximately 14 square feet per tower location. Assuming an average spacing of 800 

feet between structures (FEMA, 2003a, 2003b, 2003c, and 2003d), the estimated longterm impact would be 113 square feet (0.002 acre). Because floodplain impacts are, 

generally, regulated based on changes to floodplain storage (volume), the overall 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

146 

3.5 Floodplains 

storage impact would correspond to approximately 0.5 cubic yard of displaced water 

for every foot of inundation for each structure. The estimated long-term change in 

acreage and storage volume represents a negligible change. 

Additional impacts to unmapped floodplains are possible. The feasible ROW 

evaluated for Route Alternative 4 would cross five PWI water basins and 10 PWI 

water courses, which is slightly greater than the number crossed by Route 

Alternatives 1 or 2 (Table 3.4-6). Some of these water course crossings may have 

associated floodplains. As discussed in Section 3.4.2, it is anticipated that all surface 

water features would be avoided by spanning the transmission line over the water 

bodies or redirecting the route to avoid these areas entirely; as a result, additional 

floodplain impacts are expected to be negligible. 

None of the Segment Alternatives associated with Route Alternative 4 cross 

floodplains adjacent to either the Mississippi River or White Oak Lake. 

Route Alternative 4 would require the expansion of an existing Cass Lake Substation. 

The existing substation is not located within a FEMA-identified floodplain. 

 

3.5.2.6. Leech Lake Reservation 

Within the Leech Lake Reservation the only FEMA-identified floodplains are those 

along the Mississippi River and some areas of the floodplain along White Oak Lake. The 

majority of the LLR is not included in the coverage of FEMA maps. Supplemental 

floodplain maps are maintained by the LLDRM. Due to the availability of floodplain 

maps, this section identifies only those potential impacts specific to FEMA-identified 

floodplains located within the boundaries of the LLR. 

Under Route Alternatives 1 and 4, which follow a similar path through FEMAidentified floodplains near the Mississippi River and White Oak Lake, up to eight 

transmission structures may be placed in floodplains adjacent to the Mississippi River 

(two structures) and White Oak Lake (six structures). The estimated long-term impact 

would be approximately 14 square feet per tower location. Assuming an average 

spacing of 800 feet between structures (FEMA, 2003a, 2003b, 2003c, and 2003d), the 

estimated long-term impact would be 113 square feet (0.002 acre), which represents a 

negligible change in acreage and storage volume. 

The effects of Route Alternative 2 would be similar to those described for Route 

Alternatives 1 and 4 above. Route Alternative 2 would have four transmission 

structures placed in the floodplains adjacent to the Mississippi River (two structures) 

and White Oak Lake (two structures) (FEMA, 2003a, 2003b, 2003c, and 2003d). Under 

this configuration, approximately 57 square feet (0.001 acre) of impact is anticipated, 

which represents a negligible change in acreage and storage volume. 

Floodplains that are located outside the boundaries of the LLR but flow into adjacent 

waters of the LLR could affect such waters within the boundaries of the LLR. However, 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

147 

3.5 Floodplains 

as discussed for Route Alternatives 1, 2, 3, and 4, adverse impacts to all floodplains 

along the three Route Alternatives are expected to be negligible and there are no 

resulting impacts anticipated to water bodies on the LLR. 

 

None of the Route or Segment Alternatives would adversely affect FEMA-identified 

floodplains in the LLR. Impacts to unmapped floodplains within the Leech Lake 

Reservation, to the extent they are present, are expected to be similar to those identified 

for FEMA-identified floodplains within all of the Route Alternatives, which are expected 

to be negligible. 

3.5.2.7. Chippewa National Forest 

Route Alternatives 1, 2, and 4 would not adversely affect FEMA-identified floodplains 

within the CNF. No poles would be placed in known floodplains, resulting in no 

impacts to known floodplains in the CNF. 

The 1,000-foot route for Route Alternative 3 would cross several riparian areas and 

floodplains identified in the 2004 CNF Forest Plan. As discussed above in Section 3.5.1, 

four catchments or sub-watersheds are designated as Riparian Emphasis (RE) 

Management Areas. None of these crossings would be within designated FEMA 

floodplains. Route Alternative 3 would also cross a major wetland complex associated 

with the Bowstring Lake and Bowstring River floodways, a portion of which is located 

on the CNF. Approximately 13 of the anticipated 46 transmission structures may be 

placed within the CNF. Under this configuration, the estimated long-term impact 

would be approximately 186 square feet (0.004 acre), which represents a negligible 

change in acreage and storage volume. Other potential impacts to unmapped 

floodplains, if any, are expected to be negligible. 

3.5.3. Mitigation 

The Project would locate structures outside of floodplains to the extent practicable, such 

that potential impacts are expected to be minimal. 

Under the HVTL permit, the Applicants could be required to implement the following 

measures to prevent or reduce potential impacts to floodplains: 

• Span floodplains and water resources to the extent possible to avoid potential 

impacts. 

• Use construction techniques to minimize run-off into floodplains during 

construction. 

• Plant or seed non-agricultural areas that were disturbed during construction. Use 

native seed mixes from the indigenous plants and plant indigenous plants 

located in the immediate disturbed soil area; ensure seeding and/or plantings 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

148 

3.5 Floodplains 

are done in a time congruent with seeding and growth of the area, not during a 

time that would preclude germination or rooting. 

• Restore floodplain contours to their pre-construction profile if contours are 

disrupted during construction. 

 

Mitigation measures that are included in permits and would reduce the potential 

impacts to water resources and wetlands, which can result in impacts to surrounding 

floodplains, are discussed in Sections 3.4, Water Resources, and 3.6, Wetlands. 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

149 

3.6 Wetlands 

3.6. Wetlands 

This section describes wetlands and wetland-related water resources and ecosystems in 

the Study Area. For the purposes of this analysis, the Study Area is defined as the Route 

Alternatives and Segment Alternatives. 

Methodology and Sources of Information 

Information from the National Wetlands Inventory, available from the U.S. Fish and 

Wildlife Service (USFWS, 2009), was used to determine the location and condition of 

wetlands within the Study Area and potential effects of the Project on those conditions. 

NWI information was augmented by the State of Minnesota Public Water Inventory 

database, as well as information obtained from CNF biologists, LLDRM, Minnesota 

Department of Natural Resources (MnDNR), and local government units during the 

public scoping meetings. 

3.6.1. Affected Environment 

The following sections provide a summary of the existing wetlands present in the Study 

Area, as identified on the National Wetlands Inventory (NWI) and Public Water 

Inventory (PWI). 

Wetlands can serve many functions, including ground water recharge and discharge; 

flood storage and alteration or attenuation; nutrient and sediment removal or 

transformation; toxicant retention; and shoreline stabilization. In addition, wetlands 

provide habitat for fish and wildlife, and support wildlife breeding, migration, and 

wintering. Wetlands also support recreational activities. 

The USFWS (1979) defines the types of wetlands that occur in the Study Area using the 

following system and class/subclass classifications. The classification system was 

designed specifically for NWI wetlands and intended to be ecologically based. 

• Lacustrine System - includes wetlands and deepwater habitats with all of the 

following characteristics: (1) situated in a topographic depression or a dammed 

river channel; (2) lacking trees, shrubs, persistent emergents, emergent mosses or 

lichens with greater than 30 percent areal coverage ; and (3) total area exceeds 8 

hectares (20 acres). Similar wetland and deepwater habitats totaling less than 8 

hectares are also included in the Lacustrine System if an active wave-formed or 

bedrock shoreline feature makes up all or part of the boundary, or if the water 

depth in the deepest part of the basin exceeds 2 meters (6.6 feet) at low water. 

Lacustrine waters may be tidal or nontidal, but ocean-derived salinity is always 

less than 0.5 percent. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

150 

3.6 Wetlands 

• Riverine System - includes all wetlands and deepwater habitats contained within 

a channel, with two exceptions: (1) wetlands dominated by trees, shrubs, 

persistent emergents, emergent mosses, or lichens, and (2) habitats with water 

containing ocean derived salts in excess of 0.5 percent. A channel is "an open 

conduit either naturally or artificially created which periodically or continuously 

contains moving water, or which forms a connecting link between two bodies of 

standing water." 

• Emergent Wetland Class – characterized by erect, rooted, herbaceous 

hydrophytes, excluding mosses and lichens. This vegetation is present for most 

of the growing season in most years. These wetlands are usually dominated by 

perennial plants. All water regimes are included except subtidal and irregularly 

exposed. 

• Scrub-Shrub Wetland Class – includes areas dominated by woody vegetation less 

than 6 meters (20 feet) tall. The species include true shrubs, young trees, and 

trees or shrubs that are small or stunted because of environmental conditions. All 

water regimes except subtidal are included. 

• Forested Wetland Class – characterized by woody vegetation that is 6 meters (20 

feet) tall or taller. All water regimes are included except subtidal. 

The U.S. Army Corps of Engineers (USACE) has regulatory jurisdiction over waters of 

the United States including wetlands pursuant to Section 404 of the Clean Water Act, 

and jurisdiction over Navigable Waters of the United States pursuant to Section 10 of the 

1899 Rivers and Harbors Act. The placement of transmission line pole structures, land 

clearing that involves soil disturbance, or placement of construction mats may be 

considered a discharge of fill material that would require a permit from the Department 

of the Army pursuant to Section 404 of the Clean Water Act. In addition, the placement 

of a transmission line in, on, or over a navigable water body (i.e. Mississippi River) 

would require a permit pursuant to Section 10.A description of this permit and other 

federal, state, and local permits and regulatory approvals that may be required for 

construction and operation of the Project is provided in Section 6.0. 

3.6.1.1. National Wetlands Inventory Wetlands 

The USFWS has developed NWI maps showing the locations, size, and types of 

wetlands throughout the United States. These maps were developed using aerial 

photography interpretation techniques. The purpose of these maps was to provide 

better geospatial information about wetlands than had been previously available from 

other sources and to provide a consistent classification system across the United States. 

Because of the inherit limits of photo interpretation, the intent was not to map all 

wetlands and deepwater habitats, but rather the larger types that could be identified by 

such techniques. Forested wetlands are especially underrepresented in NWI maps due 

to limitations in identifying this wetland type from aerial photography. Thus, although 

these maps serve as an excellent screening or preliminary evaluation tool, on-the-ground 

field surveys are required to identify all wetlands, their boundaries, and their quality. 

To identify the presence and potential impact to wetlands in the Study Area, NWI data 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

151 

3.6 Wetlands 

was supplemented with PWI wetlands data maintained by the MnDNR, as discussed in 

Section 3.6.1.2. Prior to Section 404 and Section 10 permitting, detailed field delineations 

of the route would be required. 

USFWS NWI maps were initially used to identify mapped wetlands existing within each 

of the Route Alternatives, which comprise the Study Area. Tables 3.6-1 and 3.6-2 show 

NWI wetlands located within each Route Alternative and Segment Alternative. The 

Study Area is primarily located within the Mississippi River Watershed and Leech 

Lake River Watershed. The Mississippi River Watershed is approximately 1,961 

square miles in size and contains 180,286 acres of lake habitat and 196,522 acres of 

wetland habitat (Enbridge Energy, 2009). The Leech Lake River Watershed is 

approximately 1,335 square miles in size and contains 168,807 acres of lake habitat 

and 139,650 acres of wetland habitat (Enbridge Energy, 2009). Figure 3.6-1 displays the 

NWI wetlands in the Study Area. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

152 

3.6 Wetlands 

Table 3.6-1: NWI Wetlands Identified within the Route Alternatives 

Route 

Alternative 1 

Route 

Alternative 2 

Route 

Alternative 3 

Route 

Alternative 4 Type 

Acres % of 

Route Acres % of Route Acres % of Route Acres % of Route

Fresh Water 

Emergent 644 7.7 454 5.5 501 3.1 690 8.7 

Freshwater 

Forested/Scrub 

Shrub 1,665 19.9 1,522 18.5 3,113 22.0 1,523 19.2 

Freshwater Pond 20 0.2 18 0.2 36 0.3 23 0.3 

Lacustrine 14 0.2 13 0.2 65 0.5 18 0.2 

Riverine 13 0.2 9 0.1 20 0.1 13 0.2 

Entire Route 

All NWI Wetlands 2,356 28.1 2,014 24.5 3,735 26.3 2,268 28.6 

Fresh Water 

Emergent 174 2.1 137 1.7 276 2.0 148 1.9 

Freshwater 

Forested/Scrub 

Shrub 342 4.1 245 3.0 2,206 15.6 181 2.3 

Freshwater Pond 7 0.1 3 0.0 23 0.2 11 0.1 

Lacustrine - - - - 26 0.2 - - 

Riverine 3 0.0 4.8 0.1 14 0.1 3 <0.1 

Chippewa 

National 

Forest

All NWI Wetlands

529 6.3 401 4.9 2,545 18.0 343 4.3 

Fresh Water 

Emergent 469 5.6 322 3.7 1 0.0 531 6.7 

Freshwater 

Forested/Scrub 

Shrub 1,236 14.7 1,081 12.4 33 0.2 1,130 14.2 

Freshwater Pond 16 0.2 16 0.2 0.0 0.0 18 0.2 

Lacustrine 11 0.1 13 0.2 0.0 0.0 15 0.2 

Riverine 8 0.1 6 0.1 0.0 0.0 10 0.1 

Leech Lake 

Reservation 

All NWI Wetlands 1,740 20.8 1,438 16.4 34 0.23 1,703 21.4 

Note: This evaluation was prepared using National Wetland Inventory (NWI) data only, the results have not been field 

verified. Field surveys would be conducted after the final route location has been selected, prior to Project 

construction. 

Source: USFWS, 2009
Bemidji – Grand Rapids Transmission Line Sept

Final EIS 

153 

3.6 Wetlands 

Table 3.6-2: NWI Wetlands Identified within the Segment Alternatives 

Segment Alternatives (acres) 

Type 

A B C D E F G H I J K L M N O P Q 

Fresh Water 

Emergent 117 71 31 54 43 14 5 10 5 0 11 29 5 2 5 <1 3 

Freshwater 

Forested/Scrub 

Shrub 161 136 112 49 226 21 <1 3 1 0 132 7 2 33 5 0 9 

Freshwater Pond 5 3 2 3 <1 0 0 0 0 0 0 0 1 0 7 0 0 

Lacustrine 0 0 0 0 0 0 0 0 0 0 4 0 0 0 0 0 0 

Riverine 0 0 4 0 1 0 0 0 0 0 0 0 0 0 0 0 0 

All NWI Wetlands 283 210 149 105 270 35 5 13 6 0 147 36 8 35 17 <1 12 

Entire Route 

NWI Wetlands as 

a % of Route 

Segment 15 17 28 18 22 22 3 11 11 N/A 20 13 3 8 5 <1 35 

Fresh Water 

Emergent N/A 14 19 N/A 41 6 N/A N/A N/A N/A N/A N/A N/A 2 5 <1 N/A 

Freshwater 

Forested/Scrub 

Shrub N/A 44 48 N/A 224 11 N/A N/A N/A N/A N/A N/A N/A 33 5 0 N/A 

Freshwater Pond N/A 3 0.00 N/A 0 0 N/A N/A N/A N/A N/A N/A N/A 0 7 0 N/A 

Lacustrine N/A 0 0.00 N/A 0 0 N/A N/A N/A N/A N/A N/A N/A 0 0 0 N/A 

Riverine N/A 0 0.04 N/A 1 0 N/A N/A N/A N/A N/A N/A N/A 0 0 0 N/A 

All NWI Wetlands N/A 61 67 N/A 266 17 N/A N/A N/A N/A N/A N/A N/A 35 17 <1 N/A 

Chippewa National Forest NWI Wetlands as 

a % of Route 

Segment N/A 10 21 N/A 23 10 N/A N/A N/A N/A N/A N/A N/A 8 5 <1 N/A 

Fresh Water 

Emergent N/A 71 22 50 42 14 N/A N/A N/A N/A 9 27 32 2 5 <1 3 

Freshwater 

Forested/Scrub 

Leech Lake 

Reservation Shrub N/A 136 102 49 220 21 N/A N/A N/A N/A 60 7 13 33 5 0 9 

Freshwater Pond N/A 3.03 0 3 0 0 N/A N/A N/A N/A 0 0 5 0 7 0 0 
Bemidji – Grand Rapids Transmission Line Sept

Final EIS 

154 

3.6 Wetlands 

Lacustrine N/A 0 0 0 0 0 N/A N/A N/A N/A 4 0 0 0 0 0 0 

Riverine N/A 0 2 0 0 0 N/A N/A N/A N/A 0 0 0 0 0 0 0 

All NWI Wetlands N/A 210 126 102 262 35 N/A N/A N/A N/A 73 34 79 35 17 <1 1 

NWI Wetlands as 

a % of Route 

Segment N/A 17 26 19 23 20 N/A N/A N/A N/A 10 11 27 8 5 <1 35 

 Note: This evaluation was prepared using National Wetland Inventory (NWI) data only, the results have not been field verified. Field su

conducted after the final route location has been selected, prior to Project construction. 

 N/A = not applicable.  Source: USFWS, 2009 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

155 

3.6 Wetlands 

Route Alternatives and Segment Alternatives 

Wetlands are common within the Study Area, comprising from approximately 

25 percent of Route Alternative 2 to 29 percent of the total acreage of Route Alternative 

4. The total acreage of wetlands located within the Study Area ranges from 2,014 acres 

for Route Alternative 2 to 3,735 acres for Route Alternative 3. The amount of NWI 

wetlands within the Segment Alternatives varies from none in several Segment 

Alternatives to 283 acres in Segment Alternative A. Segment Alternative P shows a 

much greater percentage of wetland coverage at 35 percent of the Segment Alternative. 

Forested and scrub-shrub wetlands are the most common wetland types found in the 

Study Area, comprising the most wetland acreage, followed by freshwater emergent 

wetlands. As shown in Table 3.6-1, forested and scrub-shrub wetlands account for 

between 19.9 percent (Route Alternative 1) and 22.0 percent (Route Alternative 3) of the 

total acreage in the Route Alternatives. These wetland types also comprise the most 

common wetland types within the Segment Alternatives. 

Route Alternative 1 would require construction of a new substation located in the Cass 

Lake area and a Nary Breaker Station (under Segment Alternative A). Route 

Alternatives 2 and 4 would require the expansion of an existing Cass Lake Substation. 

The location proposed for the new Cass Lake substation associated with Route 

Alternative 1 consists of approximately four acres of forested land. The Nary Breaker 

Station would be located at the intersection of three existing transmission lines referred 

to as the Nary Junction (the Nary to Cass Lake 115 kV line, the Bemidji to Nary 115 kV 

line, and the Nary to LaPorte 115 kV line); ROWs associated with these lines at the Nary 

Junction are managed to prevent the establishment of woody vegetation. The area 

surrounding the Nary Breaker Station is primarily upland deciduous forest. The 

proposed location for the Nary Breaker Station would require the removal of 

approximately 2.5 acres of woody vegetation. The nearest NWI wetland is a freshwater 

emergent wetland located approximately 450 feet north of the Nary Junction. The Cass 

Lake Substation expansion would be constructed on previously disturbed land owned 

by Otter Tail Power. There are no NWI or PWI wetlands identified at the substation 

locations that would be affected by the Project. 

 

Leech Lake Reservation 

As shown in Table 3.6-1, Route Alternative 1 contains the largest area of NWI wetlands 

in the Leech Lake Reservation (LLR) with approximately 1,740 acres. Route Alternatives 

2 and 4 contain a slightly lower number of NWI wetland areas in the LLR than Route 

Alternative 1, approximately 1,438 acres and 1,703 acres, respectively. Route 

Alternative 3 has the fewest wetlands on the LLR, approximately 34 acres. As with the 

Route Alternatives generally, forested and scrub-shrub wetlands comprise the majority 

of NWI wetlands in the LLR for each alternative, ranging from 33 to 1,236 acres. 

Freshwater emergent wetlands were the only other type of wetland representing over 1 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

156 

3.6 Wetlands 

percent of the total acreage within Route Alternatives on the LLR, varying from 469 

acres on Route Alternative 1, 322 acres on Route Alternative 2, one acre on Route 

Alternative 3, and 531 acres on Route Alternative 4. 

Chippewa National Forest 

As shown in Table 3.6-1, Route Alternative 3 has the largest area of NWI wetlands 

within the CNF, approximately 2,545 acres. The other three route alternatives cross 

fewer wetlands in the CNF, with Route Alternative 1 containing approximately 529 

acres, Route Alternative 2 containing approximately 401 acres, and Route Alternative 4 

containing approximately 343 acres of NWI wetlands. 

3.6.1.2. Public Water Inventory Wetlands 

MnDNR public waters include all water basins (i.e., lakes and ponds) and watercourses 

(i.e., rivers and streams) that meet the criteria set forth in Minnesota statutes (Section 

103G.005, subd. 15), and that are identified on PWI maps and lists authorized by 

Minnesota statutes (Section 103G.201). Public water inventory wetlands are defined by 

the MnDNR (2009m) to include: 

all type 3, type 4, and type 5 wetlands (as defined in U.S. Fish and Wildlife Service 

Circular No. 39, 1971 edition) that are 10 acres or more in size in unincorporated areas, 

or 2.5 acres or more in size in incorporated areas (see: Minnesota Statutes Section 

103G.005, subd. 17b, Wetland Type). 

The regulatory boundary of these waters and wetlands is the ordinary high water level 

(OHWL) (MnDNR, 2009m). Table 3.6-3 shows the number of wetland basins located 

within each Route and Segment Alternative. Tables 3.4-2 and 3.4-3 in Section 3.4, Water 

Resources, show the number of MnDNR PWI watercourses and PWI basins that would 

be crossed by each 1,000-foot route. Section 3.4, Water Resources, provides a more 

detailed discussion about PWI streams and basins. Field verification of wetlands has not 

been completed for the Project, but would be conducted when a final route is selected, 

prior to Project construction. 

Route Alternatives 1, 2, 3, and 4 

Tables 3.4-2 through 3.4-4 show the number of PWI-defined watercourses and basins 

within the routes and ROWs evaluated for each of the various Route Alternatives and 

Segment Alternatives. Table 3.6-3 shows the number of PWI wetlands that would be 

crossed by the Route and Segment Alternatives. The actual number of wetlands crossed 

during Project development and the amount of wetland area adversely affected would 

be dependent upon the location and width of the final ROWs. Wherever practicable, 

wetland crossings would be avoided entirely or located such that the wetlands could be 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

157 

3.6 Wetlands 

spanned by poles placed between 800 and 1,000 feet apart. Mitigation measures for 

wetlands affected by Project construction and operation are discussed below in Section 

3.6.3. 

As shown in Table 3.6-3, the number of PWI wetland basins potentially affected within 

the ROWs evaluated range from six for Route Alternative 1, three for Route Alternative 

2, 10 for Route Alternative 3, and seven for Route Alternative 4. 

Table 3.6-3: Number of PWI Wetland Basin Crossings in the Study Area 

Route and Entire Route 

Segment 

Alternatives 1,000-foot route 125-foot ROW 

Leech Lake 

Reservation 

(1,000-ft route) 

Chippewa 

National Forest 

(1,000-ft route) 

Route Alternatives 

1 10 6 8 8 

2 7 3 4 4 

3 24 10 0 24 

4 13 7 9 6 

Segment Alternatives 

A 2 1 N/A N/A 

B 0 0 0 0 

C 0 0 0 0 

D 0 0 0 N/A 

E 2 0 2 2 

F 0 0 0 0 

G 0 0 N/A N/A 

H 0 0 N/A N/A 

I 0 0 N/A N/A 

J 0 0 N/A N/A 

K 2 1 1 0 

L 0 0 0 N/A 

M 1 1 1 N/A 

N 0 0 0 0 

O 0 0 0 0 

P 0 0 0 0 

Q 0 0 0 0 

R 0 0 N/A 0 

S 0 0 N/A 0 

T 0 0 N/A 0 

Source: MnDNR, 2009m 

Leech Lake Reservation 

As shown in Table 3.6-3, the number of PWI wetlands that would be crossed on the LLR 

range from zero for Route Alternative 3 to nine for Route Alternative 4. Route 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

158 

3.6 Wetlands 

Alternative 3 largely avoids the LLR. The Segment Alternative with the most PWI 

wetlands crossings within the LLR is Segment Alternative E with two crossings. 

Chippewa National Forest 

As shown in Table 3.6-3, the number of PWI wetlands located on the CNF that are 

crossed by the Route Alternatives ranges from four for Route Alternative 2 to 24 for 

Route Alternative 3. 

3.6.2. Direct/Indirect Effects 

Potential effects to wetland areas are described for a feasible 125-foot ROW for each 

Route Alternative and Segment Alternative, because this is the maximum potential area 

that would be disturbed during construction within the wider route widths. 

Potential direct impacts resulting from construction and maintenance of the Project 

could include: 

• Long-term and temporary loss of wetlands and/or wetland functions 

• Conversion of wetland types 

Potential indirect impacts from the Project could include: 

• Change in water quality and water recharge 

• Loss of habitat 

• Impacts from construction and maintenance access 

Three types of direct impacts to wetland areas would result from the Project: long-term 

loss of wetlands and/or wetland functions in areas of Project structure placement, 

temporary loss of wetlands and/or wetland functions during construction, and 

conversion of wetland types, as shown in Table 3.6-4. Long-term loss of wetlands 

and/or wetland functions would only occur if a wetland could not be spanned, and if 

dredging or filling was required for structure installation. Each H-frame structure is 

anticipated to occupy 40 square feet. Removal of woody vegetation may incorporate a 

discharge of fill material that requires a Department of the Army Permit if mechanized 

land clearing involves soil disturbance in waters of the United States. The amount and 

area of fill required for structure installation and access roads would depend on the 

Route Alternative selected and final structure placement. The Applicants have stated 

that construction requiring access over wetlands could be conducted in the winter 

season when wetlands are frozen to avoid impacts for the creation of access roads 

with fill materials. 

Long-term conversion of wetland type would occur where the clearing of forested 

wetland areas would be required within the ROW. Forested land, including forested 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

159 

3.6 Wetlands 

wetlands, would be cleared within the entire 125-foot ROW to maintain a safe 

distance between the height of vegetative growth and the transmission line. 

Approximately 15 acres of wetland would be affected for each mile of ROW crossing 

through a wetland or wetland complex. Removal of woody vegetation within a wetland 

area would convert the forested wetland area to a different vegetative class and thus a 

different wetland type, for example, a forested wetland may be converted to a scrubshrub or emergent wetland. The converted wetland would be maintained during 

operation with the periodic removal of forest vegetation. Non-forested wetland types, 

including scrub-shrub or emergent wetlands would not be cleared from the entire 

width of the 125-foot ROW; however, wetland type conversion to these wetland types 

may occur as a result of construction. As shown in Table 3.6-4, conversion of forested 

wetland would range from 52 acres for Route Alternative 2 to 118 acres for Route 

Alternative 3. Total wetland type conversion would range from 166 acres for Route 

Alternative 2 to 269 acres for Route Alternative 3. Wetland conversion could result in 

changes in wetland functions, including water retention and recharge. Conversion from 

one wetland type to another would also result in a change in wildlife species 

composition and diversity. 

Temporary wetland losses or losses of wetland function due to construction activities 

may occur to wetland areas that are not within the footprint of an H-frame structure or 

converted to another wetland type. For example, soil compaction or vegetation removal 

may occur where a wetland area is traversed by construction equipment. 

Some wetlands temporarily affected by the Project would return to their original 

function, including scrub-shrub and emergent wetlands. However, certain wetland 

types, including bogs and white cedar swamps, would be difficult to restore and replace. 

Both white cedar swamps and bogs consist of a highly organic and moist soil 

composition that develops over time from decomposition. Bogs require a buffer to 

remove excess nutrients before they reach the bog, which could extend up to 250 feet 

from the bog itself. Excess water and nutrients in the buffer can adversely affect the 

function of the bog. Due to the unique soil conditions within bogs and white cedar 

swamps, the wetland types are difficult to restore and replace (State of Washington, 

2005). 

Each of the Route Alternatives would result in adverse impacts to wetlands. As shown 

in Table 3.6-4, for each ROW evaluated the long-term loss of wetlands and/or wetland 

functions from pole placement would be negligible, representing less than 1 acre. 

Conversion of wetland type, which could result from the removal of woody vegetation 

in the ROW and may be long-term, are specifically noted in Table 3.6-4 and not included 

in the definition of “long-term impacts” from pole placement. Route Alternative 2 

generally shows the least potential impact to wetlands, with approximately 59 acres of 

temporary impacts and 166 acres of wetland conversion. Route Alternative 3 shows the 

greatest potential impact to wetlands, consisting of 101 acres of temporary impacts and 

269 acres of wetland conversion. Route Alternatives 1 and 4 fall between the other 

two, with 83 and 91 acres of temporary impacts, respectively. Route Alternatives 1 

and 4 would result in 209 and 226 acres of wetland conversion, respectively. These 

potential impacts are described in greater detail in the following subsections. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

160 

3.6 Wetlands 

The estimated impacts to NWI wetlands identified in Table 3.6-4 were calculated for the 

feasible 125-foot ROW identified by the Applicants. The table accounts for locations 

along the Route and Segment Alternatives where the Applicants specified the Project 

ROW could overlap or parallel existing ROWs. In these areas, former wetlands may 

have already been impacted or converted, resulting in a lower potential impact from the 

Project. If the 125-foot ROW were located elsewhere within the 1,000-foot routes and no 

longer co-located with existing ROWs, the potential wetland conversion areas could be 

greater than those identified in the table. 

Table 3.6-4 also provides a preliminary estimate of the number of wetlands that would 

have long-term impacts from the placement of structures for each Route Alternative and 

Segment Alternative. The estimated number of structures that would be placed in an 

NWI wetland ranges from 93 for Route Alternative 2 to 120 for Route Alternative 3. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

161 

3.6 Wetlands 

Table 3.6-4: Estimated NWI Impacts within a Feasible 125-foot Right-of-Way 

Route and 

Segment 

Alternatives 

Associated 

Route 

Alternatives 

Temporary 

Impacts 

(acres) 

Total Wetland 

Type 

Conversion 

(acres) 

Forested 

Wetland Type 

Conversion 

(acres) 

LongTerm 

Impacts 

Total NWI 

Wetland 

Impacts 

Number of 

Wetland 

Crossings 

Cannot b

Spanne

Route Alternatives 

1 83 209 80 <1 292 29 2 59 166 52 <1 225 30 3 101 269 118 <1 370 35 4 91 226 92 <1 317 33 

Segment Alternatives 

A 1 23 10 1 <1 33 2 B 1 9 17 9 <1 26 2 C 1, 2 3 14 12 <1 17 1 D 1 6 4 2 <1 11 0 

E 3 4 13 5 <1 17 2 

F 2 1 2 1 <1 3 1 

G 2 <1 0 0 <1 <1 0 

H 2 <1 0 0 <1 <1 0 

I 2 <1 <1 0 <1 <1 0 

J 1, 2 0 0 0 0 0 0 

K 1, 2 2 18 5 <1 20 2 

L 1 3 <1 0 <1 4 1 

M 1, 2 6 1 1 <1 7 1 

N 1, 2 <1 4 3 <1 4 0 

O 1, 2 2 <1 <1 <1 2 0 

P 1, 2 3 0 0 <1 3 0 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

162 

3.6 Wetlands 

Q 1, 2 <1 1 1 <1 1 0 

R 3 <1 3 2 <1 6 0 

S 3 <1 1 <1 <1 4 0 

T 3 2 4 2 <1 6 1 

Notes: Route Alternative 4 incorporates Segment Alternatives F and K in the calculation of impacts. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

163 

3.6 Wetlands 

Forested wetlands are typically underrepresented in NWI maps due to limitations in 

identifying this wetland type from aerial photography. Thus, although NWI maps serve 

as an excellent screening or preliminary evaluation tool, on-the-ground field surveys are 

required to identify wetlands, their boundaries, and their quality. The forested wetland 

class is characterized by woody vegetation that is 6 meters (20 feet) or taller, and can be 

difficult to restore and replace. Within the ROW, forested wetlands would likely be 

converted to another wetland type. To identify potential impacts to forested wetlands, 

NWI maps were compared with land cover type maps to approximate the types of 

forested wetlands present in the 125-foot ROW for the Route and Segment Alternatives. 

Tables 3.6-4, 3.6-5, and 3.6-6 approximate the potential impacts to forested wetland types 

within the 125-foot feasible ROW identified for the Route and Segment Alternatives. 

Table 3.6-5: Potential Impacts to Forested Wetland Types within the 125-foot Feasible Right-of-Way 

for the Route Alternatives 

Route Alternatives 

Forested Wetland Types 1 2 3 4 

Deciduous Forest – Wetland Types (Acres)

Aspen/White Birch 4.78 5.05 13.91 8.55 

Black Ash 0.28 - 0.53 1.25 

Lowland Deciduous 33.81 22.28 16.15 32.10 

Maple/Basswood 0.29 0.08 0.48 0.22 

Red Oak - - - - 

Upland Deciduous 1.60 0.91 2.44 2.04 

Total 40.76 28.32 33.5 44.16 

Conifer Forest – Wetland Types (Acres)

Balsam Fir mix 0.29 0.15 0.02 0.35 

Jack Pine 0.13 0.12 0.79 0.30 

Lowland Black Spruce 19.10 8.34 68.31 18.09 

Lowland Northern White-Cedar 8.51 1.87 1.17 11.83 

Red Pine - - - - 

Red/White Pine 0.10 1.13 0.88 1.02 

Tamarack 4.90 5.24 2.03 2.10 

Upland Conifer 0.12 2.26 - 0.11 

Upland Northern White-Cedar 0.09 - 0.25 0.41 

Total 33.24 19.1 73.45 34.21 

Conifer-Deciduous Mix – Wetland Types (Acres)

Jack Pine-Deciduous mix 0.09 - - 0.04 

Lowland Conifer-Deciduous mix 6.03 4.50 11.26 13.51 

Total 6.12 4.50 11.26 13.55 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

164 

3.6 Wetlands 

Table 3.6-6: Forested Wetland Types within the 125-foot Feasible Right-of-Way for the Segment Alternati

Forested Segment Alternatives 

Wetland 

Types A B C D E F G H I J K L M N O P Q 

Deciduous Forest – Wetland Types (Acres) Aspen/White Birch 0.30 2.37 1.56 0.61 0.78 - - - - - 0.50 - 0.79 1.06 0.09 - Black Ash - 0.07 - - 1.23 - - - - - - - - - - - Lowland Deciduous 0.04 0.93 4.21 0.32 1.71 1.19 - - - - 1.39 - - 0.12 - - 0Maple/Basswood - 0.03 - 0.12 - - - - - - - - - 0.05 - - Red Oak - - - 0.02 - - - - - - - - 0.02 - - - Upland Deciduous - 0.48 0.28 0.41 0.30 - - - - - - - - 1.53 0.04 - 0Total 0.34 3.89 6.05 1.47 4.02 1.19 0.00 0.00 0.00 0.00 1.89 0.00 0.81 2.76 0.13 0.00 0.Conifer Forest – Wetland Types (Acres) Balsam Fir mix - - 0.18 - - - - - - - - - - - - - Jack Pine 0.30 0.11 - - - - - - - - 0.21 - - - - - Lowland Black Spruce 0.21 1.97 1.30 - - 0.24 - - - - 1.52 - - - - - Lowland Northern WhiteCedar - - 2.31 - - - - - - - - - - - - - Red Pine - - - - - - - - - - - - - - - - Red/White Pine - - 0.01 0.23 0.18 - - - - - 0.12 - - - - - Tamarack - 0.72 1.60 - 0.46 - - - - - - - - - - - Upland Conifer - - 0.10 - 0.25 - - - - - - - - - - - Upland Northern White-Cedar - - - - - - - - - - - - - - 0.04 - Total 0.51 2.80 5.50 0.23 0.89 0.24 0.00 0.00 0.00 0.00 1.85 0.00 0.00 0.00 0.04 0.00 0.
Bemidji – Grand Rapids Transmission Line 

Final EIS 

165 

3.6 Wetlands 

Conifer-Deciduous Mix – Wetland Types (Acres) Jack PineDeciduous mix - - - - - - - - - - - - - - - - Lowland ConiferDeciduous mix - 2.61 - - 0.19 - - - - - 1.24 - - - - - Total 0.00 2.61 0.00 0.00 0.19 0.00 0.00 0.00 0.00 0.00 1.24 0.00 0.00 0.00 0.00 0.00 0.
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

166 

3.6 Wetlands 

3.6.2.1. No-Build Alternative 

The No-Build Alternative would not construct transmission facilities in the Study Area; 

as such there would be no impact to wetlands within the Study Area. 

3.6.2.2. Route Alternative 1 

Route Alternative 1 would cross 29 wetland complexes that cannot be spanned as well 

as riparian areas along the Mississippi River, impacting an estimated 292 acres (Table 

3.6-4). These impacts are greater than Route Alternative 2 but less than Route 

Alternative 3. As with all Route Alternatives, long-term impacts related to the 

permanent structures would be less than 1 acre. Approximately 209 acres of wetlands 

would be converted and approximately 83 acres would be temporarily affected during 

construction. Forested wetlands would represent approximately 38 percent of the total 

acres undergoing wetland type conversion. Total wetland impacts, including 

temporary, long-term, and conversion would be approximately 292 acres, including 

impacts to approximately 80 acres of forested wetlands (see Table 3.6-5). This would 

represent an impact to approximately 0.08 percent of the 365,329 wetland acres within 

the Mississippi River and Leech Lake River Watersheds.

The Segment Alternatives associated with this route alternative would have the 

following impacts: 

• Segment Alternative A would increase the total wetland impacts to 300 acres as 

compared to Route Alternative 1, increasing the temporary impacts to 102 acres, 

but reducing the wetland conversion to 198 acres. The number of wetland 

complexes that cannot be spanned would increase to 35, and this Segment 

Alternative would increase the number of structures potentially placed in an 

NWI wetland by two. 

• Segment Alternative B would increase the total wetland impacts to 

approximately 312 acres, increasing the temporary impacts to 89 acres and the 

wetland conversion to 223 acres. Segment Alternative B would increase the 

number of wetland complexes that cannot be spanned to 33 and increase the 

number of structures to 115. 

• Segment Alternative C would increase the total wetland impacts to 

approximately 309 acres, increasing the temporary impacts to 86 acres and the 

wetland conversion to 223 acres. Segment Alternative C would increase the 

number of wetland complexes that cannot be spanned to 30 and increase the 

number of structures to 114. 

As discussed above, long-term impacts would result from the loss of wetlands and/or 

wetland functions from structure placement within a wetland (less than 1 acre). 

Wetland conversion through clearing and maintenance of the ROW could result in 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

167 

3.6 Wetlands 

changes in wetland functions, including water retention and recharge. Conversion from 

one wetland type to another would also result in a change in wildlife species 

composition, diversity, and abundance. Temporary impacts to wetlands during 

construction include soil compaction or vegetation removal that could result in 

temporary loss of wetlands and/or wetland functions. 

3.6.2.3. Route Alternative 2 

Route Alternative 2 would cross 30 wetland complexes that cannot be spanned, as well 

as riparian areas along the Mississippi River. Although Route Alternative 2 contains a 

similar number of wetland complexes that cannot be spanned as Route Alternative 1, the 

estimated number of structures placed within NWI wetlands is less, 93 as opposed to 

113. 

As with the other Route Alternatives evaluated, long-term impacts to wetlands would 

be less than 1 acre. Wetland type conversion within the feasible 125-foot ROW that was 

evaluated are estimated to be 166 acres. Forested wetlands would represent 

approximately 31 percent of the total acres undergoing wetland type conversion. 

Temporary impacts resulting from this Route Alternative are estimated to be 

approximately 59 acres. Total wetland impacts, including temporary, long-term, and 

conversion would be approximately 225 acres, including impacts to approximately 52 

acres of forested wetlands (see Table 3.6-5). This would represent an impact to 

approximately 0.06 percent of the 365,329 acres within the Mississippi River and 

Leech Lake River Watersheds.

Route Alternative 2 would result in fewer temporary impacts to wetlands and fewer 

acres of wetland conversion that the other three Route Alternatives due to the lower 

acreage of wetlands located within the feasible 125-foot ROW identified. Route 

Alternative 2 would largely follow developed corridors such as U.S. Highway 2, 

which have fewer existing or smaller wetland complexes than the 125-foot ROWs 

identified for Route Alternatives 1, 3, and 4. 

Segment Alternative C would increase the total wetland impacts to approximately 242 

acres, increasing the temporary impacts to 62 acres and the wetland conversion to 180 

acres. Segment Alternative C would increase the number of wetland complexes that 

cannot be spanned to 31 and increase the number of structures to 94. 

As discussed above, long-term impacts would result from the loss of wetlands and/or 

wetland functions from structure placement within a wetland (less than 1 acre). 

Wetland conversion through clearing and maintenance of the ROW could result in 

changes in wetland functions, including water retention and recharge. Conversion from 

one wetland type to another would also result in a change in wildlife species 

composition and diversity. Temporary impacts to wetlands during construction include 

soil compaction or vegetation removal that could result in temporary loss of wetlands 

and/or wetland functions. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

168 

3.6 Wetlands 

3.6.2.4. Route Alternative 3 

Largely because of its longer length, Route Alternative 3 would have the greatest effect 

on wetlands of the Route Alternatives evaluated. Within the feasible ROW evaluated, 

Route Alternative 3 would cross 35 wetland complexes that cannot be spanned and 

require approximately 120 pole structures within wetland complexes. 

Long-term impacts to wetlands that cannot be spanned would again be less than 1 acre. 

Wetland type conversion within the 125-foot ROW evaluated would be approximately 

269 acres. Forested wetlands would represent approximately 44 percent of the total 

acres undergoing wetland type conversion. Temporary impacts would affect 

approximately 101 acres. Total wetland impacts, including temporary, long-term, and 

conversion would be approximately 370 acres, including impacts to approximately 118 

acres of forested wetlands (see Table 3.6-5). This would represent an impact to 

approximately 0.10 percent of the 365,329 acres within the Mississippi River and 

Leech Lake River Watersheds.

As discussed above, long-term impacts would result from the loss of wetlands and/or 

wetland functions from structure placement within a wetland (less than 1 acre). 

Wetland conversion through clearing and maintenance of the ROW could result in 

changes in wetland functions, including water retention and recharge. Conversion from 

one wetland type to another would also result in a change in wildlife species 

composition and diversity. Temporary impacts to wetlands during construction include 

soil compaction or vegetation removal that could result in temporary loss of wetlands 

and/or wetland functions. 

3.6.2.5. Route Alternative 4 

Route Alternative 4 would cross 33 wetland complexes that cannot be spanned, as 

well as riparian areas along the Mississippi River. The number of wetland complexes 

that cannot be spanned is similar to those determined for Route Alternatives 1 and 2. 

The estimated number of structures that would be placed within NWI wetlands is 

112, similar to the 113 structures estimated for Route Alternative 1. 

As with the other Route Alternatives evaluated, long-term impacts to wetlands would 

be less than 1 acre. Wetland type conversion within the feasible 125-foot ROW are 

estimated to be 226 acres. Forested wetlands would represent approximately 41 

percent of the total acres undergoing wetland type conversion. Temporary impacts 

resulting from this Route Alternative are estimated to be approximately 91 acres. 

Total wetland impacts, including temporary, long-term, and conversion would be 

approximately 317 acres, including impacts to approximately 92 acres of forested 

wetlands (see Table 3.6-5). This would represent an impact to approximately 0.09 

percent of the 365,329 acres within the Mississippi River and Leech Lake River 

Watersheds. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

169 

3.6 Wetlands 

Route Alternative 4 would result in similar acreage of temporary wetland impacts and 

wetland type conversion as Route Alternative 1. Although Route Alternative 4 

follows the same route as Route Alternative 2 between Cass Lake and Ball Club, the 

feasible 125-foot ROW for Route Alternative 4 would be located south of U.S. 

Highway 2 and the existing Enbridge pipelines in a less developed area. The feasible 

125-foot ROW identified for Route Alternative 2 would be located north of the 

Enbridge pipelines in a more heavily developed portion of the U.S. 2 corridor. The 

feasible 125-foot ROW identified for Route Alternative 4 was developed to avoid 

sensitive developed resources, including residential homes. Although the route 

length for Route Alternative 4 is similar to Route Alternatives 1 and 2, the ROW 

would be slightly longer to avoid sensitive resources. Thus, acreage of total land 

cover and wetland cover within Route Alternative 4 is slightly greater than Route 

Alternatives 1 and 2. 

Segment Alternative C would increase the total wetland impacts to approximately 334 

acres, increasing the temporary impacts to 94 acres and the wetland conversion to 240 

acres. Segment Alternative C would increase the number of wetland complexes that 

cannot be spanned to 34 and increase the number of structures to 113. 

As discussed above, long-term impacts would result from the loss of wetlands and/or 

wetland functions from structure placement within a wetland (less than 1 acre). 

Wetland conversion through clearing and maintenance of the ROW could result in 

changes in wetland functions, including water retention and recharge. Conversion 

from one wetland type to another would also result in a change in wildlife species 

composition and diversity. Temporary impacts to wetlands during construction 

include soil compaction or vegetation removal that could result in temporary loss of 

wetlands and/or wetland functions. 

3.6.2.6. Leech Lake Reservation 

Table 3.6-7 shows the estimated temporary impacts, long-term wetland type conversion, 

and long-term impacts to NWI wetlands located within feasible ROWs evaluated for the 

portions of all Route Alternatives and Segment Alternatives located within the LLR. 

Table 3.6-7 also provides a preliminary estimate of the number of wetlands within the 

LLR that would have long-term impacts from the placement of structures. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

170 

3.6 Wetlands 

Table 3.6-7: Estimated NWI Impacts within a Feasible 125-foot Right-of-Way within the LLR 

Route and 

Segment 

Alternatives

Temporary

Impacts 

(acres) 

Wetland Type

Conversion 

(acres) 

Long-Term 

Impacts 

(acres) 

Total NWI 

Wetland 

Impacts 

(acres) 

Number of 

Wetland 

Crossings 

That 

Cannot be 

Spanned 

Estimated 

# of 

Structures

placed in 

NWI 

Wetlands 

Route Alternatives

1 63 161 <1 224 23 92 

2 43 117 <1 160 21 67 

3 0 4 <1 4 1 0 

4 76 184 <1 260 28 100 

Segment Alternatives

A N/A

B 9 17 <1 26 2 2 

C 3 14 <1 17 1 1 

D 6 4 <1 11 0 0 

E 3 13 <1 16 2 6 

F 1 2 <1 3 1 1 

G N/A

H N/A

I N/A

J N/A

K 1 9 <1 10 2 3 

L 3 <1 <1 3 1 1

M 6 1 <1 7 1 1 

N <1 4 <1 4 0 0 

O 2 <1 <1 2 0 0 

P 3 0 <1 3 0 0

Q <1 1 <1 1 0 0

R N/A 

S N/A 

T N/A 

Route Alternative 4 has the greatest potential for wetland impacts within the LLR; 

potentially affecting 260 acres of wetlands, of which 184 acres would be converted longterm. Route Alternative 1 could potentially affect 224 acres of wetlands, including 

conversion of 161 acres of wetland. Route Alternative 2 could potentially affect 160 

acres of wetlands, including conversion of approximately 117 acres of wetland. Route 

Alternative 3 largely avoids the LLR, potentially affecting only 4 acres, all of them 

involving conversion of wetlands. 

As discussed above, long-term impacts would result from the loss of wetlands and/or 

wetland functions from structure placement within a wetland (less than 1 acre). 

Wetland conversion through clearing and maintenance of the ROW could result in 

changes in wetland functions, including water retention and recharge. Conversion from 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

171 

3.6 Wetlands 

one wetland type to another would also result in a change in wildlife species 

composition and diversity. Temporary impacts to wetlands during construction include 

soil compaction or vegetation removal that could result in temporary loss of wetlands 

and/or wetland functions. 

3.6.2.7. Chippewa National Forest 

Table 3.6-8 shows the estimated temporary impacts, long-term wetland type conversion, 

and long-term impacts to NWI wetlands located within ROW areas within the CNF. 

Overall, impact proportions would be similar to those described above for the entire 

route lengths. The table also provides a preliminary estimate of the number of wetlands 

within the CNF that would have long-term impacts from the placement of structures. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

172 

3.6 Wetlands 

Table 3.6-8: Estimated NWI Impacts within a Feasible 125-foot Right-of-Way within the CNF 

Route and 

Segment 

Alternatives 

Temporary

Impacts 

(acres) 

Wetland Type

Conversion 

(acres) 

Long-Term 

Impacts 

Total NWI 

Wetland 

Impacts 

Number of 

Wetland 

Crossings 

That 

Cannot be 

Spanned 

Estimated 

# of 

Structures

placed in 

NWI 

Wetlands

Route Alternatives

1 63 161 <1 224 23 92 

2 30 101 <1 131 18 72 

3 66 199 <1 265 24 126 

4 60 147 <1 207 25 75 

Segment Alternatives

A N/A

B 9 17 <1 26 2 2 

C 3 14 <1 17 1 1 

D 6 4 <1 11 0 0 

E 3 13 <1 17 2 6 

F 1 2 <1 3 1 1 

G N/A

H N/A

I N/A

J N/A

K N/A

L N/A

M N/A

N <1 4 <1 4 0 0 

O 2 <1 <1 2 0 0 

P 3 0 <1 3 0 0

Q N/A

R 0 1 0 1 0 0 

S 0 0 0 0 0 0 

T 0 1 <1 4 0 0 

Route Alternative 1 could potentially affect 224 acres of wetlands on the CNF, requiring 

conversion of approximately 161 acres of wetland. Route Alternative 2 could potentially 

affect 131 acres of wetlands, 101 acres of which would be converted. Route Alternative 3 

has the potential for the greatest wetland impacts, approximately 265 acres, including 

nearly 200 acres of wetland conversion. Route Alternative 4 could potentially affect 

207 acres of wetlands, including 147 acres of wetland conversion. 

As discussed above, long-term impacts would result from the loss of wetlands and/or 

wetland functions from structure placement within a wetland (less than 1 acre). 

Wetland conversion through clearing and maintenance of the ROW could result in 

changes in wetland functions, including water retention and recharge. Conversion from 

one wetland type to another would also result in a change in wildlife species 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

173 

3.6 Wetlands 

composition and diversity. Temporary impacts to wetlands during construction include 

soil compaction or vegetation removal that could result in temporary loss of wetlands 

and/or wetland functions. 

3.6.3. Mitigation 

A variety of mitigation measures could be implemented to reduce the potential impacts 

to wetlands from construction and operation of the Project. Mitigation measures that 

are typically included in permits are noted; cases where additional mitigation measures 

may be incorporated as a permit condition are also noted. 

Wetland delineations would be conducted by the Applicants on the Route Alternative 

selected. Based on the results of delineation and wetlands identified, mitigation 

would be required in accordance with the Clean Water Act, MnDNR Public Waters 

and Wetlands Work Permit, and Wetland Conservation Act requirements. Mitigation 

developed on the Route Alternative and final ROW would include wetland 

replacement as necessary for long-term impacts and location-specific wetland 

avoidance measures. The following general mitigation measures could be used to 

avoid and minimize wetland impacts. 

To mitigate the potential for erosion, under the HVTL permit the Applicants could be 

required to implement reasonable measures to manage storm water runoff during 

construction. Planting or seeding non-agricultural areas that were disturbed by 

transmission line structures would be required to prevent soil erosion due to runoff and 

the subsequent impacts to wetlands and water resources. 

To minimize long-term impacts to wetlands, the HVTL permit could require the 

Applicants to span wetlands, when possible, by adjustment of the location of the final 

ROW within the selected 1,000-foot-wide route. 

The Army Corps of Engineers, St. Paul District must require replacement of wetland 

functions and services lost due to regulated activities pursuant to Section 404 of the 

Clean Water Act and the Final St. Paul District Policy for Wetland Compensatory 

Mitigation in Minnesota in concert with other district policy and guidance. 

The Project would require a Section 404 permit, which would be issued by the 

USACE. The St. Paul District utilizes general permits, letters of permission, 

nationwide permits, and individual permits. The GP 03 MN cannot be utilized on the 

LLR. Neither the GP03 MN or the GP-R (reservations) nor the LOPs (letters of 

permission both on and off reservation) can be used for authorization for Section 10 

(Rivers and Harbors Act). Therefore, a more appropriate mechanism would be an 

Individual Permit for the entire Project. 

The April 2008 Federal Rule for compensatory mitigation requires that public notice 

for Department of the Army permits include a discussion of mitigation plans, 

including any compensatory mitigation. It acknowledges that mitigation planning is 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

174 

3.6 Wetlands 

an interactive process, and as such, a general discussion of the aquatic resource 

impacts, mitigation options, and conceptual plan may be what is included in a public 

notice. 

For long-term wetland impacts that were not avoidable, including wetland filling and 

wetland type conversion, the Project would be subject to wetland replacement siting 

rules (Minnesota Rules part 8420.0522), state compensatory mitigation requirements 

under state water quality standards (Minnesota Rules part 7050.0186), and the USACE St. 

Paul District Policy for Wetland Compensatory Mitigation in Minnesota (2009). 

Supplemental St. Paul District Army Corps of Engineers policy and guidance may also 

apply to compensatory mitigation for this Project. The primary goal of wetland 

mitigation is to restore high quality wetland communities of the same type, quality, 

function, and value as those to be impacted to the extent practicable. The five main 

categories of compensatory mitigation methods considered appropriate in northern 

Minnesota by state and federal agencies are: 1) restoration of impacted wetlands; 2) 

enhancement of existing wetlands; 3) wetland preservation; 4) wetland creation; and 5) 

upland buffers. 

The USACE St. Paul District requires a basic compensation ratio of 1.5:1 (1.5 acres of 

compensatory mitigation for every 1 acre of wetland loss) in the northeastern portion of 

Minnesota where the Project would be located. Minnesota Rules, part 7050.0186 requires 

compensatory mitigation to be sufficient to ensure replacement of the diminished or lost 

designated uses of the wetland that was physically altered. Both state and federal 

mitigation rules can require greater mitigation ratios depending upon the location, 

timing, and type of mitigation provided. 

The Project would require a number of wetland-related permits, including coverage 

under the General Permit for Storm Water Discharges Associated with Construction 

Activities and associated Storm Water Pollution Prevention Plan (SWPPP), National 

Pollution Discharge Elimination System Permit (NPDES), License to Cross Public 

Waters, Public Waters Work Permit, Section 404 Clean Water Act permit, and Section 

10 Permit. The placement of transmission line pole structures, land clearing that 

involves soil disturbance, or placement of construction mats may be considered a 

discharge of fill material that would require a permit from the Department of the Army 

pursuant to Section 404 of the Clean Water Act. These permits would require the 

Applicants to develop and implement Best Management Practices (BMPs) for sediment 

and erosion control during construction and operation of the Project to protect topsoil 

and adjacent wetlands and surface water resources. Typical BMPs may include: 

• Contain stockpiled material, including fuel and chemicals, away from wetlands; 

• Install sediment and erosion control prior to construction in accordance with 

sediment and erosion control plans and permits; 

• Use turbidity control methods prior to discharging wastewater from concrete 

batching or other construction operations to streams or other surface waters; 

• Spread topsoil and seed in a timely manner; 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

175 

3.6 Wetlands 

• Avoid use of fertilizers, pesticides, or herbicides in or near water bodies, 

including wetlands; 

• Fuel construction vehicles outside of water bodies, including wetlands, and use 

appropriate spill prevention and containment procedures; and 

• Implement procedures to minimize and control inadvertent fluid returns during 

horizontal directional drilling (HDD) operations, if they are used. 

The Applicants have proposed several additional BMPs for Project construction. These 

BMPs are designed to protect topsoil and adjacent water resources by trapping 

sediments. This would avoid contributing sediment to wetlands. The Applicants 

propose to avoid or minimize major disturbance of individual wetlands and drainage 

systems during construction by spanning wetlands and drainage systems, where 

possible. When it is not possible to span the wetland, the Applicants would draw upon 

several options during construction to minimize impacts: 

• When possible, construction would be scheduled during frozen ground 

conditions; 

• Crews would attempt to access a wetland with the least amount of physical 

impact to the wetland (i.e., shortest route); 

• The structures would be assembled on upland areas before they were brought to 

the site for installation, when practical; and 

• When construction during winter was not possible, construction mats would be 

used where wetlands would be affected. Additionally, the Applicants have 

access to an all-terrain construction vehicle that may be used, which is designed 

to minimize soil impact in damp areas. 

Operation under a NPDES permit and receipt of a USACE Section 404 permit, and 

adherence to the terms and conditions of the permits, including implementation of 

BMPs to reduce sedimentation and erosion control and protect disruption to 

wetlands, would demonstrate the Project’s compliance with the Clean Water Act. 

Specific permit conditions, including the quantity or extent of compensatory 

mitigation and specific best management practices would be determined by the 

USACE after a Project alternative has been selected. Field inspections of the Project 

would evaluate and verify compliance with permits and the Clean Water Act. 

As a standard practice, similar mitigation measures would be followed on lands within 

the Leech Lake Reservation as for state lands and private property. 

Construction activities carried out on CNF lands that take place within or in close 

proximity of lakes, streams, wetlands, or other water bodies would be conducted and 

monitored in accordance with objectives, standards, and guidelines of the Forest-Wide 

Management Directions provided in the 2004 Forest Plan (USDA, 2004). Construction 

plans would also be modified in accordance with any guidelines specific to each CNF 

Management Area. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

176 

3.6 Wetlands 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

177 

3.7 Biological Resources 

3.7. Biological Resources 

This section describes the biological conditions (i.e., vegetation, noxious weeds, and 

fauna) in the Study Area, which is defined as the 1,000-foot-wide route developed for 

each Route Alternative and Segment Alternative. The major biological resource areas 

within the Study Area include the Chippewa National Forest; the Leech Lake 

Reservation; and, to a lesser extent, state-owned lands including five State forests (Big 

Fork, Blackduck, Bowstring, Buena Vista, and Welsh Lake) and the Bemidji Slough 

Wildlife Management Area (WMA). The primary focus of this section is the potential 

impacts to vegetative cover, the potential spread of noxious weeds, and impacts from 

changes in vegetation cover and habitat fragmentation on common wildlife species. A 

discussion of Federal, State, and Tribal threatened, endangered, and species of concern is 

provided in Section 3.8. 

Methodology and Sources of Information 

Minnesota Department of Natural Resources (MnDNR) Geographical Analysis Program 

(GAP) Level 4 land cover data were used to identify the vegetation communities within 

the 1,000-foot Project alternatives. Vegetation community information was further 

supplemented with the USFS Chippewa National Forest Land and Resource Management 

Plan (CNF, 2004), MnDNR Comprehensive Wildlife Conservation Strategy (MnDNR 2006), 

and MnDNR general habitat descriptions (MnDNR, 2009). The noxious weeds 

inventory was based upon the Minnesota Noxious Weed Law (Minnesota Rules, parts 

1505.0730 through 1505.0750), Chippewa National Forest (CNF) invasive species list 

(USDS, 2009), the Leech Lake Band of Ojibwe Division of Resource Management 

(LLDRM, 2009e) invasive species list, and previous field surveys completed for previous 

projects in the region (USDS, 2009). Fauna information was primarily derived from field 

surveys completed for previous projects in the region (USDS, 2009) in the area and a 

Biological Assessment and Evaluation completed for this project (Appendix G). 

3.7.1. Affected Environment 

This section describes vegetation cover, noxious weeds, and fauna in the Study Area that 

may be affected by Project construction and operation. 

3.7.1.1. Vegetation Cover 

The Project lies within the Chippewa Plains Subsection of the Northern Minnesota Drift 

and Lakes Plains Ecoregion, which was historically characterized by a diverse mix of 

wetland communities and upland deciduous/coniferous forests comprised of pine 

species (e.g., red, white, and jack) and hardwoods (e.g., oak, maple, basswood, aspen, 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

178 

3.7 Biological Resources 

and birch) (Marschner, 1974; Otter Tail Power et al., 2008a). Since the early to mid-1900s, 

forestry has been a dominant land use practice in the region, which has changed the 

vegetative landscape to a mosaic of aspen-dominated deciduous forests, mixed 

hardwood forests and shrublands, croplands, pine forests, and wetlands interspersed 

with various levels of rural and urban development (MnDNR, 2009d). 

Vegetation cover was analyzed using vegetation cover types as defined by Minnesota 

Geographic Analysis Program (GAP) Level 4 land cover data. Table 3.7-1 summarizes 

the vegetation cover types for the four Route Alternatives; the primary cover types are 

individually identified. More detailed data about the vegetation cover types are 

included in Appendix F. 

Table 3.7-1: Vegetation Cover Types within the Route Alternatives 

Route Alternative 

1 

Route Alternative 

2 

Route Alternative 

3 

Route Alternative 

4 

Cover Type 

Acres Percent 

of Route 

Acres Percent 

of Route 

Acres Percent 

of Route 

Acres Percent 

of Route 

Aspen/White Birch 1,956 23.4 1,696 20.8 3,931 27.8 1,748 22.6 

Broadleaf 

Sedge/Cattail 394 4.7 435 5.3 284 2.0 552 7.1 

Cropland 1,474 17.6 1,072 13.2 3,344 23.7 1,508 19.5 

Grassland 82 1.0 70 0.9 137 1.0 84 1.1 

Jack Pine 239 2.9 376 4.6 166 1.2 303 3.9 

Lowland Conifer 363 4.3 213 2.6 893 6.3 210 2.7 

Lowland ConiferDeciduous Mix 112 1.3 67 0.8 167 1.2 67 0.9 

Lowland Deciduous 291 3.5 273 3.4 384 2.7 253 3.3 

Lowland Shrub 1,016 12.1 980 12.0 1,392 9.9 985 12.7 

Sedge Meadow 157 1.9 100 1.2 134 0.9 197 2.5 

Upland Conifer 636 7.6 742 9.1 371 2.6 438 5.6 

Upland Deciduous 1,282 15.3 477 5.9 1,688 12.0 692 8.9 

Upland Shrub 267 3.2 853 10.5 758 5.4 497 6.4 

Urban/Developed 73 0.9 760 9.3 395 2.8 189 2.4 

Water 33 0.4 33 0.4 76 0.5 27 0.3 

Total 8,375 100 8,147 100 14,120 100 7,749 100 

Source: MnDNR, 2008e 

In addition to the major Route Alternatives described above, multiple Segment 

Alternatives for each of the major routes are also under consideration. Table 3.7-2 

identifies the Segment Alternatives for each Route Alternative and summarizes the 

vegetation cover types for the Segment Alternatives. More detailed information about 

the vegetation cover types is included in Appendix F. 
Bemidji – Grand Rapids Transmission Line Sept

Final EIS 

179 

3.7 Biological Resources 

Table 3.7-2: Vegetation Cover Type within the Segment Alternatives 

Segments and Associated Route Alternatives 

A B C D E F G H I J K L M N O P 

1 1 1,2 1 3 2 2 2 2 1, 2 1, 2 1 1, 2 1, 2 1, 2 1, 2 

Cover Type 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Aspen/White Birch 

469 

(24.4) 

465 

(35.8) 

281 

(51.7) 

122 

(19.6) 

263 

(20.2) 

23 

(12.8) 

18 

(8.8) 

8 

(4.2) 

8 

(10.4) 

0 

(0.0) 

99 

(13.5) 

135 

(42.6) 

104 

(33.4) 

111 

(23.6) 

156 

(44.3) 

24 

(37.5) 

Broadleaf Sedge/Cattail 

49 

(2.5) 

67 

(5.2) 

18 

(3.3) 

13 

(2.1) 

19 

(1.5) 

4 

(2.2) 

5 

(2.5) 

7 

(3.6) 

3 

(3.9) 

0 

(0.0) 

47 

(6.4) 

15 

(4.7) 

28 

(9.0) 

0 

(0.00) 

4 

(1.1) 

0 

(0.0) 

Cropland 

597 

(31.1) 

47 

(3.6) 

2 

(0.4) 

273 

(43.8) 

444 

(34.1) 

23 

(12.8) 

100 

(49.0) 

82 

(42.7) 

38 

(49.4) 

52 

(76.5) 

194 

(26.5) 

116 

(36.6) 

36 

(11.6) 

0 

(0.0) 

0 

(0.0) 

9 

(14.1) 

Grassland 

7 

(0.4) 

4 

(0.3) 

0 

(0.0) 

3 

(0.5) 

1 

(0.1) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

5 

(0.7) 

2 

(0.6) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Jack Pine 

39 

(2.0) 

96 

(7.4) 

13 

(2.4) 

4 

(0.6) 

6 

(0.5) 

15 

(8.3) 

32 

(15.7) 

12 

(6.3) 

0 

(0.0) 

0 

(0.0) 

131 

(17.9) 

0 

(0.0) 

51 

(16.4) 

27 

(5.7) 

0 

(0.0) 

12 

(18.8) 

Lowland Conifer 

19 

(1.0) 

21 

(1.6) 

45 

(8.3) 

1 

(0.2) 

56 

(4.3) 

3 

(1.7) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

21 

(2.9) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Lowland ConiferDeciduous mix 2 (0.1) 19 (1.5) 8 (1.5) 0 (0.0) 16 (1.2) 0 (0.0) 0 (0.0) 0 (0.0) 0 (0.0) 0 (0.0) 5 (0.7) 0 (0.0) 0 (0.0) 6 (1.3) 0 (0.0) 0 (0.0) Lowland Deciduous 

31 

(1.6) 

22 

(1.7) 

25 

(4.6) 

11 

(1.8) 

41 

(3.2) 

15 

(8.3) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

7 

(1.0) 

0 

(0.0) 

2 

(0.6) 

7 

(1.5) 

3 

(0.9) 

0 

(0.0) 

Lowland Shrub 

135 

(7.0) 

60 

(4.6) 

48 

(8.8) 

44 

(7.1) 

111 

(8.5) 

9 

(5.0) 

0 

(0.0) 

4 

(2.1) 

2 

(2.6) 

0 

(0.0) 

56 

(7.7) 

14 

(4.4) 

9 

(2.9) 

8 

(1.7) 

4 

(1.1) 

0 

(0.0) 

Sedge Meadow 

12 

(0.6) 

1 

(0.1) 

4 

(0.7) 

9 

(1.4) 

15 

(1.2) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

4 

(0.5) 

0 

(0.0) 

2 

(0.6) 

0 

(0.0) 

1 

(0.3) 

0 

(0.0) 

Upland Conifer 

39 

(2.0) 

75 

(5.8) 

59 

(10.9) 

14 

(2.2) 

128 

(9.8) 

33 

(18.3) 

17 

(8.3) 

21 

(10.9) 

0 

(0.0) 

0 

(0.0) 

26 

(3.6) 

0 

(0.0) 

7 

(2.3) 

67 

(14.2) 

56 

(15.9) 

3 

(4.7) 

Upland Deciduous 

444 

(23.1) 

380 

(29.2) 

31 

(5.7) 

92 

(14.8) 

126 

(9.7) 

4 

(2.2) 

3 

(1.5) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

13 

(1.8) 

29 

(9.1) 

50 

(16.1) 

222 

(47.1) 

112 

(31.8) 

1 

(1.6) 

Upland Shrub 

67 

(3.5) 

39 

(3.0) 

9 

(1.7) 

33 

(5.3) 

71 

(5.5) 

4 

(2.2) 

10 

(4.9) 

9 

(4.7) 

5 

(6.5) 

1 

(1.5) 

119 

(16.3) 

4 

(1.3) 

22 

(7.1) 

21 

(4.5) 

13 

(3.7) 

3 

(4.7) 

Urban/Developed 

12 

(0.6) 

1 

(0.1) 

0 

(0.0) 

4 

(0.6) 

4 

(0.3) 

47 

(26.1) 

19 

(9.3) 

49 

(25.5) 

21 

(27.3) 

15 

(22.1) 

5 

(0.7) 

2 

(0.6) 

0 

(0.0) 

2 

(0.4) 

3 

(0.9) 

12 

(18.8) 

Water 

0 

(0.0) 

3 

(0.2) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Total 

1,922 

(100) 

1,300 

(100) 

543 

(100) 

623 

(100) 

1,301 

(100) 

180 

(100) 

204 

(100) 

192 

(100) 

77 

(100) 

68 

(100) 

732 

(100) 

317 

(100) 

311 

(100) 

471 

(100) 

352 

(100) 

64 

(100) 

Source: MnDNR, 2008e 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

180 

3.7 Biological Resources 

Route Alternative 1 

The dominant cover types in Route Alternative 1 are aspen/white birch forest 

(approximately 2,000 acres or 23 percent) and cropland (approximately 1,500 acres or 18 

percent). Other prominent cover types include upland deciduous forest and lowland 

deciduous shrub (each comprising approximately 1,000 acres or 11 percent of the route). 

Many other cover types comprise less than 5 percent of the alternatives, including 

broadleaf sedge/cattail, lowland deciduous and conifer forests, and Jack Pine. 

Cover types for the Segment Alternatives associated with Route Alternative 1 (A, B, C, 

D, J, K, L, M, N, O, P, and Q) are also dominated by aspen/birch forests, croplands, and 

other upland deciduous species, including maple/basswood stand. They generally have 

a similar vegetative structure to Route Alternative 1, with the following exceptions: 

• Segment Alternatives C, N, and O contain very little cropland (0 to 4 percent) but 

contain relatively greater upland conifer stands (10 to 16 percent). 

• Segment Alternatives K and P contain relatively greater upland shrub 

communities at the expense of upland deciduous forests. 

• Segment Alternative K also contains approximately 131 acres (18 percent) of Jack 

Pine forest, and is the only Segment Alternative associated with Route 

Alternative 1 that contains more than 100 acres of that cover. 

• Segment Alternative J is the only segment that does not contain an aspen/birch 

community. It is dominated by cropland (52 acres or 77 percent) and 

urban/developed areas (15 acres or 22 percent). 

Route Alternative 1 and Segment Alternatives B, C, D, N, and O cross the Welsh Lake 

and Bowstring State Forests, and the Bemidji Slough Wildlife Management Area 

(WMA). The Hole-in-the-Bog Scientific and Natural Area (SNA) is approximately 600 

feet south of the southern border of this Route Alternative. 

Route Alternative 1 also crosses the Ten Section management area east of the city of Cass 

Lake. The Ten Section Area is considered a unique biological area by the CNF for old 

growth red and white pine stands. Activities within this area are managed to maintain 

existing old growth forest conditions (USDA, 2004). The Ten Section area is also an 

important spiritual and traditional gathering area to the members of the LLBO (LLBO, 

2008b). While the boundary of the Ten Section management area is defined by the CNF, 

the LLBO has indicated that use of this area for spiritual and traditional gathering 

activities extends beyond the Ten Section management area boundary. For further 

discussion about use of the Study Area by the LLBO, refer to Section 3.9, Cultural 

Resources, and 3.12, Environmental Justice. 

None of the Segment Alternatives would cross the Ten Section Area and Segment 

Alternative B would relocate Route Alternative 2 around the Ten Section Area. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

181 

3.7 Biological Resources 

Route Alternative 2 

Similar to Route Alternative 1, aspen/white birch forest is the dominant vegetation 

cover type along Route Alternative 2, (approximately 1,700 acres or 21 percent of the 

route), followed by cropland (approximately 1,100 acres or 13 percent of the route), 

lowland shrub (approximately 1,000 acres or 12 percent of the route), and upland shrub 

(approximately 850 acres or 11 percent of the route). Many other cover types comprise 

less than 5 percent of the routes, including upland and lowland conifers, broadleaf 

sedge/cattail, and lowland deciduous forest. 

The dominant cover types for the Segment Alternatives associated with Route 

Alternative 2 (C, F, G, H, I, J, K, M, N, O, P, and Q) are similar to the dominant cover 

types along Route Alternative 2 (aspen/birch and cropland). However, lowland shrub 

does not occur on any of the associated Segment Alternatives, and upland shrub 

communities are limited to Segment Alternatives K and P. Segment Alternatives C, M, 

N, and O contain large tracts of upland conifer and deciduous forests. Segment 

Alternatives G, H, and J contain relatively little aspen/birch (less than 10 percent each). 

Segment Alternatives H and J are dominated by cropland and urban development, 

while Segment Alternative G is primarily cropland and Jack Pine forest. 

Route Alternative 2 and Segment Alternatives B, C, N, and O cross the Bowstring State 

Forest, and the Hole-in-the-Bog SNA is approximately 0.5 mile south of this Route 

Alternative. However, there are no State-designated SNAs or WMAs within the Study 

Area for this Route Alternative or any of the associated Segment Alternatives. 

Route Alternative 3 

As with Route Alternatives 1 and 2, aspen/white birch forest (approximately 4,000 acres 

or 28 percent of the route) and cropland (approximately 3,300 acres or 24 percent of the 

route) are the dominant vegetation cover types along Route Alternative 3. Other 

prominent cover types include upland deciduous forest and lowland shrub, which 

comprise approximately 1,700 acres (12 percent of the route) and 1,400 acres (10 percent 

of the route), respectively. Many other cover types comprise less than 5 percent of the 

route, including upland conifer, broadleaf sedge/cattail, and lowland deciduous and 

conifer forests. Cover types along Segment Alternatives E, R, S, and T are similar, 

although cropland is a major cover type along Segment Alternatives R, S, and T. 

Route Alternative 3 crosses the Bemidji Slough WMA, Buena Vista, Blackduck, Big 

Fork, and Bowstring State Forests and Segment Alternative E crosses Bowstring State 

Forest. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

182 

3.7 Biological Resources 

Route Alternative 4 

Similar to the other Route Alternatives, aspen/white birch forest (approximately 1,748 

acres or 23 percent of the route) comprises the dominant vegetation cover type along 

Route Alternative 4. Other prominent vegetation cover types include cropland (1,508 

acres or 20 percent of the route) and lowland shrub (985 acres or 13 percent of the 

route). Many other cover types comprise approximately 5 percent of the route, 

including lowland conifers, broadleaf sedge/cattail, and lowland deciduous forest. 

Route Alternative 4 incorporates Segment Alternatives F and K. Vegetative cover 

within these segments is included in the amounts provided for Route Alternative 4. 

Route Alternative 4 crosses the Bowstring State Forest and Bemidji Slough WMA. 

The Hole-in-the-Bog SNA is approximately 0.5 miles south of the southern border of 

this Route Alternative. Route Alternative 4 crosses the northern boundary of a DNRdesignated old growth forest that is located west of Portage Lake. In this location, 

Route Alternative 4 is aligned south of U.S. Highway 2 and the Enbridge pipeline, 

while Route Alternative 2 is aligned north of U.S. Highway 2 and the Enbridge 

pipeline. 

 

Leech Lake Reservation 

Sections of each of the Route Alternatives lie within the LLR, although the portion of 

Route Alternative 3 within the LLR is small (36 acres or less than 1 percent of the route). 

Within the LLR, the dominant vegetation cover type for all Route Alternatives is 

aspen/white birch (Table 3.7-3). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

183 

3.7 Biological Resources 

Table 3.7-3: Vegetative Cover Types within the Route Alternatives within the LLR 

Route Alternative 

1 

Route Alternative 

2 

Route Alternative 

3 

Route Alternative 

4 

Cover Type 

Acres Percent 

of Route 

Acres Percent 

of Route 

Acres Percent 

of Route 

Acres Percent 

of Route 

Aspen/White Birch 1,351 25.5 1,358 25.9 0 0 1,186 27.3 

Broadleaf 

Sedge/Cattail 229 4.3 285 5.5 0 0 342 7.9 

Cropland 376 7.1 344 6.6 0.3 0.8 277 6.4 

Grassland 26 0.5 40 0.8 0 0 20 0.5 

Jack Pine 145 2.8 184 3.5 0 0 137 3.2 

Lowland Conifer 303 5.7 191 3.6 0.2 0.5 177 4.1 

Lowland ConiferDeciduous Mix 98 1.9 51 0.9 8 21.7 51 1.2 

Lowland Deciduous 219 4.2 157 3.0 12 33.0 169 3.9 

Lowland Shrub 781 14.8 753 14.4 8 22.0 738 17.0 

Sedge Meadow 99 1.9 44 0.9 0 0 88 2.0 

Upland Conifer 576 10.9 618 11.8 0 0 366 8.4 

Upland Deciduous 921 17.4 326 6.2 8 22.0 363 8.4 

Upland Shrub 130 2.5 575 11.0 <0.1 0.02 307 7.1 

Urban/Developed 6 0.1 273 5.2 <0.1 0.02 101 2.3 

Water 31 0.6 33 0.6 0 0 25 0.6 

Total 5,291 100 5,232 100 36 100 4,347 100 

Source: MnDNR, 2008e 

The sections of Route Alternative 1 that are within the LLR also contain high amounts of 

lowland shrub (781 acres or 15 percent) and upland conifer and deciduous forest (576 

acres or 11 percent, and 921 acres or 17 percent, respectively), with smaller quantities of 

many other cover types. Route Alternative 2 is similar in that the dominant vegetation 

cover types are aspen/white birch and lowland shrub; although upland shrub replaces 

the upland conifer and deciduous forests as the other dominant cover type. The 35-acre 

portion of Route Alternative 3 within the LLR does not contain aspen/white birch, but is 

dominated by a series of lowland communities including lowland conifer-deciduous 

mix (8 acres or 22 percent), lowland deciduous forest (12 acres or 33 percent), and 

lowland shrub (8 acres or 22 percent). Small quantities of upland deciduous forest, 

shrub, and urban land are interspersed throughout for a total of approximately 8 acres. 

Route Alternative 4 also contains aspen/white birch as the dominant vegetation type 

(1,186 acres or 27 percent). The Route Alternative also contains high amounts of 

lowland shrub vegetation (738 acres or 17 percent). 

Route Alternatives 1, 2, and 4 cross the Ten Section management area and Guthrie Till 

Plain east of the City of Cass Lake, which are considered important spiritual and 

traditional gathering areas within the LLR (LLBO, 2008b). Route Alternative 1 crosses 

the southern portion of the Ten Section Management Area, which is considered a 

higher value to the LLBO, while Route Alternatives 2 and 4 cross the northern portion 

of the area. The Ten Section Area is managed by the CNF to maintain old growth red 

and white pine stands (USFS, 2004) which contain plant and animal species significant to 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

184 

3.7 Biological Resources 

the LLBO; however, spiritual and traditional gathering practices extend beyond the CNF 

management area boundary. The northern hardwood forests of the Guthrie Till Plain 

are also provides plant and animal species of tribal significance (LLBO, 2008b). The 

Guthrie Till Plain is located along the north shore of Leech Lake (south of Highway 2) in 

the southwest corner of the LLR. For further discussion of use of the Study Area by the 

LLBO, refer to Section 3.9, Cultural Resources, and 3.12, Environmental Justice. 

Twelve (B, C, D, E, F, K, L, M, N, O, P, and Q) of the 20 Segment Alternatives cross the 

Leech Lake Reservation and, with the exception of Segment Alternative D, the dominant 

cover type is aspen/white birch (Table 3.7-4). Upland deciduous and conifer forests and 

croplands are also common to the majority of the Segment Alternatives. Other 

prominent vegetative communities are Jack Pine (Segment Alternatives K and M), 

lowland deciduous or shrub (Segment Alternatives E, P, and Q), upland shrub (Segment 

Alternatives K and Q), urban (Segment Alternative F), and broadleaf sedge/cattail 

(Segment Alternative P). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

185 

3.7 Biological Resources 

Table 3.7-4: Vegetation Cover Type within the Segment Alternatives within the LLR 

Segments and Associated Route Alternatives 

B C D E F K L M N O P Q 

1 1, 2 1 3 2 1, 2 1 1, 2 1, 2 1, 2 1, 2 1, 2 Cover Type Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Aspen/White 

Birch 

464 

(36.1) 

265 

(54.0) 

0 

(0.0) 

221 

(19.0) 

23 

(12.8) 

44 

(15.4) 

92 

(42.8) 

104 

(33.3) 

111 

(23.6) 

156 

(43.9) 

52 

(21.8) 

9 

(17.3) 

Broadleaf 

Sedge/Cattail 

57 

(4.4) 

7 

(1.4) 

13 

(2.4) 

19 

(1.6) 

4 

(2.2) 

0 

(0.0) 

0 

(0.0) 

29 

(9.3) 

0 

(0.0) 

4 

(1.1) 

27 

(11.3 

0 

(0.0) 

Cropland 

47 

(3.7) 

2 

(0.4) 

236 

(42.7) 

384 

(33.0) 

23 

(12.8) 

60 

(21.0) 

65 

(30.2) 

36 

(11.5) 

0 

(0.0) 

0 

(0.0) 

17 

(17.1) 

14 

(26.9) 

Grassland 

4 

(0.3) 

0 

(0.0) 

3 

(0.5) 

0 

(0.0) 

0 

(0.0) 

1 

(0.3) 

1 

(0.5) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

2 

(0.8) 

0 

(0.0) 

Jack Pine 

96 

(7.5) 

13 

(2.6) 

4 

(0.7) 

6 

(0.5) 

15 

(8.4) 

41 

(14.3) 

0 

(0.0) 

51 

(16.3) 

27 

(5.7) 

0 

(0.0) 

15 

(6.3) 

0 

(0.0) 

Lowland Conifer 

21 

(1.6) 

43 

(8.8) 

0 

(0.0) 

56 

(4.8) 

3 

(1.7) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

5 

(2.1) 

0 

(0.0) 

Lowland ConiferDeciduous mix 

19 

(1.5) 

8 

(1.6) 

0 

(0.0) 

16 

(1.4) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

6 

(1.3) 

0 

(0.0) 

0 

(0.0) 

1 

(1.9) 

Lowland 

Deciduous 

22 

(1.7) 

25 

(5.1) 

11 

(2.0) 

39 

(15.0) 

15 

(8.4) 

0 

(0.0) 

0 

(0.0) 

2 

(0.6) 

7 

(1.5) 

3 

(0.8) 

3 

(1.3) 

6 

(11.5) 

Lowland Shrub 

60 

(4.7) 

41 

(8.4) 

44 

(8.0) 

110 

(9.5) 

9 

(5.0) 

21 

(7.3) 

14 

(6.5) 

9 

(2.9) 

8 

(1.7) 

4 

(1.1) 

32 

(13.4) 

0 

(0.0) 

Sedge Meadow 

1 

(0.1) 

1 

(0.2) 

6 

(1.1) 

15 

(1.3) 

0 

(0.0) 

4 

(1.4) 

0 

(0.0) 

2 

(0.6) 

0 

(0.0) 

1 

(0.3) 

19 

(8.0) 

2 

(3.8) 

Upland Conifer 

75 

(5.8) 

54 

(11.0) 

112 

(20.3) 

123 

(10.6) 

33 

(18.4) 

48 

(16.8) 

15 

(7.0) 

7 

(2.2) 

67 

(14.3) 

59 

(16.6) 

9 

(3.8) 

2 

(3.8) 

Upland 

Deciduous 

376 

(29.3) 

31 

(6.3) 

90 

(16.3) 

110 

(9.5) 

4 

(2.2) 

3 

(1.0) 

26 

(12.1) 

50 

(16.0) 

222 

(47.2) 

112 

(31.5) 

11 

(4.6) 

18 

(34.6) 

Upland Shrub 

39 

(3.0) 

1 

(0.2) 

30 

(5.4) 

61 

(5.2) 

4 

(2.2) 

57 

(19.9) 

1 

(0.5) 

22 

(7.1) 

21 

(4.5) 

13 

(3.7) 

27 

(11.3) 

0 

(0.0) 

Urban/Developed 

1 

(0.1) 

0 

(0.0) 

4 

(0.7) 

2 

(0.2) 

46 

(25.7) 

4 

(1.4) 

1 

(0.5) 

0 

(0.0) 

1 

(0.2) 

3 

(0.8) 

19 

(8.0) 

0 

(0.0) 

Water 

3 

(0.2) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

3 

(1.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Total

1,285 

(100)

491 

(100)

553 

(100)

1,162 

(100)

179 

(100)

286 

(100)

215 

(100)

312 

(100)

470 

(100)

355 

(100)

238 

(100)

52 

(100)

Source: MnDNR, 2008e 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

186 

3.7 Biological Resources 

Chippewa National Forest 

Sections of each of the major Route Alternatives lie within the CNF. Within the CNF, 

the dominant vegetation cover type for all Route Alternatives is aspen/white birch 

(Table 3.7-5). 

Table 3.7-5: Vegetative Cover Types within the Route Alternatives within the CNF 

Route Alternative 

1 

Route Alternative 

2 

Route Alternative 

3 

Route Alternative 

4 

Cover Type 

Acres Percent 

of 

Route 

Acres Percent 

of 

Route 

Acres Percent 

of 

Route 

Acres Percent 

of 

Route 

Aspen/White Birch 1,202 27.7 1,143 28.6 2,657 36.1 1,117 31.2 

Broadleaf 

Sedge/Cattail 182 4.2 240 6.0 168 2.3 312 8.7 

Cropland 95 2.2 113 2.8 672 9.1 102 2.9 

Grassland 35 0.8 29 0.7 59 0.8 37 1.0 

Jack Pine 144 3.3 100 2.5 41 0.6 63 1.8 

Lowland Conifer 238 5.5 155 3.9 807 11.0 115 3.2 

Lowland ConiferDeciduous Mix 84 1.9 42 1.1 108 1.5 36 1.0 

Lowland Deciduous 176 4.1 110 2.8 222 3.0 121 3.4 

Lowland Shrub 669 15.4 659 16.5 909 12.4 621 17.3 

Sedge Meadow 54 1.2 35 0.9 52 0.7 75 2.1 

Upland Conifer 544 12.5 544 13.6 229 3.1 336 9.4 

Upland Deciduous 764 17.6 271 6.8 1,031 14.0 313 8.7 

Upland Shrub 120 2.8 429 10.7 268 3.6 255 7.1 

Urban/Developed 1 0.0 97 2.4 79 1.1 54 1.5 

Water 31 0.7 32 0.8 49 0.7 23 0.6 

Total 4,339 100 3,999 100 7,351 100 3,580 100 

Source: MnDNR, 2008e 

Notes: Includes all lands within the CNF boundary 

The sections of Route Alternative 1 within the CNF also contain moderate amounts of 

lowland shrub (669 acres or 15 percent) and upland conifer and deciduous forest (544 

acres or 13 percent, and 764 acres or 18 percent, respectively), with smaller quantities of 

many other cover types. Route Alternative 2 is similar in that the dominant vegetation 

cover types are aspen/white birch (1,143 acres or 29 percent), lowland shrub (659 acres 

or 17 percent), and upland conifer (544 acres or 14 percent); although upland shrub (429 

acres or 11 percent) replaces the upland deciduous forest as the other dominant cover 

type. Route Alternative 3 is also dominated by aspen/white birch (2,657 acres or 36 

percent), but includes lowland conifer (807 acres or 11 percent), lowland shrub (909 acres 

or 12 percent), and upland deciduous forest (1,031 acres or 14 percent). Route 

Alternative 4 also contains aspen/white birch as the dominant vegetation type (1,117 

acres or 31 percent). Other vegetation types dominant through Route Alternative 4 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

187 

3.7 Biological Resources 

include lowland shrub (621 acres or 17 percent) and upland conifer (336 acres or nine 

percent). 

Route Alternative 1 also crosses the Ten Section management area east of the City of 

Cass Lake. The Ten Section Area is considered a unique biological area by the CNF for 

old growth red and white pine stands. Activities within this area are managed to 

maintain existing old growth forest conditions (USDA, 2004). 

Ten (B, C, D, E, N, O, P, R, S, and T) of the 20 Segment Alternatives cross the CNF and 

the dominant cover type is aspen/white birch, with the exception of Segment 

Alternatives D, E, R, S, and T where cropland is the co-dominant or dominant vegetative 

cover, respectively (Table 3.7-6). Upland deciduous and conifer forests are also common 

to the majority of the Segment Alternatives. Other prominent vegetative communities 

are lowland shrub (Segment Alternatives E and P), upland shrub (Segment Alternative 

P), and broadleaf sedge/cattail (Segment Alternative P). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

188 

3.7 Biological Resources 

Table 3.7-6: Vegetation Cover Type within the Segment Alternatives within the CNF 

Segments and Associated Route Alternatives 

B C D E N O P R S T 

1 1, 2 1 3 1, 2 1, 2 1, 2 3 3 3 

Cover Type Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Aspen/White Birch 

210 

(27.9) 

281 

(51.7) 

37 

(33.3) 

236 

(20.3) 

111 

(23.6) 

156 

(43.9) 

24 

(37.5) 

3 

(2.7) 

0 

(0.0) 

18 

(24.7) 

Broadleaf 

Sedge/Cattail 

11 

(1.5) 

18 

(3.3) 

0 

(0.0) 

19 

(1.6) 

0 

(0.0) 

4 

(1.1) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Cropland 

13 

(1.7) 

2 

(0.4) 

33 

(29.7) 

398 

(34.2) 

0 

(0.0) 

0 

(0.0) 

9 

(14.1) 

60 

(54.5) 

8 

(100) 

30 

(41.1) 

Grassland 

1 

(0.1) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Jack Pine 

15 

(2.0) 

13 

(2.4) 

2 

(1.8) 

6 

(0.5) 

27 

(5.7) 

0 

(0.0) 

12 

(18.8) 

5 

(4.5) 

0 

(0.0) 

0 

(0.0) 

Lowland Conifer 

21 

(2.8) 

45 

(8.3) 

0 

(0.0) 

56 

(4.8) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

6 

(5.5) 

0 

(0.0) 

0 

(0.0) 

Lowland ConiferDeciduous mix 11 

(1.5) 

8 

(1.5) 

0 

(0.0) 

16 

(1.4) 

6 

(1.3) 

0 

(0.0) 

0 

(0.0) 

2 

(1.8) 

0 

(0.0) 

0 

(0.0) 

Lowland 

Deciduous 

18 

(2.4) 

25 

(4.6) 

0 

(0.0) 

41 

(3.5) 

7 

(1.5) 

3 

(0.8) 

0 

(0.0) 

2 

(1.8) 

0 

(0.0) 

8 

(11.0) 

Lowland Shrub 

32 

(4.2) 

48 

(8.8) 

11 

(9.9) 

109 

(9.4) 

8 

(1.7) 

4 

(1.1) 

0 

(0.0) 

8 

(7.3) 

0 

(0.0) 

0 

(0.0) 

Sedge Meadow 

0 

(0.0) 

4 

(0.7) 

0 

(0.0) 

15 

(1.3) 

0 

(0.0) 

1 

(0.3) 

0 

(0.0) 

2 

(1.8) 

0 

(0.0) 

0 

(0.0) 

Upland Conifer 

38 

(5.0) 

60 

(11.0) 

7 

(6.3) 

105 

(9.0) 

67 

(14.3) 

59 

(16.6) 

3 

(4.7) 

0 

(0.0) 

0 

(0.0) 

5 

(6.8) 

Upland Deciduous 

357 

(47.4) 

31 

(5.7) 

11 

(9.9) 

103 

(8.9) 

222 

(47.2) 

112 

(31.5) 

1 

(1.6) 

18 

(16.4) 

0 

(0.0) 

12 

(16.4) 

Upland Shrub 

25 

(3.3) 

9 

(1.7) 

10 

(9.0) 

57 

(4.9) 

21 

(4.5) 

13 

(3.7) 

3 

(4.7) 

1 

(0.9) 

0 

(0.0) 

0 

(0.0) 

Urban/Developed 

1 

(0.1) 

0 

(0.0) 

0 

(0.0) 

2 

(0.2) 

1 

(0.2) 

3 

(0.8) 

12 

(18.8) 

3 

(2.7) 

0 

(0.0) 

0 

(0.0) 

Water 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Total 753 

(100)

544 

(100)

111 

(100)

1,163 

(100)

470 

(100)

355 

(100)

64 

(100)

110 

(100) 

73 

(100) 

64 

(100) 

Source: MnDNR, 2008e 

Notes: Includes all lands within the CNF boundary. 

 

3.7.1.2. Noxious Weeds 

Noxious weeds are plants that are injurious to public health, the environment, public 

roads, crops, livestock, and other property (Minnesota Statues, section 18.77, subd. 8). 

Noxious weeds and other invasive plants are undesirable as are introduced species that 

could exclude and out-compete desirable native species, thereby decreasing overall 

species diversity. They primarily occur and spread through disturbed areas such as 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

189 

3.7 Biological Resources 

roadsides and rights-of-way where the removal of native plant communities has opened 

space for recolonization. Noxious weeds pose a threat to native plant communities and 

wildlife habitat, because they have few natural predators and can be aggressive 

competitors, allowing them to spread quickly and often outcompete the native plants 

upon which native wildlife depend. The Minnesota Noxious Weed Law (Minnesota 

Statutes, section 18.78) requires that noxious weeds be controlled or eradicated. The Law 

recognizes 11 primary noxious weeds (Minnesota Rules, part 1505.0730) that must be 

controlled or eradicated on all lands within the State; two restricted noxious weeds 

(Minnesota Rules, part 1505.0732) which cannot be imported, sold, or transported within 

the State; and 52 secondary noxious weeds (Minnesota Rules, part 1505.0740), which are 

not regulated by the State but are included in some County control programs. Overall, 

most of the noxious weeds in the areas traversed by the alternatives are widespread and 

common, but occur in scattered infestations in variable densities. 

Infestations of a primary noxious weed, leafy spurge, are known to occur near all the 

Route Alternatives, as it has been documented near Cohasset and Bena. Spotted 

knapweed, a secondary noxious weed, is also known to occur near all the Route 

Alternatives because it has been documented in clusters near the cities of Cass Lake and 

Bemidji (Otter Tail Power et al., 2008a). Table 3.7-7 lists the regulated primary, 

restricted, and secondary noxious weeds within the Study Area. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

190 

3.7 Biological Resources 

Table 3.7-7: Minnesota Primary and County-Selected Secondary Noxious Weeds 

Primary Noxious Weeds 

Scientific Common Regulatory List Habitat 

Alliaria petiolata Mustard, Garlic Minnesota 

Moist soil in forests, forest 

edges, and roadsides 

Cannabis sativa Hemp Minnesota Open fields, croplands 

Carduus acanthoides Thistle, plumeless Minnesota 

Roadsides, croplands, 

disturbed areas 

Carduus nutans Thistle, musk Minnesota 

Roadsides, croplands, 

disturbed areas 

Cirsium arvense Thistle, Canada Minnesota 

Roadsides, croplands, 

disturbed areas 

Cirsium vulgare Thistle, bull Minnesota 

Roadsides, croplands, 

disturbed areas 

Convolvulus arvensis Field bindweed Minnesota Croplands, hedgerows 

Euphorbia esula Spurge, leafy Minnesota 

Croplands, pastures, 

roadsides 

Lythrum salicaria Loosestrife, purple Minnesota Wetlands 

Sonchus arvensis Sowthistle, perennial Minnesota Croplands, disturbed areas 

Toxicodendron radicans Poison ivy Minnesota 

Disturbed areas, wetlands, 

shrublands, forests 

Restricted Noxious Weeds 

Rhamnus cathartica Common buckthorn Minnesota 

Young forest, forest 

clearings/edges, disturbed 

areas, hedgerows 

County-Selected Secondary Noxious Weeds 

Abutilon theophrasti Velvetleaf None, LLBO-identified 

Croplands, waste areas, 

pastures, roadsides, and 

fence rows 

Ambrosia artemisifolia Ragweed, common Cass 

Croplands, roadsides, 

grasslands 

Arctium minus Burdock Cass 

Roadsides, croplands, 

grasslands 

Artemisia absinthium Wormwood Cass 

Croplands, roadsides, waste 

areas 

Berteroa incana Hoary alyssum Beltrami, Cass, Hubbard 

Roadsides, croplands, 

grasslands 

Centaurea maculosa Spotted knapweed Beltrami, Cass, Hubbard 

Roadsides, croplands, 

grasslands 

Chrysanthemum leucanthemum Oxeye daisy Cass, Hubbard, Itasca 

Grasslands, roadsides, 

waste areas 

Hieracium aurantiacum Orange hawkweed Cass, Itasca Roadsides, grasslands 

Lychnis alba Cockle, white None, LLBO-identified 

Fields, waste areas, 

disturbed sites, roadsides, 

railroads 

Ranunculus acris Buttercup, tall Cass, Hubbard, Itasca Grasslands, croplands 

Tanacetum vulgare Tansey Beltrami, Cass, Itasca Croplands, moist pasture 

Xanthium pennsylvanicum Cocklebur, commen None, LLBO-identified 

Open fields, gardens, 

pastures, and waste areas 

Source: Otter Tail Power et al., 2008a; Minnesota Department of Agriculture, 2010. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

191 

3.7 Biological Resources 

Leech Lake Reservation 

Seven primary noxious weed species, nine secondary noxious weeds, and two LLBO 

invasive plant species of concern have been identified within the LLR and are listed in 

Table 3.7-8 (USDS, 2009). Bio-control methods of noxious weeds have been used on the 

LLR since 1995 (USDA, 2003) and recent bio-control projects have focused on control of 

purple loosestrife, spotted knapweed, and leafy spurge. Manual removal by timed 

ecological mowing or hand-pulling is also used to control seed production. Herbicides 

are primarily avoided as a management tool because of the traditional gathering of plant 

materials that occurs on the LLR. Herbicide use must be approved through a LLR 

permit from the LLDRM-Environmental Department. 

Plumeless thistle, garlic mustard, and common buckthorn are Early Detection Rapid 

Response (EDRR) species on the LLR, meaning that they are the targets of intensive 

management and eradication programs. Staff members from both the LLR and the CNF 

have worked cooperatively to address infestations of these weeds on adjacent lands. 

Table 3.7-8: Noxious Weeds Known to Occur within the LLR 

Type of Weed Common Name Scientific Name 

Garlic mustard Alliaria petiolata

Plumeless thistle Carduus acanthoides 

Spotted knapweed Centaurea biebersteinii; formerly C. maculosa

Canada thistle Cirsium arvense

Leafy spurge Euphorbia podperae; formerly E. esula

Purple loosestrife Lythrum salicaria

Primary Noxious Weeds 

Common buckthorn Rhamnus cathartica

Velvetleaf Abutilon theophrastic 

Hoary alyssum Berteroa incana

Oxeye daisy Chrysanthemum leucanthemum

Orange hawkweed Hieracium aurantiacum

Cockle, white Lychnis alba 

Common reed grass Phragmites australis–unclear if native or exotic 

Common tansy Tanacetum vulgare

Hybrid cattail Typha x glauca—hybrid of two native cattails that 

outcompetes its parents. 

Secondary Noxious Weeds

Cocklebur, common Xanthium pennsylvanicum 

LLBO Invasive Species St. Johnswort Hypericum perforatum 1

Wild Parsnip Pastinaca sativa 

Note: 1. These species do not occur on the Minnesota Noxious Weed list, but were identified as invasive species of 

concern by the LLBO. Wild parsnip is also a state-wide invasive species in Minnesota. 

Sources: USDS, 2009; LLDRM, 2009e 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

192 

3.7 Biological Resources 

Chippewa National Forest 

The U.S. Forest Service (USFS) has a list of noxious weeds that are being tracked within 

the CNF (Table 3.7-9). Purple loosestrife, a highly invasive aquatic plant, is a primary 

noxious weed that occurs in wetlands on the CNF. Other noxious weeds that are found 

on disturbed sites within the CNF are spotted knapweed, leafy spurge, hoary alyssum, 

Canada thistle, bull thistle, field bindweed, perennial sowthistle, and field sowthistle 

(CNF, 2008c). 

Plumeless thistle, garlic mustard, and common buckthorn are EDRR species in the CNF, 

meaning that they are the targets of intensive management and eradication programs. A 

total of 331 sites encompassing 515 total acres within the CNF contain infestations of 

non-native invasive plants, including noxious weeds, and have been proposed for 

treatment by a combination of manual, biological and chemical controls (CNF, 2008b). 

Proposed CNF treatment locations near the alternatives are as follows: 

• Proposed CNF treatment locations for spotted knapweed: an area along U.S. 

Highway 2 that separates Pike Bay and Cass Lake (Route Alternatives 2 and 4); 

an area along U.S. Highway 2 northeast of Lower Sucker Lake (Route 

Alternative 2); two areas along U.S. Highway 2 east of Bena (Route Alternative 

2); and an area along U.S. Highway 2 near the junction of the Mississippi River 

(Route Alternatives 1, 2, and 4). 

• Proposed CNF treatment locations for leafy spurge: two areas along U.S. 

Highway 2 east and west of Bena (Route Alternative 2) and an area along U.S. 

Highway 2 near the junction of the Mississippi River (Route Alternatives 1, 2, 

and 4). 

• Proposed CNF treatment location for buckthorn along MN Highway 6, north of 

Deer River (Route Alternative 3). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

193 

3.7 Biological Resources 

Table 3.7-9: Noxious Weeds Tracked within the CNF 

CNF Identified Noxious Weeds 

Scientific Common Status 

Centaurea maculosa Spotted knapweed Primary weed 

Euphorbia esula Leafy spurge Primary weed 

Lythrum salicaria Purple loosestrife Primary weed 

Rhamnus cathartica/frangula Buckthorn Primary weed 

Alliaria petiolata Garlic mustard Primary weed 

Berteroa incana Hoary alyssum Secondary weed 

Carduus acanthoides Plumeless thistle Secondary weed 

Tanacetum vulgare Common tansy Secondary weed 

Potamogeton crispus Curlyleaf pondweed Secondary weed 

Cirsium arvense Canada thistle Secondary weed 

Cirsium vulgare Bull thistle Secondary weed 

Convolvulus arvensis Field bindweed Secondary weed 

Sonchus arvensis, S. uliginosus Sowthistle Secondary weed 

Cenchrus longispinus Field sandspur Native noxious weed 

Toxicodendron radicans Poison ivy Native noxious weed 

Phragmites australis Common reed Monitored noxious weed 

Typha angustifolia Narrow-leaved cattail Monitored noxious weed 

Melilotus alba/officinalis White/yellow sweet clover Monitored (not official) 

Source: CNF, 2008c 

3.7.1.3. Fauna 

This discussion summarizes the habitat conditions and common wildlife species present 

within the 1,000-foot Route and Segment Alternatives. For a discussion about federal, 

state, and tribal species of concern, refer to Section 3.8, Species of Concern. Many 

wildlife species known to occur within the Study Area are considered important for 

traditional gathering practices by LLBO members, and are discussed in Section 3.9, 

Cultural Resources and Section 3.12, Environmental Justice. 

Route Alternatives 1, 2, 3, and 4 

Wildlife habitat along each of the 1,000-foot Route and Segment Alternatives is similar in 

the general habitat conditions and common wildlife species that occur. The 1,000-foot 

Route Alternatives are dominated (approximately 50 to 70 percent) by upland deciduous 

forests, lowland deciduous shrublands, and grasslands/croplands. Specifically, 

aspen/white birch forests are the dominant habitat along Route Alternatives 1, 2, and 4

and the Segment Alternatives associated with them, with cropland, upland deciduous 

forests, and lowland deciduous shrublands (including scrub/shrub wetlands) also 

providing major habitat (approximately 10 to 20 percent) within each alternative. 

Habitat within Route Alternative 3 is also predominantly aspen/white birch 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

194 

3.7 Biological Resources 

communities (approximately 54 percent); however, croplands habitat is greater 

(approximately 25 percent) relative to Route Alternatives 1, 2, and 4. Less common 

habitats within all of the alternatives include upland and lowland conifer forests, 

lowland deciduous forests, and sedge/cattail communities. Refer to Section 3.7.1 for a 

detailed discussion about each habitat type within the Route and Segment Alternatives. 

These habitats provide forage, nesting, and breeding habitat for resident wildlife, as well 

as stopover habitat for migratory species. Resident species common to north-central 

Minnesota forests and grasslands include mammals such as voles, mice, rabbits, beaver, 

bobcat, coyote, gray wolf, white tailed deer, and black bear as well as numerous 

songbird species. Common wetland and open water species include snakes, turtles, 

toads, and frogs. 

Historic field surveys (USDS, 2009) have identified various warbler and raptor species as 

the most common wildlife within Route Alternatives 1, 2, and 4. Connecticut and goldwinged warblers, red-tailed hawks, and bald eagles were all observed within the Route 

Alternatives 1, 2, and 4 in the Study Area. Recent field surveys (Appendix G) along the 

Route Alternative 3 corridor identified 11 species, of which nine are birds (e.g., 

American bittern, bay-breasted warbler, black tern, black-backed woodpecker, 

Connecticut warbler, Le Conte’s sparrow, Sandhill crane, trumpeter swan, and yellow 

rail), one is a mammal (gray wolf), and one is a reptile (snapping turtle). LeConte’s 

sparrow and Connecticut warbler were the most commonly observed species during 

surveys along Route Alternative 3 and were commonly associated with lowland spruce 

forests and croplands, respectively. There are no documented gray wolf dens within 

the proposed Route Alternatives; however, gray wolves are generally known to occur 

within the Study Area (HDR, 2009). The presence of gray wolves in the Study Area is 

discussed further in Section 3.8. 

Several avian nesting locations have also been documented within the four Route 

Alternatives. One great blue heron rookery was documented near Portage Lake in the 

vicinity of Route Alternatives 1, 2, and 4 (NHIS, 2007). This rookery occurs within the 

CNF and LLR boundaries. In addition, NHIS and CNF records indicate multiple bald 

eagle nesting areas within or adjacent to each of the alternatives. The NHIS 

documented one bald eagle nesting site within Route Alternatives 1 and 3 and four 

bald eagle nesting sites within Route Alternatives 2 and 4. 

Field surveys identified one nest site within Route Alternative 1 and four nest sites 

within Route Alternatives 2 and 4 (Otter Tail Power et al., 2010a). No additional nest 

sites are known to occur within any of the Segment Alternatives. The CNF, LLDRM, 

and MnDNR have documented over 20 nest sites within one mile of all four Route 

Alternatives (Otter Tail Power et al., 2010a). 

The MnDNR designates WMAs throughout the State to provide protected habitat for 

game and nongame species, as well as to provide recreational opportunities for hunters 

and wildlife observers. The Bemidji Slough WMA, a 49-acre wetland complex created to 

protect local wetland resources, offers restricted hunting and is available for waterfowl 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

195 

3.7 Biological Resources 

and wildlife viewing (MnDNR, 2009a). This WMA is outside the borders of the CNF 

and LLR, but is located within Route Alternatives 1, 3, and 4. Segment Alternative J 

avoids the WMA, by allowing Route Alternative 1 to connect with Route Alternative 2. 

Leech Lake Reservation 

The LLR overlaps to a large extent within Route Alternatives 1, 2, and 4 and Segment 

Alternatives A, B, C, D, F, L, M, N, O, P, and Q and, therefore, also provides primarily 

forested habitat with interspersed shrubland and wetland areas. The majority of Route 

Alternative 3 is outside of the LLR (greater than 90 percent). However, habitat 

conditions within the LLR are dominated by black ash and lowland deciduous and 

coniferous-deciduous mixed forests. Within Segment Alternative E, black ash and 

lowland forest habitat give way to croplands. There are no WMAs within, or adjacent 

to, the Route Alternatives or Segment Alternatives within the LLR. 

Habitat conditions within the LLR are consistent with the general habitat conditions 

within the alternatives, as described above. Therefore, the common fauna within the 

LLR are expected to be similar to those species described above. Many of these species 

are important parts of the traditional gathering practices of the LLBO members, in 

particular, species occurring in and around the Ten Section management area as well as 

the northern hardwood forests within the LLR. 

Chippewa National Forest 

The CNF is crossed by all Route Alternatives and is managed for multiple uses, 

including wildlife habitat. There are no WMAs within, or adjacent to, the Route 

Alternatives or Segment Alternatives within CNF. More than 239 common bird species 

are known to occur within the forest, including greater than 100 breeding species (CNF, 

2008). Within the CNF, the alternatives are comprised of approximately 65 to 90 percent 

forested habitat with interspersed shrublands and wetlands. Route Alternative 3 and 

Segment Alternative E contain more cropland/grassland habitat than the other 

alternatives; however, forest cover remains the dominant habitat (approximately 63 

percent). The CNF also provides habitat for one of the largest breeding populations of 

bald eagles in the lower 48 states. Approximately 150 breeding pairs of bald eagles 

occur annually within the CNF. Bald eagle nesting sites within the CNF include large 

red and white pines, and occasionally aspen (USFS, 2008). Three non-native, invasive 

species occur within the CNF, the earthworm, faucet snail, and the rusty crayfish. It is 

unknown if these species occur within the Route or Segment Alternatives (USDS, 2009; 

MnDNR, 2009n). However, two (faucet snail and rusty crayfish) are aquatic species that 

would be avoided because no structures or temporary construction activities would 

occur in waterways within the Route and Segment Alternatives. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

196 

3.7 Biological Resources 

The USFS designates Lynx Analysis Units (LAUs) within the CNF that comprise 

landscape-scale analysis areas for lynx management and were developed in consultation 

with the U.S. Fish and Wildlife Service. The Route Alternatives intersect nine LAUs 

within the CNF: three along Route Alternative 1 (LAU 8, 10, and 15); two along Route 

Alternatives 2 and 4 (LAU 10 and 15); and six along Route Alternative 3 (LAU 3, 5, 6, 7, 

9, and 14). No additional LAUs are intersected by the Segment Alternatives; however, 

several LAUs along the main routes also intersect Segment Alternatives C (LAU 8) and E 

(LAU 14). 

Habitat conditions within the CNF are consistent with the general habitat conditions 

within the alternatives, as described above. Therefore, the common fauna within the 

CNF are expected to be similar to those species described above. 

3.7.2. Direct/Indirect Effects 

The following sections describe the potential direct and indirect effects of each of the 

alternatives on vegetation cover, from noxious weeds, and fauna. For purposes of 

comparison, impacts are calculated using a feasible 125-foot right-of-way (ROW). For 

purposes of this assessment, it is assumed that the Project would occupy the entire 125-

foot ROW. 

3.7.2.1. Vegetation Cover 

The primary long-term impact of the alternatives on vegetation is the long-term 

conversion of existing vegetation communities to managed grassland or shrubland 

within the transmission line ROW. Maintenance of these areas would preclude recovery 

of natural vegetation for the lifetime of the Project. The magnitude of impacts relates to 

the type of vegetation that would be converted. In general, conversion of unmanaged 

upland shrub and grassland communities to maintained ROWs is much less significant 

than the same conversion of forest communities because of the magnitude of the 

structural change that occurs. While the relative quality (low versus high) of the existing 

habitat does play a large role in the magnitude of the potential impacts, the loss of forest 

cover would generally be considered more significant than the conversion of shrub and 

grasslands to a maintained ROW. 

Based upon MnDNR Natural Heritage Information System (NHIS) and data available 

from the MnDNR Data Deli, no rare or sensitive vegetation communities occur within 

the Route or Segment Alternatives. The NHIS is a collection of databases that 

provides information on Minnesota's rare plants and animals, native plant 

communities, and other rare features. The NHIS is continually updated as new 

information becomes available. Data from the Minnesota County Biological Survey 

(MCBS) is a major source of information for the NHIS. MCBS is typically limited to 

coverage of public lands. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

197 

3.7 Biological Resources 

Field surveys, discussed in Appendix G, Biological Assessment and Evaluation, have 

been performed to further evaluate the presence of rare and sensitive vegetation 

communities on public lands in the Study Area. As discussed in the Biological 

Assessment and Evaluation, once the Route Alternative and transmission line 

alignment are chosen, suitable habitat for sensitive communities will be evaluated in 

advance of construction activities, and suitable habitat will be surveyed for sensitive 

species. Please refer to Appendix G for discussion of impacts to sensitive vegetation 

communities. Please refer to Section 3.15, Forestry, for impacts to specific forest 

resources. Route Alternatives 1, 2, and 4 cross two areas (the Ten Section area and 

Guthrie Till Plain) identified by the LLBO as culturally significant natural resource 

areas. Impacts to these areas are further discussed below. Refer to Section 3.9, Cultural 

Resources, and 3.12, Environmental Justice for additional discussions of natural 

resources as cultural resources. 

Tables 3.7-10 and 3.7-11 summarize the vegetation cover types within the feasible ROWs 

evaluated for each of the Route Alternative and Segment Alternative. More detailed 

data about the vegetation cover types are included in Appendix F. 

Route Alternatives 1, 2, and 4 would result in approximately 1,000 acres of impacts to 

native vegetation cover, while Route Alternative 3 would result in approximately 1,800 

acres of impacts to existing vegetation communities. Approximately 1.6 million acres 

of land are located within the boundaries of the CNF; approximately 660,000 acres of 

which are National Forest System lands. The CNF provides habitat for vegetative and 

wildlife communities within the Study Area. Approximately 680,000 acres of land are 

located within the Leech Lake Reservation (Indian Affairs Council, 2010; LLBO, 2010). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

198 

3.7 Biological Resources 

Table 3.7-10: Vegetation Cover Types within the Feasible 125-foot Right-of-Way 

Route Alternative 1 Route Alternative 2 Route Alternative 3 Route Alternative 4 

Cover Type 

Acres 

Percent 

of 

Route 

Acres 

Percent 

of 

Route 

Acres 

Percent 

of 

Route 

Acres 

Percent 

of 

Route 

Aspen/White Birch 249 23.8 199 19.5 430 24.5 262 24.6 

Broadleaf 

Sedge/Cattail 43 4.1 56 5.6 43 2.4 64 6.0 

Cropland 211 20.2 115 11.3 459 26.1 197 18.5 

Grassland 8 0.8 11 1.1 26 1.5 9 0.8 

Jack Pine 28 2.7 31 3.0 14 0.8 46 4.4 

Lowland Conifer 34 3.3 17 1.7 78 4.4 33 3.1 

Lowland ConiferDeciduous mix 7 0.6 6 0.6 12 0.7 13 1.2 

Lowland 

Deciduous 44 4.2 25 2.5 23 1.3 39 3.7 

Lowland Shrub 151 14.4 116 11.4 171 9.7 141 13.3 

Sedge Meadow 22 2.1 14 1.4 23 1.3 22 2.1 

Upland Conifer 59 5.6 109 10.7 31 1.8 81 7.6 

Upland Deciduous 159 15.2 45 4.4 224 12.8 101 9.5 

Upland Shrub 24 2.3 162 15.9 153 8.7 32 3.0 

Urban/Developed 8 0.8 111 10.8 70 4.0 21 1.9 

Water 1 0.1 1 0.1 2 0.1 3 0.3 

Total 1,048 100 1,018 100 1,759 100 1,064 100 

Source: MnDNR, 2008e 
Bemidji – Grand Rapids Transmission Line Sept

Final EIS 

199 

3.7 Biological Resources 

Table 3.7-11: Vegetation Cover Type within the Feasible 125-foot Segment Alternatives 

Segments and Associated Route Alternatives 

A B C D E F G H I J K L M N O P Q 

Cover Type 1 1 1, 2 1 3 2 2 2 2 1, 2 1, 2 1 1, 2 1, 2 1, 2 1, 2 1, 2 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acre

(%

Aspen/ White Birch 

36 

(15.0) 

63 

(38.2) 

37 

(56.1) 

9 

(11.0) 

25 

(15.6) 

3 

(14.3) 

0 

(0.0) 

2 

(7.7) 

2 

(16.7) 

0 

(0.0) 

13 

(14.0) 

17 

(40.5) 

14 

(17.0) 

15 

(26.3) 

22 

(53.7) 

1 

(16.7) 

0 

(0.0

Broadleaf Sedge/Cattail 

9 

(3.8) 

6 

(3.6) 

2 

(3.0) 

1 

(1.2) 

1 

(0.6) 

0 

(0.0) 

1 

(3.8) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

8 

(8.6) 

3 

(7.1) 

5 

(12.5) 

0 

(0.0) 

1 

(2.4) 

0 

(0.0) 

0 

(0.0

Cropland 

105 

(43.8) 

10 

(6.1) 

0 

(0.0) 

41 

(50.0) 

58 

(36.3) 

3 

(14.3) 

19 

(73.1) 

12 

(46.2) 

7 

(58.3) 

4 

(57.1) 

21 

(22.6) 

19 

(45.2) 

7 

(17.5) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

2 

(40.

Grassland 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

1 

(1.2) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0

Jack Pine 

2 

(0.8) 

9 

(5.5) 

2 

(3.0) 

0 

(0.0) 

1 

(0.6) 

3 

(14.3) 

2 

(7.7) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

23 

(24.7) 

0 

(0.0) 

5 

(12.5) 

5 

(8.8) 

0 

(0.0) 

1 

(16.7) 

0 

(0.0

Lowland Conifer 

2 

(0.8) 

3 

(1.8) 

6 

(9.1) 

0 

(0.0) 

1 

(0.6) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

2 

(2.2) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0

Lowland ConiferDeciduous mix 0 (0.0) 3 (1.8) 0 (0.0) 0 (0.0) 0 (0.0) 0 (0.0) 0 (0.0) 0 (0.0) 0 (0.0) 0 (0.0) 1 (1.1) 0 (0.0) 0 (0.0) 0 (0.0) 0 (0.0) 0 (0.0) 0 (0.0Lowland Deciduous 

0 

(0.0) 

2 

(1.2) 

5 

(7.6) 

1 

(1.2) 

2 

(1.3) 

2 

(9.5) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

2 

(2.2) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

1 

(20.

Lowland Shrub 

14 

(5.8) 

8 

(4.8) 

3 

(4.5) 

3 

(3.7) 

18 

(11.3) 

1 

(4.8) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

7 

(7.5) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0

Sedge Meadow 

3 

(1.3) 

0 

(0.0) 

0 

(0.0) 

1 

(1.2) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

1 

(1.1) 

0 

(0.0) 

1 

(2.5) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0

Upland Conifer 

2 

(0.8) 

10 

(6.1) 

6 

(9.1) 

2 

(2.4) 

25 

(15.6) 

5 

(23.8) 

2 

(7.7) 

3 

(11.5) 

0 

(0.0) 

0 

(0.0) 

5 

(5.4) 

0 

(0.0) 

0 

(0.0) 

6 

(10.5) 

5 

(12.2) 

1 

(16.7) 

0 

(0.0

Upland Deciduous 

53 

(22.1) 

41 

(24.8) 

4 

(6.1) 

12 

(14.6) 

15 

(9.4) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

3 

(3.2) 

3 

(7.1) 

3 

(7.5) 

25 

(43.9) 

12 

(29.3) 

0 

(0.0) 

2 

(40.

Upland Shrub 

12 

(5.0) 

8 

(4.8) 

1 

(1.5) 

10 

(12.2) 

13 

(8.1) 

0 

(0.0) 

1 

(3.8) 

2 

(7.7) 

1 

(8.3) 

0 

(0.0) 

7 

(7.5) 

0 

(0.0) 

5 

(12.5) 

6 

(10.5) 

1 

(2.4) 

1 

(16.7) 

0 

(0.0

Urban/Developed 

2 

(0.8) 

1 

(0.6) 

0 

(0.0) 

1 

(1.2) 

1 

(0.6) 

4 

(19.0) 

1 

(3.8) 

7 

(26.9) 

2 

(16.7) 

3 

(42.9) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

1 

(16.7) 

0 

(0.0

Water 

0 

(0.0) 

1 

(0.6) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0

Total

240 

(100)

165 

(100)

66 

(100)

82 

(100)

160 

(100)

21 

(100)

26 

(100)

26 

(100)

12 

(100)

7 

(100)

93 

(100)

42 

(100)

40 

(100)

57 

(100)

41 

(100)

5 

(100) 

5 

(100

Source: MnDNR, 2008e 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

200 

3.7 Biological Resources 

No-Build Alternative 

The No-Build Alternative would result in no change to the existing environment and, as 

a result, no short- or long-term changes to vegetation cover would occur. The Project 

would not be constructed and no clearing of vegetation would be required. 

Route Alternative 1 

Route Alternative 1 would primarily result in impacts to aspen/white birch, cropland, 

lowland deciduous shrublands, and upland deciduous forests, together accounting for 

approximately 770 acres, or 73 percent of the vegetation cover within the feasible 

alignment evaluated. This alternative would also have minor impacts to other cover 

types. However, the impacts to these additional cover types are each less than 5 percent 

of the feasible alignment evaluated. Route Alternative 1 would generally impact the 

same cover types as the other Route Alternatives, with the following exceptions: 

• Route Alternative 1 would have greater impacts to upland deciduous 

communities (including sugar maple/basswood stands) than Route Alternative 

2. However, impacts to upland deciduous communities are expected to be 

limited to 159 acres or 15 percent of the ROW. 

• Route Alternative 1 would have less impact on urban/developed areas (8 acres) 

than either Route Alternatives 2 or 3 (111 acres and 70 acres, respectively). 

• Route Alternative 1 would have less impact on upland shrub (24 acres) than 

Route Alternatives 2 or 3 (162 acres and 153 acres, respectively). 

• Route Alternative 1 would cross the Ten Section Area and Guthrie Till Plain 

potentially affecting the old growth stands within these areas. These areas and 

the surrounding habitat are of particular importance to the LLBO for spiritual 

and traditional gathering practices. 

Impacts to vegetative communities from all Segment Alternatives associated with Route 

Alternative 1 would be similar (a difference of less than 20 acres) to Route Alternative 1, 

with the following exceptions: 

• Segment Alternative B would avoid the Ten Section management area as defined 

by the CNF. However, the lands surrounding the Ten Section management area 

are also important to the traditional spiritual and traditional gathering practices 

of the LLBO. Segment Alternative B would not avoid impacts to the areas 

immediately south of the Ten Section management area boundary. 

• Segment Alternative C would impact an additional 66 acres, the majority, 37 

acres, being aspen/white birch communities. 

• Segment Alternative K would impact approximately 23 acres of Jack Pine. This 

Segment Alternative includes more than two times the Jack Pine forest cover 

than any other Segment Alternative. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

201 

3.7 Biological Resources 

There are no Segment Alternatives that would completely avoid impacts to the Guthrie 

Till Plain relative to Route Alternative 1. Segment Alternatives A, B, D, K, L, M, N, and 

O all intersect a portion of the Guthrie Till Plain and are not likely to minimize impacts 

to this area relative to Route Alternative 1; however, Segment Alternatives N and O (in 

combination with a portion of Route Alternative 2) would reduce habitat fragmentation 

of along the eastern end of the Guthrie Till Plain. 

Route Alternative 2 

Similar to Route Alternative 1, Route Alternative 2 would primarily result in impacts to 

aspen/white birch, cropland, and lowland deciduous shrublands. This alternative 

would also have minor impacts on other cover types. However, the impacts to these 

additional cover types are each less than 5 percent of the feasible alignment evaluated. 

Route Alternative 2 would generally impact the same cover types as the other Route 

Alternatives, with the following exceptions: 

 

• Route Alternative 2 would have greater impacts to upland shrub and conifer 

communities relative to Route Alternatives 1 and 3. 

• Route Alternative 2 would have the greatest impact on urban/developed areas 

(111 acres) of any of the Route Alternatives (8 acres for Route Alternative 1 and 

70 acres for Route Alternative 3). 

• Route Alternative 2 would have the shortest length of new corridors (nonexisting ROWs) among the three route alternatives (2.6 miles). This represents 

approximately 3.8 percent of the Route Alternative. Construction of these new 

corridors would fragment existing habitat patches rather than expanding 

existing ROWs as would occur along the remainder of the Route Alternative. 

• Route Alternative 2 would reduce the project footprint within the Ten Section 

Area and Guthrie Till Plain relative to Route Alternative 1 due to its location 

along Highway 2, a pre-existing ROW. Route Alternative 2 passes along the 

northern boundary of the Ten Section Area and limits the impacts to the Guthrie 

Till Plain to an approximately 3 mile stretch immediately east of the Ten Section 

Area. In addition, representatives of the LLDRM have identified the eastern 

portions of the Ten Section Area and Guthrie Till Plain that would be crossed by 

Route Alternative 2 as an area of lesser tribal use for hunting/gathering and 

spiritual activities, compared to the areas of the Ten Section Area and Guthrie 

Till Plain that would be crossed by Route Alternative 1. 

Because vegetative communities from all associated Segment Alternatives are either 

similar to Route Alternative 2, or represent relatively small acreages, impacts to 

vegetative communities from all Segment Alternatives associated with Route 

Alternative 2 would be similar (a difference of less than 20 acres) to Route Alternative 2, 

with the following exceptions: 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

202 

3.7 Biological Resources 

• Segment Alternative C would impact an additional 66 acres, the majority, 37 

acres, being aspen/white birch communities. 

• Segment Alternative K would impact approximately 23 acres of Jack Pine. This 

Segment Alternative includes more than two times the Jack Pine forest cover 

than any other Segment Alternative. 

The eastern sections of the Ten Section Area and Guthrie Till Plain that would be crossed 

by Route Alternative 2 are developed with an existing ROW and are not as heavily used 

by members of the LLBO for hunting/gathering and spiritual activities as those portions 

of the Ten Section Area and Guthrie Till Plain that would be crossed by Route 

Alternative 1. There are no Segment Alternatives associated with Route Alternative 2 

that have been developed to avoid the Ten Section Area or Guthrie Till Plain. 

 

Route Alternative 3 

Route Alternative 3 is the longest route alternative and, due to its length, would result in 

the greatest total disturbance. However, because of the increased length, the relative 

potential impacts along the feasible alignment would be nearly double compared to 

Route Alternatives 1 and 2. Similar to Route Alternatives 1 and 2, approximately onequarter of the impacts within the ROW would be aspen/white birch communities and 

an additional one-quarter would be cropland. In addition, upland deciduous forest 

impacts would also be greater relative to Route Alternatives 1 and 2. Impacts to 

vegetative communities from Segment Alternatives E, R, S, and T would be similar to 

Route Alternative 3. The new corridors (non-existing ROWs) within Route Alternative 3 

would be similar to Route Alternative 1 (5.1 miles, or 4.4 percent of the entire route). 

Construction of these new corridors in forested areas would fragment existing forest 

patches rather than expanding existing ROWs as would occur along the remainder of 

the Route Alternative. Within forested areas, the new corridors would create edge 

habitat and migratory pathways through previously intact forest interiors. This 

alternative does not cross the Ten Section area or Guthrie Till Plain. 

Route Alternative 4 

Route Alternative 4 is a combination of Route Alternatives 1 and 2 and incorporates 

Segment Alternatives F and K. As such, Route Alternative 4 would have impacts 

similar to those described for Route Alternatives 1 and 2. Primary impacts would 

occur to the aspen/white birch, cropland, and lowland shrub vegetation types. This 

alternative would also have minor impacts on other cover types. However, the 

impacts to these additional cover types range from 5 to 10 percent of the feasible 

ROW evaluated. Route Alternative 4 would generally impact the same cover types as 

the other Route Alternatives, with the following exceptions: 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

203 

3.7 Biological Resources 

• Route Alternative 4 would have greater impacts to aspen/white birch 

communities relative to Route Alternatives 1, 2, and 3. 

• Route Alternative 4 would have greater impacts to jack pine communities 

relative to Route Alternatives 1, 2, and 3. 

• Route Alternative 4 would have the highest acreage and percentage of water 

within the ROW, although water cover would account for only 0.3 percent of 

the ROW. 

• Route Alternative 4 would have the longest length of new corridors (nonexisting ROWs) among the three route alternatives (7.7 miles). Construction of 

these new corridors would fragment existing habitat patches rather than 

expanding existing ROWs as would occur along the remainder of the Route 

Alternative. 

Route Alternative 4 would cross the Ten Section and Guthrie Till Plain areas in a 

similar location as Route Alternative 2. The eastern sections of the Ten Section Area 

and Guthrie Till Plain that would be crossed by Route Alternatives 2 and 4 are 

developed with an existing ROW and are not as heavily used by members of the 

LLBO for hunting/gathering and spiritual activities as those portions of the Ten 

Section Area and Guthrie Till Plain that would be crossed by Route Alternative 1. 

Route Alternative 4 crosses the northern boundary of a DNR-designated old growth 

forest that is located west of Portage Lake. In this location, the feasible 125-foot ROW 

evaluated for Route Alternative 4 is aligned south of U.S. Highway 2 and the 

Enbridge pipeline, while the feasible 125-foot ROW evaluated for Route Alternative 2 

is aligned north of U.S. Highway 2 and the Enbridge pipeline. 

Leech Lake Reservation 

Tables 3.7-12 and 3.7-13 summarize the potential impacts to the vegetation communities 

within the LLR ROW for the Route Alternatives and Segment Alternatives. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

204 

3.7 Biological Resources 

Table 3.7-12: Vegetation Cover Types within the Feasible 125-foot Right-of-Way in the LLR 

Route Alternative 

1 

Route Alternative 

2 

Route Alternative 

3 

Route Alternative 

4 

Cover Type Acres Percent of 

Route Acres Percent of Route Acres Percent of Route Acres Percent of Route 

Aspen/White Birch 176 26.5 158 24.1 0 0 192 28.6

Broadleaf 

Sedge/Cattail 24 3.6 32 4.9 0 0 47 7.0

Cropland 55 8.3 32 4.9 0 0 44 6.5

Grassland 1 0.2 4 0.6 0 0 1 0.1

Jack Pine 19 2.9 13 2 0 0 20 3.1

Lowland Conifer 28 4.3 17 2.6 0 0 31 4.6

Lowland ConiferDeciduous mix 6 0.9 4 0.6 0 0 11 1.7

Lowland Deciduous 36 5.4 12 1.8 1 25 32 4.7

Lowland Shrub 120 18.1 89 13.6 3 75 113 16.9

Sedge Meadow 14 2.1 6 0.9 0 0 15 2.3

Upland Conifer 51 7.8 101 15.4 0 0 72 10.7

Upland Deciduous 118 17.9 31 4.8 0 0 62 9.3

Upland Shrub 14 2.1 109 16.6 0 0 16 2.3

Urban/Developed 1 0.2 47 7.1 0 0 13 2.0

Water 1 0.2 1 0.2 0 0 3 0.4

Total 664 100 656 100 4 100 672 100

Source: MnDNR, 2008e 

Route Alternatives 1, 2, and 4 would convert approximately 650 to 670 acres of native 

vegetation cover to a maintained ROW, while very little of Route Alternative 3 (4 acres 

of lowland communities) is within the LLR. Similar to the overall impacts, Route 

Alternative 1 would primarily impact aspen/white birch, lowland shrub, and upland 

deciduous forest while Route Alternative 2 would primarily impact aspen/white birch, 

upland and lowland shrub communities, and upland conifer forest. Route Alternative 4 

would primarily impact aspen/white birch, lowland shrub, and upland conifer 

communities. Route Alternative 1 would cross the center of the Ten Section 

management area and potentially affect the old growth forest stands, which have a 

cultural importance to the LLBO members. 

The main difference in Route Alternative impacts within the LLR is the relatively low 

acreage of cropland (55, 32, and 44 acres within Route Alternatives 1, 2, and 4, 

respectively, and none within Route Alternative 3). 

The affected vegetation cover types within the feasible ROWs evaluated for Segment 

Alternatives within the LLR are generally similar to the cover within the Route 

Alternatives. Impacts to vegetative communities for all Segment Alternatives located 

within the LLR would be similar (a difference of less than 20 acres) to Route Alternatives 

1, 2, 3, and 4 with the following exceptions: 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

205 

3.7 Biological Resources 

• Segment Alternative B would impact an additional 88 acres within the LLR 

compared to Route Alternative 1. The only cover type that would be impacted 

by more than 20 acres would be aspen/white birch. This Segment Alternative 

would avoid impacts to the Ten Section management area, but would still affect 

areas identified by the LLBO as important spiritual and traditional gathering 

areas adjacent to the CNF Ten Section management area boundary. 

• Segment Alternative C would impact an additional 47 acres, the majority, 37 

acres, being aspen/white birch communities. 

• Segment Alternative E would impact an additional 91 acres within the LLR than 

Route Alternative 3 impacts to the LLR. Most of the impacts would be to 

aspen/white birch and croplands. 

• Segment Alternatives N and O would reduce fragmentation impacts to portions 

of the Guthrie Till Plain by minimizing the potential habitat fragmentation 

relative to Route Alternative 1. There are no Segment Alternatives associated 

with Route Alternative 2 that would limit or avoid the intersection with the Ten 

Section area or Guthrie Till Plain. 

 
Bemidji – Grand Rapids Transmission Line Sept

Final EIS 

206 

3.7 Biological Resources 

Table 3.7-13: Vegetation Cover Types within the Feasible 125-foot Right-of-Way Segment Alternatives in the 

Segments and Associated Route Alternatives 

B C D E F K L M N O 

1 1, 2 1 3 2 1, 2 1 1, 2 1, 2 1, 2 

Cover Type Acres (%) Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Aspen/White Birch 

63 

(41.7) 

36 

(76.6) 

7 

(10.4) 

21 

(23.1) 

3 

(18.8) 

6 

(15.8) 

12 

(44.4) 

14 

(35.0) 

15 

(26.8) 

22 

(78.6) 

Broadleaf Sedge/Cattail 

6 

(4.0) 

0 

(0.0) 

1 

(1.5) 

0 

(0.0) 

0 

(0.0) 

8 

(21.1) 

3 

(11.1) 

5 

(12.5) 

0 

(0.0) 

1 

(3.6) 

Cropland 

10 

(6.6) 

0 

(0.0) 

33 

(49.3) 

51 

(56.0) 

0 

(0.0) 

9 

(23.7) 

9 

(33.3) 

7 

(17.5) 

0 

(0.0) 

0 

(0.0) 

Grassland 

0 

(0.0) 

0 

(0.0) 

1 

(1.5) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Jack Pine 

9 

(6.0) 

1 

(2.1) 

0 

(0.0) 

1 

(1.1) 

3 

(18.8) 

6 

(15.8) 

0 

(0.0) 

5 

(12.5) 

5 

(8.9) 

0 

(0.0) 

Lowland Conifer 

3 

(2.0) 

5 

(10.6) 

0 

(0.0) 

1 

(1.1) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Lowland Conifer-Deciduous mix 

3 

(2.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Lowland Deciduous 

2 

(1.3) 

0 

(0.0) 

1 

(1.5) 

0 

(0.0) 

2 

(12.5) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Lowland Shrub 

8 

(5.3) 

0 

(0.0) 

3 

(4.5) 

0 

(0.0) 

1 

(6.3) 

2 

(5.3) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Sedge Meadow 

0 

(0.0) 

0 

(0.0) 

1 

(1.5) 

0 

(0.0) 

0 

(0.0) 

1 

(2.6) 

0 

(0.0) 

1 

(2.5) 

0 

(0.0) 

0 

(0.0) 

Upland Conifer 

9 

(6.0) 

5 

(10.6) 

1 

(1.5) 

5 

(5.5) 

5 

(31.3) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

6 

(10.7) 

2 

(7.1) 

Upland Deciduous 

28 

(18.5) 

0 

(0.0) 

10 

(14.9) 

0 

(0.0) 

0 

(0.0) 

1 

(2.6) 

3 

(11.1) 

3 

(7.5) 

24 

(42.9) 

2 

(7.1) 

Upland Shrub 

8 

(5.3) 

0 

(0.0) 

9 

(13.4) 

12 

(13.2) 

0 

(0.0) 

5 

(13.2) 

0 

(0.0) 

5 

(12.5) 

6 

(10.7) 

1 

(3.6) 

Urban/Developed 

1 

(0.7) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

2 

(12.5) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Water 

1 

(0.7) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Total

151 

(100)

47 

(100)

67 

(100)

91 

(100)

16 

(100)

38 

(100)

27 

(100)

40 

(100)

56 

(100)

28 

(100)

Source: MnDNR, 2008e 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

207 

3.7 Biological Resources 

Chippewa National Forest 

Tables 3.7-14 and 3.7-15 summarize the potential impacts to the vegetation communities 

within the CNF ROW for the Project. 

Table 3.7-14: Vegetation Cover Types within the Feasible 125-foot Right-of-Way in the CNF 

Route Alternative 1 Route Alternative 2 Route Alternative 3 Route Alternative 4 

Cover Type 

Acres 

Percent 

of 

Route 

Acres 

Percent 

of 

Route 

Acres 

Percent 

of 

Route 

Acres 

Percent 

of 

Route 

Aspen/White Birch 158 29.1 137 27.6 304 33.0 184 33.4

Broadleaf 

Sedge/Cattail 18 3.3 27 5.4 30 3.3 35 6.4

Cropland 10 1.8 6 1.2 93 10.1 13 2.4

Grassland 4 0.7 4 0.8 11 1.2 4 0.7

Jack Pine 19 3.5 5 1.0 7 0.8 11 1.9

Lowland Conifer 22 4.1 12 2.4 72 7.8 25 4.6

Lowland ConiferDeciduous mix 6 1.1 4 0.8 8 0.9 11 2.0

Lowland 

Deciduous 32 5.9 6 1.2 19 2.1 27 4.9

Lowland Shrub 99 18.2 79 15.9 110 12.0 93 16.9

Sedge Meadow 7 1.3 5 1.0 12 1.3 10 1.8

Upland Conifer 50 9.2 87 17.5 14 1.5 68 12.3

Upland Deciduous 102 18.8 24 4.8 157 17.1 57 10.3

Upland Shrub 15 2.8 81 16.3 59 6.4 8 1.5

Urban/Developed 0 0.0 17 3.4 21 2.3 3 0.5

Water 1 0.2 1 0.2 1 0.1 3 0.5

Total 543 100 495 100 918 100 552 100

Source: MnDNR, 2008e 

Notes: Includes all lands within the CNF boundary. 

Similar to the previous discussion, the aspen/white birch community would have the 

most potential impact from all alternatives, followed generally by lowland shrub and 

upland deciduous forests along Route Alternatives 1 and 3, and upland conifer forests 

and upland shrub communities for Route Alternatives 2 and 4. 

The Project would result in a long-term conversion of forested habitat to managed 

shrublands within the 125 ROW; however, with the exception of aspen forests the CNF 

vegetation compositions objectives in the 2008 Forest Plan identify the need to increase 

the long-term distribution of upland forest communities within the CNF (USDA, 2008). 

The potential impacts of the Route Alternatives would impact less than 1 percent of each 

upland forest type within the CNF and would not jeopardize the long-term viability of 

any forest communities within the CNF or ability of the CNF to meet its vegetation 

management objectives. 

 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

208 

3.7 Biological Resources 

Table 3.7-15: Affected Vegetation Cover Types within the Feasible 125-foot Segment Alternatives in 

the CNF 

Segments and Associated Route Alternatives 

B C D E F N O P R S T 

1 1, 2 1 3 2 1, 2 1, 2 1, 2 3 3 3 Cover Type Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Acres 

(%) 

Aspen/White Birch 

33 

(34.0) 

37 

(57.8) 

1 

(50.0) 

24 

(16.9) 

3 

(23.1) 

15 

(26.3) 

22 

(53.7) 

3 

(10.3) 

0 

(0.0) 

0 

(0.0) 

3 

(30.0) 

Broadleaf 

Sedge/Cattail 

2 

(2.1) 

2 

(3.1) 

0 

(0.0) 

1 

(0.7) 

0 

(0.0) 

0 

(0.0) 

1 

(2.4) 

1 

(3.4) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Cropland 

2 

(2.1) 

0 

(0.0) 

0 

(0.0) 

51 

(35.9) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

1 

(3.4) 

5 

(71.4) 

1 

(100) 

3 

(30.0) 

Grassland 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Jack Pine 

2 

(2.1) 

1 

(1.6) 

0 

(0.0) 

1 

(0.7) 

3 

(23.1) 

5 

(8.8) 

0 

(0.0) 

2 

(6.9) 

1 

(14.3) 

0 

(0.0) 

0 

(0.0) 

Lowland Conifer 

3 

(3.1) 

5 

(7.8) 

0 

(0.0) 

1 

(0.7) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Lowland ConiferDeciduous mix 1 

(1.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Lowland 

Deciduous 

1 

(1.0) 

5 

(7.8) 

0 

(0.0) 

2 

(1.4) 

1 

(7.7) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

1 

(10.0) 

Lowland Shrub 

6 

(6.2) 

3 

(4.7) 

0 

(0.0) 

18 

(12.7) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

4 

(13.8) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Sedge Meadow 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

1 

(3.4) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Upland Conifer 

3 

(3.1) 

6 

(9.4) 

1 

(50.0) 

19 

(13.4) 

5 

(38.5) 

6 

(10.5) 

5 

(12.2) 

1 

(3.4) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Upland Deciduous 

39 

(40.2) 

4 

(6.3) 

0 

(0.0) 

13 

(9.2) 

0 

(0.0) 

25 

(43.9) 

12 

(29.3) 

1 

(3.4) 

1 

(14.3) 

0 

(0.0) 

3 

(30.0) 

Upland Shrub 

4 

(4.1) 

1 

(1.6) 

0 

(0.0) 

12 

(8.5) 

0 

(0.0) 

6 

(10.5) 

1 

(2.4) 

9 

(31.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Urban/Developed 

1 

(1.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

1 

(7.7) 

0 

(0.0) 

0 

(0.0) 

6 

(20.7) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Water 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

0 

(0.0) 

Total

97 

(100)

64 

(100)

2 

(100)

142 

(100)

13 

(100)

57 

(100)

41 

(100)

29 

(100)

7 

(100) 

1 

(100) 

10 

(100) 

Source: MnDNR, 2008e 

Notes: Includes all lands within the CNF boundary 

The affected vegetation cover types within the feasible ROWs evaluated for Segment 

Alternatives within the CNF are generally similar to the cover within the Route 

Alternatives. Impacts to vegetative communities for all Segment Alternatives located 

within the CNF would be similar (a difference of less than 20 acres) to Route 

Alternatives 1, 2, 3, and 4, with the exception of Segment Alternative C which would 

impact an additional 64 acres, the majority (37 acres) being aspen/white birch 

communities. Similar to the Route Alternatives, each Segment Alternative would affect 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

209 

3.7 Biological Resources 

less than 1 percent of the upland forest community types within the CNF and would not 

jeopardize the long-term viability of any forest communities within the CNF or 

ability of the CNF to meet its vegetation management objectives. 

Segment Alternatives R and T would impact an additional 3 to 7 acres within the CNF 

than Route Alternative 3. Most of the impacts would be to cropland and upland 

deciduous forest, although Segment Alternative R would also impact 1 acre of Jack 

Pine forest. 

3.7.2.2. Noxious Weeds 

Most non-native invasive plants in the Project Study Area occur in disturbed areas such 

as roadsides, utility corridors, and temporary roads. Introduction occurs through 

natural colonization of disturbed areas (quick-colonizing species), introducing topsoil, 

gravel, hay, and straw with an invasive species seedbank, or through transfer of the 

seeds via workers and construction equipment. The Project would result in the 

temporary disturbance of surface soils from site clearing, grading, and excavation 

activities at structure locations, pulling and tensioning sites, setup areas, and during the 

transport of crews, machinery, materials, and equipment over access routes (primarily 

along the transmission ROW). Construction of the Project is expected to disturb roughly 

1,000 acres of soil, depending upon the Route Alternative and Segment Alternative 

eventually selected. Due to the similarity in route lengths between Route Alternatives 

1, 2, and 4, the Route Alternatives would disturb the same amount of soils and 

vegetation within the ROW and have a similar potential for the spread of noxious 

weeds. Approximately 1,048 acres would be disturbed for the feasible ROW 

developed for Route Alternative 1; approximately 1,018 acres would be disturbed for 

Route Alternative 2; approximately 1,759 acres would be disturbed for Route 

Alternative 3; and approximately 1,064 acres would be disturbed for Route Alternative 

4 (see Table 3.7-10). Approximately 3 acres would undergo more long-term impacts 

because of the installation of pole structures. Areas with temporary and long-term soil 

disturbance would be the focal points for noxious weed control, as described in the 

alternatives section below. 

No-Build Alternative 

The No-Build Alternative would result in no change to the existing environment, 

because the Project would not be constructed. As a result, land disturbance and 

dispersal of seeds resulting in the potential establishment of noxious weeds would not 

occur. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

210 

3.7 Biological Resources 

Route Alternatives 1, 2, 3, and 4 

Construction of any of the alternatives could lead to the introduction or spread of 

noxious weeds in an area from ground disturbance, introduction of topsoil, gravel, hay, 

or straw that is contaminated with noxious weed seeds, and/or vehicles importing weed 

seed from a contaminated site to an uncontaminated site. The USFS has identified 515 

acres of the CNF for its non-native, invasive species management program. These areas 

are known locations of noxious weeds within the CNF, and several areas are within the 

Route Alternatives. Following work in these areas, the potential exists to spread noxious 

weeds to other areas by the methods described above. However, implementation of a 

noxious weed management program (as identified in Section 3.7.3) would mitigate the 

potential spread of these species. The use of herbicides is currently restricted and 

requires a permit within the LLR; therefore, the preferred methods of weed control are 

manual removal via pulling or mowing. 

Leech Lake Reservation 

Noxious weeds are known to occur throughout the LLR and directly affect tribal 

residents who gather native plant materials for both traditional uses and to earn a living 

(for a further discussion of LLBO member’s use of native vegetation and wildlife, refer 

to Section 3.9, Cultural Resources, and Section 3.12, Environmental Justice). Noxious 

weeds are often fast-growing and introduction to previously uncontaminated sites along 

the Route and Segment Alternatives would potentially lead to competitive exclusion of 

native species within the LLR. Control programs are ongoing throughout the 

reservation; however, the use of herbicides is regulated and requires a permit from the 

LLDRM. Therefore, the preferred methods of weed control are manual removal via 

pulling or mowing. 

Chippewa National Forest 

Noxious weeds are known to occur throughout the CNF and three CNF proposed 

noxious weeds treatment locations lie within the vicinity of the alternatives (see the 

affected environment section, above). 

3.7.2.3. Fauna 

Potential wildlife impacts from the Project include the direct or indirect loss or 

conversion of habitats, increased habitat fragmentation, and the potential risk of avian 

collisions with transmission conductors and equipment. The Project would expand the 

existing ROWs or create new ROWs that would convert woodlands to maintained 

grass/shrub. Species that rely upon forested habitat would generally be displaced in 

favor of grass, shrubland, and forest- adapted species. The creation of new ROW 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

211 

3.7 Biological Resources 

corridors within the forested portions of each route alternatives would replace 

contiguous forest habitat with edge habitat and potentially provide new foraging 

corridors for predatory species while impacts along the existing ROWs would expand 

the existing edge effects further from the existing ROW. Route Alternative 4 would 

result in approximately 7.7 miles of new corridors. Route Alternatives 1 and 3 would 

each result in approximately 5 miles of new corridors (5.2 and 5.1, respectively), while 

Route Alternative 2 would have the least (2.6 miles). Overall, the Route Alternatives 

would convert approximately 430 to 815 acres (Route Alternatives 2 and 3, respectively) 

of woodland to grasslands and shrublands. 

Electrocution occurs when an arc is created between energized lines or an energized 

line and grounded tower equipment. Electrocution occurs more frequently with 

distribution lines than transmission lines because the conductors are often closer 

together or closer to grounded hardware on distribution lines (HDR, 2010b). In 

general, electrocution risk is higher for open landscapes that attract more raptor use, 

including grassland and shrub land; forested habitats provide more natural perches 

and generally have a lower risk of electrocution (APLIC, 2006 as cited in HDR, 2010b). 

Table 3.7-10 displays vegetation cover types within the feasible 125-foot ROWs 

developed for each Route Alternative. Due to its length, the ROW for Route 

Alternative 3 would contain the highest amount of crop, grass, and shrub land with 

439 total acres. Route Alternative 2 would contain the second highest amount of crop, 

grass, and shrub land with a combined total of 308 acres. In comparison, Route 

Alternatives 1 and 4 would contain 226 acres and 221 acres, respectively, of crop, grass, 

and shrub land. 

Large raptors with a greater tendency to perch on overhead transmission line towers 

are most susceptible to electrocution. This includes bald eagles, great horned owls, 

and soaring hawks (HDR, 2010b). Studies have indicated that bald eagles represent 

approximately five percent of electrocutions along overhead transmission and 

distribution lines, while red-tailed hawk electrocutions represent between eight and 

37 percent of electrocutions along overhead transmission and distribution lines 

(APLIC, 2006 as cited in HDR, 2010b). Raptors with smaller, agile bodies or who 

primarily dwell in forests where natural perches are present are less susceptible to 

electrocution. These species include accipiters (northern goshawk, Cooper’s hawk, 

and sharp-shinned hawk), peregrine falcon, osprey, and corvids (American crow and 

common raven) (HDR, 2010b). Electrocution is responsible for an estimated five to 10 

percent of osprey mortality (HDR, 2010b). 

The risk of avian electrocution from a transmission line can be reduced through 

spacing of the equipment. For example, transmission lines installed in bald eagle 

habitat should have a minimum horizontal separation of 60 inches and vertical 

separation of 40 inches (HDR, 2010b). The Applicants have stated that the Project 

would be designed and constructed according to APLIC recommendations to 

minimize the potential for avian electrocutions (HDR, 2010b). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

212 

3.7 Biological Resources 

Collisions occur when a bird in flight fails to see the overhead conductor or ground 

wire and crashes into it. The six primary factors that affect the potential for birds to 

collide with overhead power lines include: 1) visibility of the lines; 2) species 

maneuverability; 3) species behavior; 4) location of the line in relation to areas of 

avian use; 5) local vegetative conditions; and 6) weather conditions (HDR, 2010b). 

Species at higher risk for collision include poor flyers (e.g., ducks); heavy bodied 

species (e.g., cranes and swans); and flock-formers (e.g., pelicans) (Janss, 2000, as cited 

in HDR, 2010b). The Project would cross numerous areas that could be considered 

flyways (HDR, 2010b). Species present in the vicinity of the Study Area that would 

be most susceptible to collision include sandhill cranes, pelicans, herons, gulls, 

shorebirds, large raptors, and waterfowl. 

Detailed studies of transmission line related avian mortality are limited. Table 3.7-16 

provides estimates of annual avian mortality in the U.S. due to collision. 

Table 3.7-16: Annual Avian Mortality Resulting from Collisions 

Feature Involved in Collision Mortality – Low Estimate Mortality – High Estimate 

Buildings/windows 98,000,000 980,000,000 

Overhead electric lines* 100,000 175,000,000 

Vehicles 60,000,000 80,000,000 

Communication towers 4,000,000 50,000,000 

Wind Generation 10,000 40,000 

 Source: Erickson et al., 2001 as cited in HDR, 2010b 

 Notes: *Combines data for distribution and transmission lines. 

Devices spaced between 10 and 15 meters apart and staggered evenly between the 

ground wires have been found to effectively reduce avian collisions (Bridges & 

Anderson 2000, Rosselli & Zerda 2000, and Rasmussen 1999, as cited in HDR, 2010b). 

In addition, it is possible to mark transmission lines to increase their visibility to 

avian species (HDR, 2010b). 

Monitoring and identification of specific avian corridors is ongoing. Monitoring 

results and specific mitigation measures are presented by the Applicants in a draft 

Avian Mitigation Plan (AMP) included as Appendix I, as discussed in the mitigation 

sub-section (Section 3.7.3). 

Procedures for monitoring and reporting avian mortality related to transmission lines, 

as well as additional transmission lines design measures used to reduce the risk of 

bird electrocution, are further identified and discussed in the above-mentioned draft 

AMP under development by the Applicants (see Appendix I). 

The specific impacts of the Project alternatives, including those areas within the CNF 

and LLR, are discussed below. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

213 

3.7 Biological Resources 

No-Build Alternative 

The No-Build Alternative would result in no change to the existing environment, 

because the Project would not be constructed. As a result, changes in habitat 

composition, fragmentation, and a potential increase in the risks of avian strikes within 

the Project Study Area would not occur. 

Route Alternative 1 

The habitat and wildlife species occurring within the feasible alignments evaluated are 

common throughout north-central Minnesota. Aspen/birch communities, which 

categorically represent the dominant native habitat (excluding cropland) within the 

feasible alignments evaluated (refer to Table 3.7-1) continue to cover approximately 85 

percent of their historic distribution within the region (MnDNR, 2006). The only habitat 

to show a major (i.e., greater than 50 percent) decline from historic levels is Jack pine 

woodland. However, this habitat is relatively uncommon (0 to 2 percent) within the 

feasible alignments evaluated and, therefore, does not provide a large amount wildlife 

habitat within the boundaries of the Project. The Project would result in the conversion 

of forested habitat to shrublands within the ROW. Population-level impacts would not 

be anticipated given the relative proportion of intact native wildlife habitat within the 

region; however, individuals could incur short-term impacts within the immediate area 

of construction. 

Additionally, the Project would generally follow pre-existing pipeline or transmission 

ROWs or roadways (see Sections 3.18, Utility Systems, and 3.19, Traffic and 

Transportation) and result in the expansion of existing ROWs, as opposed to 

construction of new corridors through previously undisturbed lands, such as large 

patches of woodlands. The expansion of the existing ROWs would increase the lateral 

extent of edge-related impacts (e.g., greater access for generalist predators) further from 

the existing ROW. However, the Project generally would not result in additional forest 

fragmentation or isolation of habitat patches. The creation of a new ROW through 

forested areas would fragment the existing habitat patch and provide a foraging 

corridor for general predators, and create habitat for edge species and other generalists 

that may displace interior forest species. A study of the edge effects on breeding birds in 

the CNF (Hanski et al., 1996) found no major effect on nesting success with respect to 

forest edges. However, it is possible that predatory species, such as cowbirds, and large 

mammals, such as wolves, would now have easier access to these habitat patches. 

The Bemidji Slough WMA is within Route Alternative 1 and would require an alignment 

crossing the WMA. However, the Project infrastructure would be constructed on 800-

foot longitudinal centers such that no structures would be placed within the WMA. 

Periodic maintenance activities in the ROW would have the potential to affect wildlife 

within the WMA. However, maintenance activities would be limited to the greatest 

extent possible while still complying with Federal and state regulations to minimize 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

214 

3.7 Biological Resources 

these impacts. In addition, the WMA could be avoided through the use of Segment 

Alternative A or a crossover to Route Alternative 2 via Segment Alternative J. Indirect 

effects to avian species from transmission lines are further discussed below. 

Wildlife in the vicinity of the existing ROWs would not be adversely affected by an 

expansion of the existing ROW. During construction, some mortality could occur to less 

motile or burrowing species, and abandonment of a nest site and the loss of eggs and/or 

young in avian species. Less motile species (such as herpetile and invertebrates) may be 

more susceptible to micro-environmental changes resulting from the expanded ROWs. 

However, these species are generally common throughout the region and there are no 

low-mobility federal, state, or tribal terrestrial species of concern that would be affected 

by the Project. Aquatic species are not anticipated to be adversely affected because the 

Project could either span or site around the water features within the ROWs such that no 

permanent structures would be built within any water bodies. 

Avian collisions with the transmission line, specifically waterfowl, may occur following 

construction of the Project, particularly in areas where the transmission line is between 

foraging or breeding areas (e.g., agricultural fields, wetlands, river corridors, or open 

water). There are numerous water bodies within the alternatives that may serve as 

habitat for waterfowl species, specifically the Mississippi River crossing, because this is 

considered to be a primary flyway. However, it is important to note that the headwaters 

of the Mississippi River intersect Route Alternatives 1 and 2 and their associated 

Segment Alternative ROWs only. Route Alternative 3, while still within the flyway, 

would not directly cross the Mississippi River. 

Electrocution of large birds, specifically raptors, occurs when they come into contact 

with either two conductors or a conductor and a grounding device. However, the 

Applicants’ would design their transmission lines to comply with the National Electric 

Safety Code requirements and Avian Power Line Interaction Committee (APLIC) 

Construction Design Standards, providing adequate spacing between the lines and 

grounding devices such that risk of raptor electrocution would be eliminated. 

Therefore, the electrocution risk to large birds would not be a major effect of the Project 

(APLIC, 2006). 

It is unknown whether the two non-native, invasive species occur within the alternative 

ROWs for the Project. However, there is a low potential for the Project to result in the 

spread of rusty crayfish because there would be minimal Project activity within 

LLR/CNF water bodies. The Project would not result in the transport of fill from one 

portion of the Project to another and limit the potential for the spread of earthworms. 

However, the potential exists for earthworms to be transported in the treads of vehicles 

and other mediums described for noxious weeds. Refer to Section 3.8.2 for a detailed 

discussion about the potential effects to species of concern. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

215 

3.7 Biological Resources 

Route Alternative 2 

The impacts for Route Alternative 2 would be the same relative to wildlife. Refer to the 

above discussion for the potential impacts of the Project to wildlife within, or adjacent 

to, Route Alternative 2. This Route Alternative would expand existing utility and 

transportation ROWs (see Section 3.18, Utilities, and 3.19, Transportation), thereby 

potentially expanding the potential edge effects further from the existing centerline. 

This has the potential to cause forest interior dwelling species (e.g., songbirds) to 

emigrate further from existing ROWs. However, there is sufficient forest habitat in the 

vicinity of the Project such that this would not affect the regional population levels of 

these species. Route Alternative 2 avoids the Bemidji Slough WMA.

Route Alternative 3 

Route Alternative 3 is longer than the other Route Alternatives and thus has the 

potential to impact a greater number of wildlife. However, the impacts are dependent 

not only on the length of the route, but also on such factors as proximity to wildlife 

habitats, avian flyways passing through the Route, or presence of stopover locations 

used by avian species. Overall, the impacts for Route Alternative 3 would be the same 

as Route Alternatives 1, 2, and 4 relative to wildlife. Refer to the above discussion for 

the potential impacts of the Project to wildlife within, or adjacent to, Route Alternative 3. 

As with Route Alternatives 1 and 4, Route Alternative 3 crosses the Bemidji Slough 

WMA. 

Route Alternative 4 

The wildlife impacts for Route Alternative 4 would primarily be the same as those 

described for Route Alternatives 1 and 2. Similar to Route Alternatives 1 and 3, Route 

Alternative 4 would require crossing the Bemidji Slough WMA. Refer to the above 

discussion for the potential impacts of the Project to wildlife within, or adjacent to, 

Route Alternative 4. 

Between the cities of Cass Lake and Ball Club, Route Alternative 4 follows the route 

developed for Route Alternative 2. Between these locations, Route Alternative 4 

would expand existing utility and transportation ROWs (see Section 3.18, Utilities, 

and 3.19, Transportation), thereby potentially expanding the possible edge effects 

further from the existing centerline. This has the potential to cause forest interior 

dwelling species (e.g., songbirds) to emigrate further from existing ROWs. However, 

there is sufficient forest habitat in the vicinity of the Project, such that this would not 

affect the regional population levels of these species. As with Route Alternatives 1 

and 3, Route Alternative 4 crosses the Bemidji Slough WMA. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

216 

3.7 Biological Resources 

Leech Lake Reservation 

The habitat conditions and wildlife species that occur within the LLR are the same as the 

overall conditions and species occurrences within the ROWs discussed above. It is 

anticipated that the impacts to these habitats and species would be the same as those 

discussed above for the ROWs as a whole. 

Chippewa National Forest 

The habitat conditions and wildlife species that occur within the CNF are the same as 

the overall conditions and species occurrences within the ROWs discussed above. It is 

anticipated that the impacts to these habitats and species would be the same as those 

discussed above for the ROWs as a whole. 

The Project would potentially cross through nine LAUs within the CNF and, therefore, 

have the potential to affect Canada lynx within the Study Area. However, the Route 

Alternatives would largely be constructed within existing corridors, limiting the 

potential impacts on the LAU, and Canada lynx are generally uncommon in the area. 

No Segment Alternatives would avoid impacts that would otherwise occur with the 

Route Alternatives. Refer to Section 3.8 for further discussion about the potential 

impacts to Canada lynx. Please see the Biological Evaluation/Biological Assessment 

(Appendix G) for further details on effects to wildlife.

3.7.3. Mitigation 

The following sections describe the mitigation measures for potential impacts to 

vegetation cover, from noxious weeds, and for potential impacts to fauna. 

3.7.3.1. Vegetative Cover 

The following mitigation strategies to minimize impacts could be included as conditions 

in the High Voltage Transmission Line (HVTL) permit: 

• Route Location - The permitted route may be specific in the location and width of 

ROW to minimize impacts to biological resources and minimize fragmentation of 

natural habitats. Specifically, Route Alternative 4 could be shifted north in the 

area west of Portage Lake to avoid impacts to a DNR-designated old growth 

forest. 

• Vegetation Removal - The permit can limit vegetation removal and require the 

Applicants to minimize the number of trees removed during construction of the 

Project in its selection of the specific ROW for the transmission line and, where 

feasible, through the use of co-location with existing ROW. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

217 

3.7 Biological Resources 

• Restoration – The permit would require restoration for ROWs, access roads, 

temporary work spaces, and other private lands affected by construction of the 

Project. 

• Co-location - The Project could be double-circuited with existing transmission 

lines to the extent practicable and consistent with sound engineering principles 

or system reliability criteria. The permit could identify areas where the Project 

could be double-circuited with existing transmission lines. 

• Structures would be located outside of wetlands and floodplains, to the extent 

practicable, to minimize wetland impacts. 

• Re-vegetation of disturbed areas would be reseeded following construction using 

a native species seed mix that would restore native vegetation cover. This seed 

mix would be developed in consultation with the MnDNR, LLDRM, and CNF 

staff. Seed mix will be developed in conjunction with appropriate resource 

agencies taking into consideration culturally important species. 

Construction and operation of the Project on the LLR and on CNF lands would have to 

comply with all applicable permitting requirements. 

The following additional mitigation strategies would be implemented by the Applicants 

to further minimize impacts: 

• The location of structures, ROWs, and other disturbed areas would be 

determined by considering input from landowners, LLBO, and the CNF. 

• Implementation of best management practices during Project construction and 

operation. 

3.7.3.2. Noxious Weeds 

The Project would result in land disturbance that would create opportunities for the 

introduction or spread of noxious weeds within the Project ROWs. 

The HVTL Permit could include the following permit conditions to mitigate these 

impacts: 

• Development of a noxious weed management program, including a noxious 

weed and vegetation management plan, in coordination with LLDRM, CNF, and 

appropriate local officials. 

• Re-vegetation using regionally native species (see Section 3.7.3.1). Seed mixes, 

mulches, and other ground cover would be certified as weed free and only clean 

straw mulch would be used. 

 

The Applicants have agreed to the following additional mitigation measures: 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

218 

3.7 Biological Resources 

• Coordination regarding noxious weeds management, prior to commencement of 

construction activities within the LLR and CNF, to ensure the implementation of 

appropriate noxious weeds control measures for the Project. 

• A field review of the ROW and construction staging sites prior to construction to 

identify areas that currently contain noxious weeds, including consultation with 

appropriate LLDRM, CNF, MnDNR, and local officials to identify contaminated 

areas. 

• Construction vehicles, including the under carriage, would be power-washed or 

manually cleaned to remove material prior to construction if equipment has 

been traveling from an area contaminated by noxious weeds to an 

uncontaminated area. 

3.7.3.3. Fauna 

The Project would result in conversion of forested habitat to grass/shrubland habitat, 

increase habitat fragmentation through widening of existing ROWs or new ROWs, and 

potentially affect avian migration and foraging through construction of overhead 

transmission lines. The Project would mitigate for these impacts by implementing the 

construction and operational measures described below. 

The following mitigation strategies to minimize impacts could be included as conditions 

in the High Voltage Transmission Line (HVTL) permit: 

• Route Location - The permitted route may be specific in the location and width of 

ROW to minimize impacts to biological resources and minimize fragmentation of 

natural habitats. Although the Bemidji Slough WMA is located within Route 

Alternatives 1, 3, and 4, the feasible 125-foot ROW and Project structures could 

be sited to avoid impacts to the WMA. 

• Vegetation Removal - The permit can limit vegetation removal and require the 

Applicants to minimize the number of trees removed during construction of the 

Project in its selection of the specific ROW for the transmission. 

• Restoration – The permit would require restoration for ROWs, access roads, 

temporary work spaces, and other private lands affected by construction of the 

Project. 

• Co-location - The Project could be double-circuited with existing transmission 

lines to the extent practicable and consistent with sound engineering principles 

or system reliability criteria. The permit could identify areas where the Project 

could be double-circuited with existing transmission lines. 

• Require the installation of marked transmission line shield wires to the extent 

practicable within major flyways (i.e., the Mississippi River) and explore the use 

of alternative structures. 

• Development of an Avian Mitigation Plan (AMP) consistent with the Suggested 

Practices for Avian Protection on Power Lines: The State of the Art in 2006 (APLIC, 

2006), including selection of substation components for insulation and isolation, 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

 

219 

3.7 Biological Resources 

wire separation distances that are greater than the wingspan of largest birds in 

the region to minimize the electrocution risk, and timing of activities to 

minimize disruption during the breeding season. A draft AMP is included as 

Appendix I. 

• Provide nesting platforms on Project structures for eagles and osprey in 

designated areas. 

In addition, the Applicants have agreed to implement the following additional 

mitigation measures: 

• Construction vehicles, including the under carriage, would be power-washed or 

manually cleaned to remove material prior to construction if they have been 

traveling from an area contaminated by earthworms to an uncontaminated area. 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

220 

3.8 Species of Special Concern 

3.8. Species of Concern 

This section describes the species of concern, as identified by the U.S. Fish and Wildlife 

Service (USFWS), U.S. Forest Service (USFS), State of Minnesota, and the Division of 

Resource Management Leech Lake Band of the Ojibwe (LLDRM), that are known to 

occur in the Study Area. The Study Area is defined as being each of the Route 

Alternatives developed for the Project and generally within Beltrami, Cass, Hubbard, 

and Itasca counties, including the Leech Lake Reservation (LLR) and Chippewa National 

Forest (CNF), where the alternatives are located. The section identifies the potential 

direct and indirect impacts to species of concern as a result of the Project alternatives. 

Methodology and Sources of Information 

A Biological Assessment and Evaluation for the Project was prepared and is included in 

Appendix G of this document. The Biological Assessment and Evaluation includes 

species-specific field surveys along each of the major Route Alternatives. Data from the 

USFWS county occurrence lists; USFS Regional Foresters Sensitive Species (RFSS) list; 

Minnesota Department of Natural Resources (MnDNR) Natural Heritage Information 

System (NHIS); and LLDRM Sensitive Species list were used to identify the species that 

are rare, threatened, endangered, or of special concern within the 1,000-foot-wide Route 

Alternatives. The NHIS search identifies species documented within a one mile 

buffer zone surrounding the Route Alternatives. As mentioned in Section 3.7.2, the 

NHIS data relies on information from other databases, with the MCBS data being a 

major source of information for the NHIS. The MCBS is performed primarily on 

public lands and thus it does not encompass the entire Study Area and its coverage 

varies between the Route Alternatives. Individual occurrence data for the LLDRM 

Sensitive Species was not available; however, the LLDRM provides their occurrence 

information to both the MnDNR and the USFS. Therefore, the occurrence information 

for LLDRM-listed species is included within the NHIS and USFS data sets discussed in 

this analysis. Habitat-specific field surveys were performed in 2008 and 2009 within a 

250-foot wide area centered on the proposed centerline of each Route Alternative. If a 

target species was identified within the survey area and suitable habitat extended 

beyond the 250 feet from the proposed centerline, the survey area was expanded from a 

250-foot to 1,000-foot route. The results of the agency records and field surveys are 

discussed below. 

3.8.1. Affected Environment 

Threatened and endangered species in Minnesota are protected from death, harm, and 

harassment under the Federal Endangered Species Act (ESA), as amended (16 U.S.C. §§ 

1531 – 1544) and the Minnesota Endangered Species Statute (Minnesota Statutes, section 

84.0895) and the Leech Lake Reservation Conservation Code. The Federal ESA defines 

the regulations pertaining to plant and animal species federally-designated as 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

221 

3.8 Species of Special Concern 

threatened or endangered to ensure that any project or action would not jeopardize the 

continued existence of any listed species or adversely modify designated critical 

habitats. 

Two federally-listed species are known to occur within Aitkin, Beltrami, Cass, and 

Hubbard counties: Canada Lynx (Lynx canadensis) and Gray Wolf (Canis lupis). Canada 

lynx sightings have been reported in and around the Study Area; however, there have 

been no verified occurrences of this species (MnDNR, 2009g). Gray wolves are known to 

occur along all three Route Alternatives and preliminary field study results noted the 

gray wolf as potentially occurring within Route Alternative 3 (Appendix G). The Study 

Area for the Route Alternatives and the associated Segment Alternatives is not within 

the Federally-designated critical habitat for Canada lynx or gray wolf. 

Minnesota's Endangered Species Statute requires the MnDNR to adopt rules designating 

species meeting the statutory definitions of endangered, threatened, or species of 

concern. The resulting list of Endangered, Threatened, and Special Concern Species is 

codified as Minnesota Rules, chapter 6134. The Endangered Species Statute also 

authorizes the MnDNR to adopt rules that regulate treatment of species designated as 

endangered and threatened. These regulations are codified as Minnesota Rules, parts 

6212.1800 to 6212.2300 and impose a variety of restrictions, a permit program, and 

several exemptions pertaining to the taking of species designated as endangered or 

threatened. The results of field studies and detailed project plans determine whether a 

takings permit is required. Fourteen state-listed species (five birds, one mammal, one 

reptile, two invertebrates, and five plants) are known to occur within the Study Area 

(NHIS, 2008). 

The USFS maintains the RFSS lists of sensitive species occurring in National Forests. 

The USFS sets out guidelines for preserving RFSS species and uses BEs to ensure that 

their actions: 1) do not contribute to the loss of viability of any native or desired nonnative plant or animal species or contribute to a trend toward federal listing of any 

species; 2) comply with the requirements of the ESA; and 3) provide a process and 

standard to ensure that sensitive species (including RFSSs) receive full consideration in 

the decision-making process. There are 22 RFSSs that are known to occur with the Study 

Area, including 10 bird species, two invertebrates, and 10 plant species. 

The LLDRM maintains its own list of sensitive species occurring within the LLR (LLBO, 

2009b). There are approximately 93 species on the LLDRM Sensitive Species list; 

however, seven are considered either extinct or extirpated from the region. Of the 

remaining 86 species, 39 are known to occur within the Study Area, including 13 bird 

species, one mammal, one reptile, two invertebrates, and 22 plant species. The two 

federally-listed species, Canada lynx and gray wolf, are included on the sensitive 

species list maintained by the LLDRM. LLDRM lists the Canada lynx as endangered 

and gray wolf as threatened. 

The federally-listed species tracked by the USFWS (Canada lynx and gray wolf) were 

identified based upon general occurrence information for each county. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

222 

3.8 Species of Special Concern 

3.8.1.1. Birds 

Fourteen bird species of concern have been identified in the Project Study Area (within 

the Route and Segment Alternatives). Tables 3.8-1 and 3.8-2 identify the State, USFS, 

and LLDRM bird species of concern known to occur within the Study Area; the State, 

USFS, and Tribal listing status for each species; and the number of known occurrences 

for the Study Area. The presence of their preferred habitats and actual observation of 

their occurrences in the Study Area are described individually in the following 

paragraphs. Additional information on the bird species of concern is presented in 

Appendix G. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

223 

3.8 Species of Special Concern 

Table 3.8-1: Known Occurrences of Bird Species of Concern within Route Alternatives 

Name1 Listing Status2 Route Alternative 1 Route Alternative 2 Route Alternative 3 

Common Scientific State USFS LLDR

M NHIS/ LLDRM3 USFS/ LLDRM3 HDR4 NHIS/ LLDRM3 USFS/ LLDRM3 HDR4 NHIS/ LLDRM3 USFS/ LLDRM3 HDR4 

Northern Goshawk 

Accipiter 

gentilis - RFSS E 0 11 0 0 6 0 0 12 0 

Le Conte's Sparrow 

Ammodramus 

leconteii - RFSS S 0 1 0 0 1 0 0 0 15 

Great Blue Heron 

Ardea 

Herodias - - S 1 0 0 0 0 0 0 0 0 

Redshouldered Hawk 

Buteo 

lineatus SC RFSS T 1 1 2 0 0 0 0 0 0 

Black Tern Chlidonias 

niger - RFSS - 0 0 0 0 0 0 0 0 5 

Yellow Rail Conturicops 

navoboracensis SC RFSS T 0 0 0 0 0 0 0 0 2 

Trumpeter Swan 

Cygnus buccinators T RFSS E 0 0 0 0 0 0 0 0 3 

Bay-breasted Warbler 

Dendroica 

castanea - RFSS S 0 0 0 0 1 0 0 0 1 

Sandhill Crane 

Grus 

 canadensis - - S 0 0 0 0 0 0 0 0 1 

Bald Eagle5 Nesting Area 

Haliaeetus 

leucocephalus SC - T 1 6 1 4 3 4 1 0 0 

Connecticut Warbler 

Oporornis 

 agilis - RFSS S 0 16 5 0 16 5 0 0 22 

Osprey Pandion haliaetus - - S 0 2 1 0 2 0 0 0 0 Black-backed Woodpecker 

Picoides arcticus 

- RFSS T 0 1 1 0 1 1 0 0 3 

Total Number of Species Present - - - 3 38 10 4 30 10 1 12 52 Notes: 

1. The NHIS (Minnesota DNR Natural Heritage Information System) and USFS databases, in many cases, appear to be documenting the s

adding the number of occurrences would likely result in an overestimation species frequency. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

224 

3.8 Species of Special Concern 

2. State: E = Endangered; T = Threatened; SC = Special Concern 

USFS: RFSS = Regional Forester Sensitive Species; WL = Watch List LLBO: E = Endangered; T = Threatened; S = Sensitive 

3. Individual data sets for the LLDRM-listed species were not available; however, the LLDRM provides their occurrence information to the N

the NHIS and USFS data sets include the LLDRM-developed occurrence information for those species identified in the table as LLDRM s

4. Surveys as described in HDR, 2009 and HDR, 2010, which include Enbridge pipeline and Project surveys. 5. Receives federal protection through the Bald and Golden Eagle Protection Act and the Migratory Bird Treaty Act. 

Sources: MnDNR NHIS, 2009; USFS, 2009; HDR, 2009; HDR, 2010; Otter Tail Power et al., 2010a
Bemidji – Grand Rapids Transmission Line 

Final EIS 

225 

3.8 Species of Special Concern 

Table 3.8-2: Known Occurrences of Bird Species of Concern within the Segment Alternatives 

Name1 Listing Status2 Segment 

Alternative A 

Segment 

Alternative B 

Segment 

Alternative D 

Segment 

Alternative E 

Segment 

Alternative K 

Segment 

Alternative L 

Segment 

Alternative N 

Common Scientific State USFS DRM NHIS/ DRM3USFS/ DRM3 HDR4 NHIS/ DRM3USFS/ DRM3 HDR4 NHIS/ DRM3USFS/ DRM3 HDR4 NHIS/ DRM3USFS/ DRM3 HDR4 NHIS/ DRM3USFS/ DRM3 HDR4 NHIS/ DRM3USFS/ DRM3 HDR4 NHIS/ DRM3 USFS/ DRM3 HDR4 

D

Northern Goshawk 

Accipiter 

Gentilis

- RFSS E 0 1 0 0 1 0 0 1 0 0 0 0 0 1 0 0 1 0 0 1 0 

Le Conte's Sparrow 

Ammodramus

leconteii

- RFSS S 0 0 0 0 0 0 0 0 0 0 0 2 0 0 0 0 0 0 0 0 0 

American Bittern 

Botarus 

lentigimosus

- - S 0 0 0 0 0 0 0 0 0 0 0 1 0 0 0 0 0 0 0 0 0 

Redshouldered Hawk 

Buteo 

Lineatus

SC RFSS T 0 0 0 2 2 0 0 0 0 0 0 0 0 0 0 0 0 0 2 0 0 

Baybreasted Warbler 

Dendroica 

castanea 

- RFSS S 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 

Sandhill Crane 

Grus 

canadensis 

- - S 0 0 0 0 0 0 0 0 0 0 0 1 0 0 0 0 0 0 0 0 0 

Osprey Pandion 

haliaetus

- - S 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 1 0 

Total 0 1 0 2 3 0 0 1 0 0 0 4 0 1 0 0 1 0 2 1 0 Notes: 

1. The NHIS (Minnesota DNR Natural Heritage Information System) and USFS databases, in many cases, appear to be documenting the s

adding the number of occurrences would likely result in an overestimation species frequency. 

2. State: SC = Special Concern 

USFS: RFSS = Regional Forester Sensitive Species LLBO: E = Endangered; T = Threatened; S = Sensitive 

3. Individual data sets for the LLDRM-listed species were not available; however, the LLDRM provides their occurrence information to the N

the NHIS and USFS data sets include the LLDRM-developed occurrence information for those species identified in the table as LLDRM s

4. Surveys as described in HDR, 2009. 

Sources: MnDNR NHIS, 2009; USFS, 2009; HDR, 2009; HDR, 2010; Otter Tail Power et al., 2010a
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

226 

3.8 Species of Special Concern 

Northern Goshawk (Accipiter gentilis) 

Northern goshawk is a federal Regional Forester Sensitive Species (RFSS) and a LLDRM 

endangered species (E). Its preferred habitat includes mature large trees with a stable 

nest platform, such as aspen, beech, maple, white pine, and white oak (Audubon, 2009). 

Northern goshawk densities within the CNF are generally low. CNF records indicate 

that approximately 105 documented observations of Northern goshawk within the 

forest, including 19 known foraging and post-fledging territories within the Study Area 

(USFS, 2009). Known occurrences of the species within each Route Alternative are 

presented in Table 3.8.1, while acreage of Northern goshawk territory found within 

each Route Alternative is presented in Appendix G. Route Alternatives 1, 3, and 4

provide the greatest amount of suitable habitat within the 1,000-foot Study Area for this 

species (approximately 31 percent each). Approximately 26 percent of Route Alternative 

2 also provides suitable habitat for this species. 

The northern goshawk is not federally-listed as a rare, threatened or endangered species 

by the USFWS. Field surveys did not identify any active Northern goshawk nest sites 

within the Route Alternatives. However, the USFS has identified 25 Northern goshawk 

territories within 1 mile of each of the Route Alternatives, mostly commonly in the 

vicinity of Route Alternative 1. In addition, the MnDNR has indicated presence of at 

least one Northern goshawk territory within 1,000 feet of Route Alternative 1, with 

approximately 0.4 acre of Route Alternative 1 located within the nesting area of the 

species (MnDNR, 2010c). 

Le Conte’s Sparrow (Ammodramus leconteii) 

Le Conte’s Sparrow is a federal Regional Forester Sensitive Species (RFSS) and a LLDRM 

sensitive species (S). It is a secretive bird that favors tall, dense vegetation in wet 

meadows and wetland edges. However, in Minnesota this species is also known to 

occur in upland grassland habitats including pasture, hayland, and retired cropland (Igl, 

1999). The breeding season typically begins in early May and continues until early 

September; the fledging period for this species is not known (Dechant et al., 1999). 

Route Alternative 3 and Segment Alternative E provide the greatest amount of suitable 

habitat for this species (approximately 27 percent of the 1,000 foot-wide route) among 

the alternatives. Approximately 23 percent of Route Alternative 1 and its associated 

Segment Alternatives, 19 percent of Route Alternative 2 and its associated Segment 

Alternatives, and 23 percent of Route Alternative 4 also provide suitable habitat for this 

species. 

This species is not federal or state-listed and, therefore, is not tracked by the State or 

USFWS. However, suitable habitat for this species does occur outside of the CNF. Field 

surveys did not identify any occurrences of this species within Route Alternatives 1, 2, 

or 4, but did identify 15 occurrences (Table 3.8-1) within Route Alternative 3, and an 

additional two, three, and two occurrences within Segment Alternatives E, R, and T, 

respectively (HDR, 2009). There is one documented CNF observation of the species 

within Route Alternatives 1, 2, and 4 (Otter Tail Power et al., 2010a; HDR, 2010). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

227 

3.8 Species of Special Concern 

Great Blue Heron (Ardea herodias)

The Great Blue Heron is a LLDRM sensitive (S) species. It can be found in a variety of 

aquatic habitats such as sheltered, shallow bays and inlets, sloughs, marshes, wet 

meadows, shores of lakes, and rivers. Nesting colonies are typically found in mature 

forests, on islands, or near mudflats (Audubon, 2008). Approximately 5 percent of 

Route Alternatives 1, 2, and 4 and their associated Segment Alternatives provide 

suitable habitat for Great Blue Herons, although this habitat is concentrated along the 

Mississippi River. Habitat for this species is scarce within Route Alternative 3 and 

Segment Alternative E, and is associated with scattered wetlands. 

The Great Blue Heron is not federally-listed as a rare, threatened, or endangered species 

by the USFWS. The NHIS documented one occurrence of Great Blue Heron within the 

LLR and CNF portion of Route Alternative 1 (Table 3.8-1); however, this species was not 

included in the 2009 field surveys (HDR, 2009). 

American Bittern (Botaurus lentiginosus)

American Bittern is a LLDRM sensitive (S) species. It prefers large cattail, bulrush, or 

sedge marshes for breeding and feeding but it also utilizes bogs, wet meadows, and 

hayfields (NatureServe, 2009). Approximately 5 percent of Route Alternatives 1, 2, and 

4 and their associated Segment Alternatives provide suitable habitat for American 

Bittern, with the habitat concentrated along the Mississippi River. Habitat for this 

species is scarce within Route Alternative 3 and Segment Alternative E, and is associated 

with scattered wetlands. 

This species is not a federal, state, or RFSS species and, therefore, is not tracked in their 

databases. However, field surveys identified one occurrence of American Bittern within 

Segment Alternative E (HDR, 2009). 

Red-shoulder Hawk (Buteo lineatus)

Red-shoulder Hawk is a state listed special concern species (SC), a federal Regional 

Forester Sensitive Species (RFSS), and a LLDRM threatened species (T) but is not 

federally-listed by the USFWS. The Red-shouldered Hawk is associated with mature 

deciduous-coniferous and hardwood forests, often nesting in sugar maple and American 

beech (NatureServe, 2009b). It is also found in swamps, river bottomlands, and wooded 

marsh openings, with the borders of lakes and streams or other wetlands providing 

especially favored habitat (Johnsgard, 1990). Red-shouldered Hawk densities within the 

CNF are generally low. Approximately 19 percent of Route Alternative 1 provides 

suitable forest habitat for the Red-shouldered Hawk, Route Alternatives 2 and 4 contain 

approximately 11 percent, and Route Alternative 3 contains approximately 16 percent of 

suitable habitat. 

Two documented occurrences of Red-shouldered Hawk occur within Route Alternative 

1. The species has not been documented within Route Alternatives 2, 3, or 4 and field 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

228 

3.8 Species of Special Concern 

surveys did not identify this species along any of the four Route Alternatives (Otter Tail 

Power et al., 2010a). The NHIS and USFS records also identified several occurrences of 

this species along Segment Alternatives B and N. 

Black Tern (Chlidonias niger) 

Colonies of Black Terns are a federal Regional Forester Sensitive Species (RFSS). They 

are found in freshwater marshes and wetlands containing emergent vegetation, 

generally present along lake margins and rivers (MSU, 2009). Similar to Great Blue 

Herons, approximately 5 percent of Route Alternatives 1, 2, and 4 and associated 

Segment Alternatives provide suitable habitat for this species, primarily concentrated 

along the Mississippi River. Habitat within Route Alternative 3 is scarce (less than 2 

percent). 

Black Terns are not federally-listed as a rare, threatened, or endangered species by the 

USFWS and there are no NHIS or USFS records of Black Tern occurring within the Study 

Area. However, recent field surveys identified five black terns within Route Alternative 

3 (HDR, 2009). 

Yellow Rail (Conturicops navoboracensis)

Yellow Rail is a state listed special concern species (SC), a federal Regional Forester 

Sensitive Species (RFSS), and a LLDRM threatened species (T). It is a secretive marshdwelling species, preferring expansive sedge or grass dominated wet meadows with 

standing water levels ranging from 2 to 12 inches. Cattail, forb, woody, and shrubby 

habitats are not preferred (MnDNR, 2009). Habitat for this species is scarce within the 

Study Area (approximately 1 to 2 percent of each Route Alternative). 

Yellow Rail is not federally-listed as a rare, threatened, or endangered species by the 

USFWS and there are no occurrences of Yellow Rail documented by NHIS or USFS. 

However, field surveys identified two occurrences of this species along Route 

Alternative 3. No occurrences were documented during field surveys for Route 

Alternatives 1, 2, or 4 (HDR, 2009). 

Trumpeter Swan (Cygnus buccinator)

Trumpeter Swan is a state listed threatened species (T), a federal Regional Forester 

Sensitive Species (RFSS), and a LLDRM endangered species (E). Trumpeter Swan 

prefers small ponds and lakes with extensive beds of cattails, bulrush, sedges, and 

horsetail for breeding territory (MnDNR, 2009c). Nesting territories range from 6 to 150 

acres in size and include large, shallow wetlands 1 to 3 feet deep with a diverse mix of 

emergent vegetation (WiDNR, 2009). Habitat for Trumpeter Swan is relatively 

uncommon within the Study Area, with approximately 5 percent of Route Alternatives 

1, 2, and 4 providing suitable habitat. Habitat within Route Alternative 3 is scarce (less 

than 2 percent). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

229 

3.8 Species of Special Concern 

Trumpeter Swan is not federally-listed as a rare, threatened, or endangered species by 

the USFWS. This species is not known to occur along Route Alternatives 1, 2, or 4. Field 

surveys identified three occurrences of Trumpeter Swan along Route Alternative 3 

(HDR, 2009). 

Bay-breasted Warbler (Dendroica castanea) 

Bay-breasted warbler is a federal Regional Forester Sensitive Species (RFSS) and a 

LLDRM sensitive species (S). It breeds in mid-age to mature spruce-fir forests where 

cool, dense coniferous growth is interrupted by small openings such as bogs or 

clearings. Preferred nesting trees include balsam fir and spruces, mixed with tamaracks, 

white pines, birches, or aspens (Morse, 1989). The habitat for this species is generally 

uncommon within the Study Area (approximately 1 to 6 percent). Route Alternative 3 

and Segment Alternative E provide the greatest amount of habitat. 

Bay-breasted warbler is not federally-listed as a rare, threatened, or endangered species 

by the USFWS. Field surveys identified one occurrence of this species along Route 

Alternative 3 and Segment Alternative T (HDR, 2009). This species is not federal or 

state-listed and, therefore, is not tracked by the USFWS or State. CNF documented one 

occurrence of the species within Route Alternatives 2 and 4 (Otter Tail Power et al., 

2010a; HDR, 2010). Suitable habitat for this species does occur outside of the CNF. 

Sandhill Crane (Grus canadensis)

Sandhill Crane is a LLDRM sensitive species (S). Sandhill cranes primarily utilize open 

freshwater wetlands, but the different subspecies can be found in habitats that range 

from bogs, sedge meadows, and fens to open grasslands, pine savannas, and cultivated 

lands. During breeding season, Sandhill Cranes occur at their greatest density in 

habitats that contain open sedge meadows and in wetlands that are adjacent to short 

vegetation in uplands (ICF, 2009). Wetland habitat for this species is relatively 

uncommon within the Study Area, with approximately 5 percent of Route Alternatives 

1, 2, and 4 providing suitable habitat. Habitat within Route Alternative 3 is scarce (less 

than 2 percent). 

This species is not a federal, state, or RFSS species and therefore is not tracked by the 

USFWS, NHIS, or USFS. Field surveys identified one occurrence of this species along 

Route Alternative 3 and one along Segment Alternative E (HDR, 2009). 

Bald Eagle (Haliaeetus leucocephalus) 

Bald Eagles are state listed species of concern (SC) and a LLDRM threatened species (T). 

Bald Eagles commonly inhabit forested areas near lakes and rivers, often nesting in the 

largest tree in the area (Cornell, 2009a). Approximately 26 to 28 percent of the Study 

Area provides suitable habitat for Bald Eagles, primarily as aspen/birch forests (21 to 27 

percent) and some red/white pine stands (1 to 5 percent). The CNF provides habitat for 

one of the largest breeding populations of Bald Eagles in the lower 48 states. Known 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

230 

3.8 Species of Special Concern 

Bald Eagle nesting sites within the CNF include large red and white pines, and 

occasionally aspen (USFS, 2008). 

The bald eagle is not federally-listed as a rare, threatened, or endangered species by the 

USFWS. However, the species is protected from disturbance under the Migratory Bird 

Treaty Act and the Bald and Golden Eagle Protection Act. Under the Eagle Act, 

disturbance is defined as “to agitate or bother a bald or golden eagle to a degree that 

causes, or is likely to cause, based on the best scientific information available, 1) 

injury to an eagle, 2) decreases in its productivity, by substantially interfering with 

normal breeding, feeding, or sheltering behavior, or 3) nest abandonment, by 

substantially interfering with normal breeding, feeding, or sheltering behavior” 

(USDOI, 2010). 

The NHIS documented one bald eagle nesting site within Route Alternatives 1 and 3, 

four Bald Eagle nesting sites within Route Alternatives 2 and 4. The USFS documented 

one Bald Eagle nest site within the CNF portions of Route Alternatives 1 and three nest 

sites within the CNF portions of Route Alternatives 2 and 4. Field surveys identified 

one nest site within Route Alternative 1 and four nest sites within Route Alternatives 2 

and 4. (HDR, 2010). The CNF, LLDRM, and MnDNR have documented 26 nest sites 

within one mile of Route Alternative 1, 23 nest sites within one mile of Route 

Alternative 2, and 21 nest sites within one mile of Route Alternative 3 (Otter Tail 

Power et al., 2010a). Route Alternative 4 was not included for analysis in the 

Biological Assessment and Evaluation conducted for the Project; however, Route 

Alternative 4 largely follows Route Alternative 2 within the CNF and it is assumed 

that over 20 nest sites are located within one mile of Route Alternative 4. The 

Department of Interior recommends siting high voltage transmission lines at least 

two miles away from nests, foraging areas, and communal roosts of bald eagles. The 

recommendation may not be feasible to follow given the high density of bald eagles 

in the Study Area. 

Connecticut Warbler (Oporornis agilis) 

The Connecticut warbler is a federal Regional Forester Sensitive Species (RFSS) and a 

LLDRM sensitive species (S). Within the CNF, the Connecticut Warbler most frequently 

inhabits open, mature lowland conifer forests, including spruce-tamarack, sphagnum, 

and jack pine areas (Kudell-Ekstrum, 2002). The breeding season in Minnesota occurs 

from late May through late August (BSI, 2009). The habitat for this species is generally 

uncommon within the Study Area (approximately 1 to 5 percent). Route Alternative 3 

and Segment Alternative E provide the greatest amount of habitat. 

The Connecticut warbler is not federally-listed as a rare, threatened, or endangered 

species by the USFWS. The NHIS has no records of Connecticut warbler within any of 

the Route or Segment Alternatives (Tables 3.8-1 and 3.8-2). However, the USFS 

documented 16 occurrences of the species in Route Alternatives 1, 2, and 4 and five 

occurrences within Route Alternative 3. Field surveys identified occurrences of these 

species within each of the Route Alternatives, including five occurrences within Route 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

231 

3.8 Species of Special Concern 

Alternatives 1, 2, and 4, and 22 occurrences within Route Alternative 3 (Otter Tail 

Power et al., 2010a; HDR, 2009). 

Osprey (Pandion haliaetus) 

Ospreys are a LLDRM sensitive species (S). They typically inhabit a variety of forested 

areas near lakes and rivers that provide adequate supplies of fish, Osprey’s main food 

source. Breeding generally occurs during the summer months, approximately late May 

through August (UMN, 2009). Habitat for this species primarily occurs within Route 

Alternatives 1 and 2 and their associated Segment Alternatives within the CNF and LLR, 

where the alternatives pass large open water bodies such as Lake Winnibigoshish and 

the upper Mississippi River. 

The osprey is not federally-listed as a rare, threatened, or endangered species by the 

USFWS. The USFS documented two occurrences of Osprey within the CNF and LLR 

portions of Route Alternatives 1, 2, and 4. There are no known occurrences of this 

species within the CNF for Route Alternative 3 (Table 3.8-1). Field surveys identified 

one transient individual within Route Alternative 1 (HDR, 2009). The USFS has also 

identified one individual within Segment Alternative N (Table 3.8-2). 

Black-backed Woodpecker (Picoides arcticus) 

The black-backed woodpecker is a federal Regional Forester Sensitive Species (RFSS) 

and a LLDRM threatened species (T). It is a secretive bird inhabiting mature, fire 

regulated, boreal, and coniferous forests where snags, fallen logs, and dying trees with 

larvae of wood boring beetles are available (Corace, 2001). The breeding period begins 

in mid-May and continues through the summer, when the fledging period concludes in 

early fall (Birdnature, 2009). Habitat availability is limited within the Study Area from 

approximately 6 percent (Route Alternatives 2 and 3) to 7 percent (Route Alternative 1). 

The black-backed woodpecker is not federally-listed as a rare, threatened, or endangered 

species by the USFWS. The USFS documented one occurrence of black-backed 

woodpecker within the CNF and LLR portions of Route Alternatives 1, 2, and 4 (Table 

3.8-1). Recent field surveys identified one black-backed woodpecker within Route 

Alternatives 1, 2, and 4, and three within Route Alternative 3 (HDR, 2009). 

3.8.1.2. Mammals 

Four mammals (including 2 federally-listed species), two reptiles, and two invertebrate 

species of concern have been identified in the Project Study Area (within the Route and 

Segment Alternatives). Tables 3.8-3 and 3.8-4 identify the Federal, State, USFS, and 

LLDRM species of concern known to occur within the Study Area; the Federal, State, 

USFS, and LLDRM listing status for each species; and the number of known occurrences 

for the Study Area. The presence of their preferred habitats and actual observation of 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

232 

3.8 Species of Special Concern 

their occurrences in the Study Area are described individually in the following 

paragraphs. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

233 

3.8 Species of Special Concern 

Table 3.8-3: Known Occurrences of Mammal, Reptile, and Invertebrate Species of Concern within the Route Alt

Name1 Listing Status2 Route Alternative 1 Route Alternative 2 Route Alternative 3 

Common Scientific USFWS State USFS LLDRM NHIS/ 

LLDRM

3 

USFS/ 

LLDRM 3

HDR

4

NHIS/ 

LLDRM 3

USFS/ 

LLDRM 3

HDR

4

NHIS/ 

LLDRM 3

USFS/ 

LLDRM 3

HDR

4

Mammals 

Moose Alces alces - - - X 0 0 0 0 0 0 0 0 0 Gray Wolf Canis lupus T SC - T 0 0 0 0 0 0 0 0 4 Puma Felis 

concolor - SC - E 0 0 0 0 0 0 0 0 0 

Canada Lynx Lynx 

canadensis T - - E 0 0 0 0 0 0 0 0 0 

Reptiles 

Snapping Turtle 

Chelydra serpentine - SC - S 0 0 0 0 0 0 0 0 4 

Blanding’s Turtle 

Emydoidea blandingii - T RFSS T 0 0 0 0 0 0 0 0 0 

Invertebrates 

Creek Heelsplitter 

Lasmigona compressa 

- SC RFSS SC 0 0 0 0 0 0 4 0 0 

Black Sandshell 

Ligumia recta - SC RFSS SC 0 0 0 0 0 0 3 0 0 

Total - - - - 0 0 0 0 0 0 7 0 8 Notes: 

1. The NHIS (Minnesota DNR Natural Heritage Information System) and USFS databases, in many cases, appear to be documenting the s

adding the number of occurrences would likely result in an overestimation species frequency. 

2. USFWS: T = Threatened 

State: SC = Special Concern USFS: RFSS = Regional Forester Sensitive Species LLBO: E = Endangered; T = Threatened; S = Sensitive; X = Extirpated 

3. Individual data sets for the LLDRM-listed species were not available; however, the LLDRM provides their occurrence information to the N

the NHIS and USFS data sets include the LLDRM-developed occurrence information for those species identified in the table as LLDRM s

addition, narrative description of gray wolf sitings and pack locations was provided by representatives of LLDRM.

4. Surveys as described in HDR, 2009. 

Sources: MnDNR NHIS, 2009; USFS, 2009; HDR, 2009; HDR, 2010; LLDRM, 2010a; Otter Tail Power et al., 2010a
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

234 

3.8 Species of Special Concern 

Table 3.8-4: Known Occurrences of Mammal, Reptile, and Invertebrate Species of Concern within 

the Segment Alternatives 

Name1 Listing Status2 Segment Alternative E 

Common Scientific USFWS6 State USFS LLDRM NHIS/ 

LLDRM3 

USFS/ 

LLDRM3

HDR4

Mammals 

Moose Alces alces - - - X 0 0 1 

Gray Wolf Canis lupus T SC - T 0 0 0 

Puma Felis concolor - SC - E 0 1 0 

Canada Lynx Lynx canadensis T - - E 0 0 0 

Reptiles 

Snapping 

Turtle 

Chelydra 

serpentine - SC - S 0 0 0 

Blanding’s 

Turtle 

Emydoidea 

blandingii - T RFSS T 0 0 0 

Invertebrates 

Creek 

Heelsplitter 

Lasmigona 

compressa 

- SC SC SC 1 0 0 

Black 

Sandshell 

Ligumia recta - SC SC SC 0 0 0 

Total - - - - 1 1 1 

Notes: 

1. The NHIS and USFS databases in many cases appear to be documenting the same occurrences. 

Adding the number of occurrences would likely overestimate 

frequency. 

2. State: E = Endangered; T = Threatened; SC = Special Concern 

USFS: RFSS = Regional Forester Sensitive Species 

LLBO: E = Endangered; T = Threatened; S = Sensitive 

3. Individual data sets for the LLDRM-listed species were not available; however, the LLDRM provides 

their occurrence information to the NHIS and CNF. Therefore, the NHIS and USFS data sets include 

the LLDRM-developed occurrence information for those species identified in the table as LLDRM 

sensitive species. 

4. Surveys as described in HDR, 2009 and HDR, 2010

Sources: MnDNR NHIS, 2008; USFS, 2009; HDR, 2009; HDR, 2010; Otter Tail Power et al., 2010a

Moose (Alces alces) 

Although extirpated in the region, a transient moose (Alces alces) was observed within 

Segment Alternative E (HDR, 2009). Moose are a LLDRM extirpated (X) species and are 

not common to the Study Area. 

Gray Wolf (Canis lupus) 

A July 1, 2009 federal judge’s ruling rescinded an April 2009 USFWS decision to delist 

the western Great Lakes population of Gray Wolves (Canis lupus). As a result, the gray 

wolf is again a federally-listed threatened species. The gray wolf is listed as a Minnesota 

species of special concern (SC) and a LLDRM threatened (T) species. The Route 

Alternatives are not located within designated critical habitat for the gray wolf (43 FR 

9607, March 9, 1978). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

235 

3.8 Species of Special Concern 

Gray wolf populations in the western Great Lakes Region (i.e., Minnesota, Wisconsin, 

and Michigan) are expanding and a 2007 to 2008 winter survey by the MnDNR (Erb, 

2008) estimated that 2,921 gray wolves live in Minnesota. The MnDNR considers the 

gray wolf population fully recovered because it surpassed the federal delisting goal of 

1,251 to 1,400 wolves (MnDNR, 2009f). 

The NHIS does not track occurrences of gray wolf. There are no documented dens 

within the proposed Route Alternatives; however, gray wolves are generally known to 

occur within the Study Area (HDR, 2009). Most observations of gray wolves in 

proximity to the Study Area are concentrated between the areas of Blackduck and 

Lake Winnibigoshish and northeast of Talmoon. In addition, observations of gray 

wolves have occurred in the vicinity of U.S. Highway 2, although observations in this 

area are less common (HDR, 2009). Three CNF observations of gray wolves have been 

made within 5 miles of Route Alternatives 1, 2, 3, and 4, and dispersed observations of 

single individuals and packs have also been documented within proximity to these 

Route Alternatives (HDR, 2009 and Erb, 2008). The LLDRM has indicated that based 

on previous surveys, approximately 75 gray wolves may be located within the 

boundaries of the LLR and CNF, including two to three gray wolf packs that have 

been observed in proximity to Route Alternatives 1, 2, and 4, and four to seven gray 

wolf packs that have been observed in proximity to Route Alternative 3 (LLDRM, 

2010a). Field studies (HDR, 2009) identified four occurrences within Route Alternative 

3. Observations of single individuals and packs have also been documented north of 

Route Alternative 3, to the northwest of Lake Winnibigoshish, and north of Talmoon 

(Erb, 20008 as cited in HDR, 2009). 

Most gray wolves live in 2 to 12 member family packs and defend territories of 20 to 214 

square miles (Erb and Benson, 2004). Therefore, the occurrences identified during the 

field study within Route Alternative 3 likely represent a single pack. The LLDRM 

has estimated that between 10 to 12 packs may be located within the boundaries of 

the LLR and CNF (LLDRM, 2010a). 

Puma (Felis concolor) 

The Puma (Felis concolor) is a state species of special concern (SC) and a LLDRM 

endangered species (E), but is not federally-listed as a rare, threatened, or endangered 

species by the USFWS. Pumas are solitary animals, adapted to a variety of habitats, but 

in Minnesota they are mostly found in remote, heavily forested areas. They require 

large areas of habitat with a sufficient prey base to survive. There have only been a few 

confirmed reports of this species in Minnesota, and there is no evidence that there are 

breeding populations present in the state (MnDNR, 2009d). The USFS documented one 

occurrence of this species within Segment Alternative E. 

Canada Lynx (Lynx canadensis) 

Canada lynx (Lynx canadensis) is a federally-listed threatened species and a LLDRM 

endangered (E) species, although it is not considered an RFSS or species of special 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

236 

3.8 Species of Special Concern 

concern in Minnesota. Lynx population cycles are related to snowshoe hare 

populations, and therefore are predominantly found in boreal (specifically upland 

conifer) forests (USFWS, 2009), which are not common (approximately 2 to 10 percent) 

within each of the Route Alternatives. 

Of the 426 sightings reported to the Minnesota Natural Heritage and Nongame Research 

Program since 2000, only approximately 10 percent (42 sightings) were in Beltrami, Cass, 

Hubbard, and Itasca counties. Of these 42 sightings, only two are considered “Verified,” 

meaning that DNA or radio telemetry data was available for the occurrence or that the 

data came from a MnDNR-identified reliable source (MnDNR, 2009a). The Route 

Alternatives are not located within the critical habitat for Canada lynx and no 

occurrences (verified, probable, or unverified) have been reported within the Study Area 

(MnDNR, 2009a). Field surveys did not identify any lynx within the Route and Segment 

Alternatives (HDR, 2009). 

The NHIS does not track occurrences of Canada lynx. The USFS designates Lynx 

Analysis Units (LAUs) within the LLR/CNF. These LAUs are landscape-scale analysis 

areas for lynx management and were developed in consultation with the U.S. Fish and 

Wildlife Service. The Route Alternatives intersect nine LAUs within the LLR/CNF: 

three along Route Alternative 1 (LAU 8, 10, and 15); two along Route Alternatives 2 and 

4 (LAU 10 and 15); and six along Route Alternative 3 (LAU 3, 5, 6, 7, 9, and 14). No 

additional LAUs are intersected by the Segment Alternatives; however, Segment 

Alternatives C (LAU 8) and E (LAU 14) also intersect LAUs. The management goals for 

the LAUs include promoting habitat for lynx prey species (e.g., snowshoe hare) and 

preventing the loss of suitable lynx habitat within the LLR/CNF borders. 

3.8.1.3. Reptiles 

Two reptile species of concern have been identified in the Study Area. 

Snapping Turtle (Chelydra serpentine) 

The snapping turtle (Chelydra serpentine) is a state species of special concern (SC) and a 

LLDRM sensitive(S) species but are not federally-listed as a rare, threatened, or 

endangered species by the USFWS. The species utilizes a variety of aquatic habitats 

including rivers, lakes, and marshes. It prefers slow moving and quiet waters with a 

dense vegetative cover and muddy bottoms. Common nesting areas include sandy 

banks and fields, but the snapping turtle occasionally nests on gravel roads and lawns 

(MnDNR, 2009n). 

There are no NHIS or USFS records of this species occurring within the Route 

Alternatives. However, field surveys documented four individuals within Route 

Alternative 3 (Otter Tail Power et al., 2010a; HDR, 2009). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

237 

3.8 Species of Special Concern 

Blanding’s Turtle (Emydoidea blandingii) 

The Blanding’s turtle (Emydoidea blandingii) is a state-listed threatened species (T), a 

federal Regional Forester Sensitive Species (RFSS), and a LLDRM threatened species 

(T), but it is not federally–listed as rare, threatened, or endangered by the USFWS. 

The species utilizes both wetland and upland habitats to complete its life cycle. 

Blanding’s turtle primarily utilizes wetland habitats of marshes and ponds, preferring 

calm, shallow water bodies with mud bottoms and abundant aquatic vegetation. 

Nesting occurs in open, grassy, or brushy uplands located on sandy soils. The species 

have also been known to nest on residential properties. Shady areas are not used for 

nesting by the species (MnDNR, 2010a). 

There are no NHIS or USFS records of this species occurring within the Route 

Alternatives. However, the Route Alternatives cross wetland and riparian zones that 

likely contain suitable habitat and the species is known to be present in the vicinity 

of the Study Area (Otter Tail Power et al., 2010a; HDR, 2009). 

3.8.1.4. Invertebrates 

Only two invertebrates have been identified as species of concern in the Study Area, the 

Creek Heelsplitter and the Black Sandshell. Both species are identified by the State, 

USFS, and LLDRM as invertebrate species of concern. These species are not federallylisted as rare, threatened, or endangered by the USFWS. Both of their habitats and 

observed occurrences in the Study Area are described below. 

Creek Heelsplitter (Lasmigona compressa) 

The Creek Heelsplitter is a state species of special concern (SC), federal Regional 

Forester Sensitive Species (RFSS), and a LLDRM sensitive species (S) but is not federallylisted as a rare, threatened, or endangered species by the USFWS. It is most commonly 

found in creeks and headwaters of small and medium rivers. Its preferred substrate is 

small gravel or sand (Sietnam, 2003). 

The NHIS documented four occurrences of the Creek Heelsplitter (including two within 

CNF and one within the LLR) within the Study Area for Route Alternative 3 and one 

occurrence within Segment Alternative E. The NHIS has no record of this species within 

the Study Area for the other Route Alternatives or Segment Alternatives. However, the 

MnDNR has indicated that the species have been documented in the streams and 

rivers that are crossed by Route Alternatives 1, 2, and 4 (MnDNR, 2010c). 

Black Sandshell (Ligumia recta) 

The Black Sandshell is a state species of special concern (SC), federal Regional Forester 

Sensitive Species (RFSS), and a LLDRM sensitive species (S) but is not federally-listed by 

the USFWS. It is found in rivers, lakes, and large streams, usually in riffles or raceways 

with good current. It inhabits sandy mud, firm sand, or gravel (INHS, 2009). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

238 

3.8 Species of Special Concern 

The NHIS documented three occurrences of the Black Sandshell (including one within 

the CNF) within Route Alternative 3. There are no records indicating that this species 

occurs within the other Route or Segment Alternatives. However, the MnDNR has 

indicated that the species have been documented in the streams and rivers that are 

crossed by Route Alternatives 1, 2, and 4 (MnDNR, 2010c). 

3.8.1.5. Plants 

Twenty-five plant species of concern have been identified as occurring within the Route 

and Segment Alternatives. There are no federal rare, threatened, or endangered species 

identified by the USFWS as known to occur within the Route and Segment Alternatives. 

Table 3.8-5 identifies the State, USFS, and LLDRM plant species of concern known to 

occur within the Route Alternatives; the State, USFS, and LLDRM listing status for each 

species; and the number of known occurrence in the Route Alternatives. Table 3.8-5 

identifies the same information for the State, USFS, and LLDRM plant species of concern 

known to occur within the Segment Alternatives. Their habitats and observed 

occurrences within each alternative are described below. Field surveys (HDR, 2009) 

found that three LLDRM plant species (white pine, American elm, and slippery elm) 

were commonly found throughout forest stands within the Route and Segment 

Alternatives and, therefore, were not included in the tables but are part of the detailed, 

species-specific discussions below. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

239 

3.8 Species of Special Concern 

Table 3.8-5: Known Occurrences of Plant Species of Concern within Route Alternatives 

Name1 Listing Status2 Route Alternative 1 Route Alternative 2 Route Alternative 

Common Scientific State USFS LLDRM NHIS/ LLDRM3 USFS/ LLDRM3 HDR4 NHIS/ LLDRM3 USFS/ LLDRM3 HDR4 NHIS/ LLDRM3 USFS/ LLDRM3 H

Dissected Grapefern Botrychium 

dissectum - - T 0 0 2 0 1 2 0 0 

Triangle Moonwort Botrychium 

lanceolatum 

T RFSS T 1 0 2 0 0 0 0 0 

Mingan Moonwort Botrychium minganense SC - T 5 2 9 2 0 6 0 0 Goblin Fern Botrychium 

mormo 

SC RFSS E 3 3 3 1 1 0 1 2 

Pale Moonwort Botrychium 

pallidum E RFSS T 0 0 6 8 12 3 0 0 

St. Lawrence Grapefern Botrychium 

rugulosum T RFSS T 1 1 1 10 7 1 0 0 

Least Moonwort Botrychium 

simplex SC RFSS T 0 0 9 8 7 6 0 0 

Blue Beech Carpinus 

caroliniana - - S 0 0 5 0 0 1 0 0 

Ram’s Head Lady’s Slipper 

Cypripedium 

arietinum T - T 0 0 0 0 0 0 1 0 

Spatulate-leaved Sundew Drosera 

intermedia - - S 0 0 0 0 0 3 0 0 

Few- flowered Spike Rush Eleocharis 

quinqueflora SC RFSS S 1 0 0 1 0 0 0 0 

Sweet grass Hierchloe 

ordata - - S 0 0 1 0 0 3 0 0 

White Adder's-mouth 

Malaxis 

monophyllos 

var brachypoda

SC RFSS T 1 1 0 0 0 0 0 0 

One-flowered broomrape Orobanche uniflora SC RFSS T 1 0 0 0 0 0 0 0 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

240 

3.8 Species of Special Concern 

Name1 Listing Status2 Route Alternative 1 Route Alternative 2 Route Alternative 

Common Scientific State USFS LLDRM NHIS/ LLDRM3 USFS/ LLDRM3 HDR4 NHIS/ LLDRM3 USFS/ LLDRM3 HDR4 NHIS/ LLDRM3 USFS/ LLDRM3 H

Clubspur Orchid Platanthera clavellata SC RFSS T 0 0 0 0 0 0 0 0 Tubercled rein-orchid 

Platanthera 

flava var. 

herbiola 

E - - 0 0 0 0 0 0 0 0 

Clustered Bur-reed Sparganium 

glomeratum SC RFSS T 2 2 5 0 0 10 0 0 

Canada Yew Taxus 

canadensis - RFSS S 0 4 5 0 5 8 0 0 

Torrey’s manna-grass Torreychloa 

pallida SC - S 0 0 1 0 0 0 0 0 

New England Violet Viola 

novaeangliae - - S 0 0 4 0 0 2 0 0 

Humped bladderwort Utricularia 

gibba - - S 3 0 0 0 0 0 0 0 

Total Number of Species Present - - - 18 13 53 30 33 45 2 2 

Notes: 

1. The NHIS and USFS databases in many cases appear to be documenting the same occurrences. Adding the number of occurrence

frequency. 

2. State: E = Endangered; T = Threatened; SC = Special Concern 

USFS: RFSS = Regional Forester Sensitive Species LLBO: E = Endangered; T = Threatened; S = Sensitive 

3. Individual data sets for the LLDRM-listed species were not available; however, the LLDRM provides their occurrence information to 

Therefore, the NHIS and USFS data sets include the LLDRM-developed occurrence information for those species identified in the taspecies. 

4. Surveys as described in HDR, 2009 and HDR, 2010, which include Enbridge pipeline and Project surveys.

Sources: MnDNR NHIS, 2008; USFS, 2009; HDR, 2009; HDR, 2010; Otter Tail Power et al., 2010a
Bemidji – Grand Rapids Transmission Line 

Final EIS 

241 

3.8 Species of Special Concern 

Table 3.8-6: Known Occurrences of Plant Species of Concern within Segment Alternatives

Name1 Listing Status2 Segment Alternative B Segment Alternative C Segment Alternative E Segment Alternative 

Common Scientific State USFS LLDRM NHIS/ LLDRM3 USFS/ LLDRM3 HDR4 NHIS/ LLDRM3 USFS/ LLDRM3 HDR4 NHIS/ LLDRM3 USFS/ LLDRM3 HDR4 NHIS/ LLDRM3 USFS/ LLDRM3 Dragon’s Mouth Orchid 

Arethusa 

bulbosa - - S 0 0 0 0 0 0 1 0 0 0 0 

Dissected Grapefern

Botrychium 

dissectum - - T 0 0 0 0 0 0 0 0 1 0 0 

Triangle Moonwort

Botrychium 

lanceolatum

T RFSS

T 0 0 1 0 0 1 0 0 0 0 0 

Mingan Moonwort

Botrychium 

minganense SC - T 1 1 1 0 0 0 0 0 0 0 0 

Pale Moonwort

Botrychium 

pallidum 

T RFSS

T 0 0 0 0 0 0 0 0 0 0 0 

Least Moonwort

Botrychium 

simplex SC RFSS

T 0 0 0 0 0 0 0 0 0 0 0 

Blue Beech 

Carpinus 

caroliniana - - S 0 0 0 0 0 0 0 0 0 0 0 

White Adder'smouth 

Malaxis 

monophyllos

var 

brachypoda 

SC RFSS

T 0 0 0 0 0 2 0 0 0 0 0 

Clustered Bur-reed 

Sparganium 

glomeratum SC RFSS

T 0 0 1 0 0 0 0 0 0 0 0 

Canada Yew 

Taxus 

canadensis - RFSS

S 0 0 0 0 0 0 0 0 2 0 0 

Torrey’s mannagrass Torreychloa pallida SC - S 0 0 2 0 0 2 0 0 1 0 0 New England Violet 

Viola 

novaeangliae - - S 0 0 0 0 0 2 0 0 1 0 0 

Total - - - 1 1 5 0 0 7 1 0 5 0 0 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

242 

3.8 Species of Special Concern Notes:

1. The NHIS and USFS databases, in many cases, appear to document the same occurrences. Thus, adding the number of occurrences wo

 overestimation species frequency. 2. State: SC = Special Concern  USFS: RFSS = Regional Forester Sensitive Species  LLBO: E = Endangered; T = Threatened: S = Sensitive 3. Individual data sets for the LLDRM-listed species were not available; however, the LLDRM provides their occurrence information to the N

the NHIS and USFS data sets include the LLDRM-developed occurrence information for those species identified in the table as LLDRM s

4. Surveys as described in HDR, 2009 and HDR, 2010, which include Enbridge pipeline and Project surveys. 

Sources: MnDNR NHIS, 2009; USFS, 2009; HDR 2009; HDR, 2010; Otter Tail Power et al., 2010a
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

243 

3.8 Species of Special Concern 

Dragon’s Mouth (Arethusa bulbosa) 

The Dragon’s Mouth is a LLDRM sensitive species (S). It grows in acidic habitats such 

as sphagnum bogs, coniferous swamps, open fens, and moist, acid, sandy meadows. 

Most often it is found growing at the water’s edge (Wesley, 2009). 

The NHIS has no record of the Dragon’s Mouth occurring within any of the Route 

Alternatives. However, it has documented one occurrence within Segment Alternative 

E. The USFS documented preferred habitat for Dragon’s Mouth within the CNF. 

However, the species itself has not been documented within the CNF and is not known 

to occur within the Project portion of the LLR. 

Dissected Grapefern (Botrychium dissectum) 

The Dissected Grapefern is a LLDRM threatened species (T). It occupies a variety of 

habitats ranging from grassy openings and roadsides to dry, mesic, or wet forests. It is 

often found in sites that are somewhat disturbed by human activities. Specimens of the 

Dissected Grapefern have been collected within the CNF in mesic sugar maple and 

basswood forests. Much of this species’ life cycle occurs underground and the number 

of aboveground plants may vary from year to year (Chadde et al., 2001). 

The USFS documented one occurrence of the Dissected Grapefern within the CNF 

portion of Route Alternatives 2 and 4. Field surveys (HDR, 2009) documented two 

occurrences of this species within Route Alternatives 1 and 2, one occurrence within 

Route Alternative 4, and one occurrence within the LLR portion of Segment Alternative 

E (Table 3.8-6). There are no records of this species occurring within Route 

Alternative 3 (Table 3.8-5). 

Triangle Moonwort (Botrychium lanceolatum) 

The Triangle Moonwort is a federal Regional Forester Sensitive Species (RFSS) and a 

LLDRM threatened species (T). It is most often found in moist, partially shaded areas in 

coniferous or rich deciduous forests, or in moist grassy or rocky areas. In Minnesota, it 

most typically grows in northern hardwood habitats. Individual plants do not appear 

aboveground every year (Chadde et al., 2001). 

The NHIS and USFS documented one occurrence of the Triangle Moonwort within the 

CNF/LLR portions of Route Alternatives 1 and 4. However, there are no records of this 

species occurring within Route Alternatives 2 or 3 or Segment Alternative E. Field 

studies (HDR, 2009) identified two occurrences of this species within Route 

Alternative 1, one occurrence within Route Alternative 4, and one occurrence of this 

species within Segment Alternative B (Tables 3.8-5 and 3.8-6). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

244 

3.8 Species of Special Concern 

Mingan Moonwort (Botrychium minganense) 

The Mingan Moonwort is a state special concern species (SC) and a LLDRM threatened 

species (T). It occupies a variety of moist or mesic habitats, but in Minnesota it is most 

commonly associated with maple/basswood forests. Minnesota populations also have 

been documented in transition areas between uplands and wetlands, in dry-mesic 

woods, and in moist woods under white cedar. Much of this species’ life cycle occurs 

underground and individual plants do not appear aboveground every year (Chadde et 

al., 2001). 

The NHIS documented five occurrences of the Mingan Moonwort within the CNF for 

Route Alternative 1, two occurrences within the CNF for Route Alternative 2, four 

occurrences within Route Alternative 4 (Table 3.8-5), and one occurrence within 

Segment Alternative B (Table 3.8-6). Field surveys (Otter Tail Power et al., 2010a; HDR, 

2009) documented nine occurrences of this species within Route Alternative 1, six

occurrences within Route Alternative 2, three occurrences within Route Alternative 4, 

one occurrence within Segment Alternative F, and two occurrences in Segment 

Alternative N. There are no records of this species occurring within Route Alternative 3. 

Goblin Fern (Botrychium mormo) 

In Minnesota, the Goblin Fern is a federal Regional Forester Sensitive Species (RFSS) and 

a LLDRM endangered species (E). It is usually associated with mid-age or older 

deciduous hardwood forests with a relatively closed canopy that provides dense shade 

and a deep leaf layer. Forest communities providing the Goblin Fern habitat are often 

dominated by sugar maple and basswood. The Goblin Fern does not appear 

aboveground every year, especially during years of drought (Casson et al., 2002). 

The NHIS and USFS documented three occurrences of the Goblin Fern within the CNF 

and LLR portions of Route Alternative 1, one occurrence within Route Alternative 2, and 

one occurrence within Route Alternative 3 outside the CNF and two occurrences within 

the CNF and LLR boundary. Field surveys (HDR, 2009) identified three occurrences 

within Route Alternative 1 and 13 occurrences within Route Alternative 3 (Table 3.8-5). 

No occurrences were identified within Route Alternative 4. Route Alternative 1 

would pass immediately adjacent to a long term study site for the species (HDR, 

2009). This species was not identified within any of the Segment Alternatives (Table 3.8-

6). 

Pale Moonwort (Botrychium pallidum) 

The Pale Moonwort is a federal Regional Forester Sensitive Species (RFSS) and a 

LLDRM threatened species (T). It grows in variety of habitats, but it occurs most often 

in open areas and in habitats that have regular disturbance regimes. In Minnesota, 

reported habitats include maple/basswood forests, red and jack pine forests, sandy 

ridges, wetlands, and disturbed areas such as lots and pits. Much of this species’ life 

cycle occurs underground and individual plants do not appear aboveground every year 

(Chadde et al., 2003b). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

245 

3.8 Species of Special Concern 

The NHIS has documented eight occurrences and the USFS has documented 12

occurrences of this species within Route Alternative 2. Within Route Alternative 4, the 

NHIS has documented nine occurrences, and the USFS has documented 12 

occurrences of the species. Field surveys (Otter Tail Power et al., 2010a; HDR, 2009) 

identified six occurrences of this species within Route Alternative 1, three occurrences 

within Route Alternative 2, four occurrences within Route Alternative 3, and three 

occurrences in Route Alternative 4 (Table 3.8-5). This species is also known to occur 

within Segment Alternatives F and N (one occurrence each) (Table 3.8-6). 

St. Lawrence Grapefern (Botrychium rugulosum) 

The St. Lawrence Grapefern is a federal Regional Forester Sensitive Species (RFSS) and a 

LLDRM threatened species (T). In Minnesota, listed habitat preferences of the St. 

Lawrence Grapefern include dry areas with short grasses; jack pine, red pine, and 

aspen/balsam-fir forests; and openings within these forest types. Other habitats include 

the margins of ephemeral pools in forests dominated by pines, spruce, and paper 

birch/aspen. Much of this specie’s life cycle occurs underground and individual plants 

do not always occur aboveground every year (Chadde et al., 2003c). 

The NHIS and USFS documented 10 and seven occurrences of this species, respectively, 

within Route Alternative 2. The NHIS and USFS each documented one occurrence of 

the species within Route Alternative 1. Field surveys (Otter Tail Power et al., 2010a; 

HDR, 2009) identified one occurrence within the LLR/CNF portion of Route 

Alternatives 1 and 2, and two occurrences within Route Alternative 3 (Table 3.8-5). 

Within Route Alternative 4, nine and six occurrences were documented by the NHIS 

and USFS, respectively, and six occurrences were identified during the field surveys. 

This species is not known to occur in any of the Segment Alternatives, although suitable 

habitat does exist (Table 3.8-6). 

Least Moonwort (Botrychium simplex) 

The Least Moonwort is a federal Regional Forester Sensitive Species (RFSS) and a 

LLDRM threatened species (T). In Minnesota, the Least Moonwart has been found in a 

variety of habitats including northern hardwood forests of sugar maple and basswood, 

black ash and cedar swamps, jack pine woods, and disturbed areas such as borrow pits, 

tailings ponds, and road shoulders. In the CNF, the Least Moonwart has been found in 

habitats such as depressions in an open area dominated by reed canary grass, open 

fields with non-native grass, and northern hardwood stands (Chadde et al., 2003a). 

The NHIS (eight occurrences) and USFS (seven occurrences) have documented this 

species within the LLR/CNF portion of Route Alternative 2. Within Route Alternative 

4, eight occurrences were documented by the NHIS and seven by the USFS. Field 

surveys (Otter Tail Power et al., 2010a; HDR, 2009) identified six occurrences of this 

species within each of Route Alternatives 2, 3, and 4, nine occurrences within Route 

Alternative 1, and two occurrences within Segment Alternative F (Tables 3.8-5 and 3.8-

6). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

246 

3.8 Species of Special Concern 

Blue Beech (Carpinus caroliniana)

The Blue Beech is a LLDRM sensitive species (S). It thrives in deep shade and is 

common in the understory of late successional hardwood forests in Minnesota, and is 

typically associated with maples, basswood, oaks, black cherry, or paper birch (Smith, 

2008). Additional habitat types include moist soils on lower slopes in valleys and along 

the borders of streams and swamps (HDR, 2009). 

The NHIS has documented one occurrence of this species within Segment Alternative N. 

Field surveys (Otter Tail Power et al., 2010a; HDR, 2009) identified five occurrences of 

this species within Route Alternative 1 and one occurrence within Route Alternatives 2 

and 4. There are no records of this species occurring within Route Alternative 3 (Tables 

3.8-5 and 3.8-6). 

Ram’s Head Lady’s Slipper (Cypripedium arietinum)

The Ram’s Head Lady’s Slipper is a LLDRM threatened species (T). In Minnesota, the 

Ram’s Head Lady’s Slipper occurs in swamps, bogs, and lowland forests dominated by 

northern white cedar, tamarack, balsam fir, or black spruce. It also occurs in drier 

upland conifer forests that may be dominated by white pine and red pine (MnDNR, 

2009c). 

There are no records of the Ram’s Head Lady’s Slipper occurring within Route 

Alternatives 1, 2, or 4. The NHIS documented one occurrence of Ram’s Head Lady’s 

Slipper within the LLR/CNF portion of Route Alternative 3 (Table 3.8-5) although 

outside the LLR boundary. There were no species documented during the recent field 

surveys (HDR, 2009). 

Spatulate-leaved Sundew (Drosera intermedia) 

The Spatulate-leaved Sundew is a LLDRM sensitive species (S). It occurs in the wettest 

parts of bogs and on sandy shores that are subject to periodic inundation (Voss, 1985). 

Field surveys (Otter Tail Power et al., 2010a; HDR, 2009) documented three occurrences 

of this species within Route Alternative 2 and two occurrences within Route 

Alternative 4. There are no records of this species occurring within Route Alternative 1, 

Route Alternative 3, or any of the Segment Alternatives (Tables 3.8-5 and 3.8-6). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

247 

3.8 Species of Special Concern 

Few-flowered Spike Rush (Eleocharis quiqueflora)

Few-flowered Spike Rush is a state special concern (SC) species, federal Regional 

Forester Sensitive Species (RFSS), and LLDRM sensitive (S) species. It is typically found 

in cold coniferous poor fens or moist meadows in calcareous areas. This species flowers 

from late June through late July and fruiting occurs in early July through late September 

(WiDNR, 2009a). 

The NHIS has documented one occurrence of this species within the LLR/CNF portion 

of Route Alternatives 1 and 2, but it is not known to occur within Route Alternative 3, 4, 

or any of the Segment Alternatives (Tables 3.8-5 and 3.8-6). 

Sweet grass (Hierchloe odorata)

Sweet grass is a LLDRM sensitive species (S). It is most commonly found in wet 

meadows and bogs, and it usually grows among other grasses and shrubs (Walsh, 1994). 

This species is also considered an important traditionally-gathered plant to the LLBO. 

For further discussion of the LLBO member use of this plant, refer to Section 3.9, 

Cultural Resources, and 3.12, Environmental Justice. 

Field surveys (Otter Tail Power et al., 2010a; HDR, 2009) documented one occurrence of 

this species within Route Alternative 1 and three occurrences of this species within 

Route Alternative 2. There are no records of this species occurring within Route 

Alternatives 3 or 4, or any of the Segment Alternatives (Tables 3.8-5 and 3.8-6). 

White Adder’s-mouth (Malaxis monophyllos var. brachypoda) 

The White Adder’s-mouth is a federal Regional Forester Sensitive Species (RFSS) and a 

LLDRM threatened species (T). In Minnesota, the White Adder’s-mouth is typically 

found on Sphagnum hummocks in coniferous swamps, often in shaded areas under 

white cedar, black spruce, or tamarack. It has also been found growing in peat soil in 

hardwood swamps (HDR, 2009). 

The NHIS and USFS documented one occurrence of the White Adder’s-mouth within 

the LLR/CNF portion of Route Alternative 1. Field surveys (HDR, 2009) documented 

one occurrence of this species within Segment Alternative C (Tables 3.8-5 and 3.8-6). 

There are no records of this species occurring within the other Route or Segment 

Alternatives. 

 

One-flowered Broomrape (Orobanche uniflora)

The One-flowered Broomrape is a state species of concern (SC), a federal Regional 

Forester Sensitive Species (RFSS), and a LLDRM threatened species (T). It is typically 

found in sandy prairies, thickets, moist woods, and along stream banks. The flowering 

period occurs from April through June (WiDNR, 2009b). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

248 

3.8 Species of Special Concern 

The NHIS identified one occurrence of this species within the CNF and LLR portion of 

Route Alternative 1. This species is not known to occur within Route Alternatives 2, 3,

or 4, or any of the Segment Alternatives (Tables 3.8-5 and 3.8-6). 

White Pine (Pinus strobus)

White pine is a LLDRM sensitive species (S). It is found in mixed woods, sandy plains 

and dunes, bogs with tamarack, swampy woods, rock ridges, and cedar swamps. It 

thrives in full sunlight and is common to xeric northern pine forests and mixed 

hardwoods (Carey, 1993). 

Field surveys (HDR, 2009) found the species commonly occurring in all age classes 

within Route Alternatives 1, 2, and 4. There are no documented observations of this 

species within Route Alternative 3 (Tables 3.8-5 and 3.8-6). 

Clubspur Orchid (Platanthera clavellata)

The Clubspur Orchid is a state listed species of concern (SC), a federal Regional Forester 

Sensitive Species (RFSS), and a LLDRM threatened species (T). The species is most 

commonly found in tamarack-spruce bogs, where it grows in Sphagnum moss. It also 

grows in loose moss in balsam-cedar-spruce swamps and in alder thickets or damp 

woods (Case, 1987). 

Field surveys (HDR, 2009) documented one occurrence of this species within the CNF 

portion of Route Alternative 3. There are no records of this species occurring within 

Route Alternatives 1, 2, or 4 or any of the Segment Alternatives (Tables 3.8-5 and 3.8-6). 

Tubercled rein-orchid (Platanthera flava var. herbiola)

The Tubercled rein-orchid is a state listed endangered species (E). The species prefers 

sunny or partially shaded habitats of wet prairies, meadows, swales in mesic prairies, or 

the sandy or peaty habitats along the edges of marshes, swamps, or lakeshores. The 

Tubercled rein-orchid is only found in high quality habitats that show little if any impact 

from human activities; degraded habitats with a substantial number of nonnative 

species are not suitable for its growth (MnDNR, 2009o). 

Field surveys (HDR, 2009) documented one occurrence of this species within the CNF 

portion of Route Alternative 3. There are no records of this species occurring within 

Route Alternatives 1, 2, or 4 or any of the Segment Alternatives (Tables 3.8-5 and 3.8-6). 

Clustered Bur-reed (Sparganium glomeratum) 

The Clustered Bur-reed is a federal Regional Forester Sensitive Species (RFSS) and a 

LLDRM threatened species (T). It is an emergent wetland species that most commonly 

occurs in shallow water with a substrate of fine textured organic soils. It often occurs in 

association with grasses and sedges (Otter Tail Power et al., 2008a). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

249 

3.8 Species of Special Concern 

The NHIS and USFS each documented two occurrences of clustered bur-reed within 

Route Alternative 1. The NHIS documented seven occurrences within Route 

Alternative 4. Field surveys (Otter Tail Power et al., 2010a; HDR, 2009) documented 

five occurrences of this species within Route Alternative 1, 10 occurrences within 

Route Alternative 2, two occurrences within Route Alternative 3, nine occurrences 

within Route Alternative 4, and one occurrence within Segment Alternative B (Tables 

3.8-5 and 3.8-6). 

Canada Yew (Taxus canadensis) 

The Canada Yew is a federal Regional Forester Sensitive Species (RFSS) and a DRM 

sensitive species (S). It is a shade tolerant species, found in mature forests of spruce-fir, 

mixed conifer-northern hardwoods, and northern hardwoods. It is highly intolerant of 

forest disturbances (Otter Tail Power et al., 2008a). 

The USFS documented four occurrences of the Canada Yew within the LLR/CNF 

portion of Route Alternative 1, five occurrence within the LLR/CNF portion of Route 

Alternative 2, and three occurrences within Route Alternative 4. Recent field surveys 

(Otter Tail Power et al., 2010a; HDR, 2009) documented five occurrences of this species 

within Route Alternative 1, eight within Route Alternative 2, two occurrences of this 

species within Route Alternative 3, and six occurrences within Route Alternative 4 

(Table 3.8-5). 

Torrey’s manna-grass (Torreychloa pallida)

Torrey’s manna-grass is a state listed species of concern (SC) and a LLDRM sensitive 

species (S). It grows in swamps, marshes, bogs, and margin of lakes and streams (Davis, 

2007). 

Field surveys (HDR, 2009) documented one occurrence of this species within Route 

Alternative 1, two occurrences within Segment Alternatives B and C, and one occurrence 

within Segment Alternative E. There are no records of this species occurring within 

Route Alternatives 2, 3, or 4 (Tables 3.8-5 and 3.8-6). 

American elm (Ulmus americana) 

The American elm is a LLDRM sensitive species (S). It commonly grows on wet flats 

and bottomlands but is not restricted to these sites. It grows best on rich, well-drained 

soils (Colodanto, 1992). 

Field surveys (HDR, 2009) found this species commonly occurring in all age classes 

within all Route and Segment Alternatives. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

250 

3.8 Species of Special Concern 

Slippery elm (Ulmus rubra)

The slippery elm is a LLDRM sensitive species (S). It grows in moist, rich soils of lower 

slopes, stream banks, river terraces, and bottomlands but is also found on much drier 

sites (Coladonato, 1993). 

Field surveys (HDR, 2009) found this species commonly occurring in all age classes 

within the Route and Segment Alternatives. 

New England violet (Viola novaeangliae)

The New England violet is a LLDRM sensitive species (S). It is found on undisturbed 

acidic, xeric, or xeric-mesic rock or sand substrates. It grows under partially or totally 

closed canopy of mixed hardwoods and conifers (NatureServe, 2009). 

Field surveys (Otter Tail Power et al., 2010a; HDR, 2009) documented four occurrences 

of this species within Route Alternative 1, two occurrence of this species within Route 

Alternatives 2 and 3, and one occurrence within Route Alternative 4. One occurrence 

was documented within Segment Alternative E and two occurrences within Segment 

Alternative C (Tables 3.8-5 and 3.8-6). 

Humped Bladderwort (Utricularia gibba)

The Humped Bladderwort is a LLDRM Sensitive species (S). It is an aquatic herb species 

without roots that may be floating, submerged, or creeping along a substrate (University 

of Texas, 2009). 

The NHIS identified three occurrences of this species within Route Alternative 1 (Table 

3.8-5). This species was not identified during field surveys (HDR, 2009) and is not 

known to occur within the other Route Alternatives or any of the Segment Alternatives. 

3.8.1.6. Route Alternative 1 

Route Alternative 1 contains the greatest number of species of concern of the Route 

Alternatives. Twenty-five species of concern are known to occur within Route 

Alternative 1 (Tables 3.8-1, 3.8-3, and 3.8-5) including the northern goshawk, Le Conte’s 

sparrow, black-backed woodpecker, great blue heron, red-shouldered hawk, bald 

eagle, osprey, Connecticut warbler, dissected grapefern, triangle moonwort, mingan 

moonwort, goblin fern, pale moonwort, least moonwort, St. Lawrence grapefern, sweet 

grass, New England violet, blue beech, few-flowered spike rush, white adder’s-mouth, 

one-flowered broomrape, clustered bur-reed, Canada yew, Torrey’s manna-grass, and 

humped bladderwort. 

The State-listed species known to occur are bald eagle, mingan moonwort, few-flowered 

spike rush, one-flowered broomrape, and Torrey’s manna grass. The USFS-listed 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

251 

3.8 Species of Special Concern 

species are northern goshawk, red-shouldered hawk, triangle moonwort, goblin fern, 

pale moonwort, least grapefern, few-flowered spike rush, white adder’s-mouth, oneflowered broomrape, clustered bur-reed, and the Canada yew. All of the state and 

USFS-listed species known to occur within Route Alternative 1 are also on the LLDRM 

sensitive species list (Tables 3.8-1, 3.8-3, and 3.8-5). The LLDRM sensitive species known 

to occur are the great blue heron, osprey, blue beech, and humped bladderwort 

Species of concern are only known to occur within seven of the 12 Segment Alternatives 

associated with Route Alternative 1 (A, B, C, D, K, L, and N). Of these, Segment 

Alternatives B and N have the greatest number of species (six). However, the majority 

of the species are known to occur within these Segment Alternatives also occur within 

Route Alternative 1 (Tables 3.8-2, 3.8-4, and 3.8-6). New England violet, which is known 

to occur within Segment Alternative C, is the only species of concern for these Segment 

Alternatives that does not also occur within the Route Alternative. 

3.8.1.7. Route Alternative 2 

Twenty species of concern known to occur within Route Alternative 2 (Tables 3.8-1, 3.8-

3, and 3.8-5) including northern goshawk, Le Conte’s sparrow, bay-breasted warbler, 

bald eagle, Connecticut warbler, osprey, black-backed woodpecker, dissected grapefern, 

mingan moonwort, goblin fern, pale moonwort, St. Lawrence grapefern, least grapefern, 

blue beech, clustered bur-reed, spatulate leaved sundew, few-flowered spike rush, 

sweet grass, clubspur orchid, Canada yew, and New England violet. 

The State-listed species known to occur include bald eagle, mingan moonwort, and fewflowered spike rush. The USFS-listed species are the northern goshawk, Connecticut 

warbler, black-backed woodpecker, goblin fern, pale moonwort, St. Lawrence grapefern, 

least grapefern, few-flowered spike rush, and Canada Yew. All of the above-listed 

species, with the addition of sweet grass and New England violet, are on the LLDRM 

sensitive species list. 

Species of concern are only known to occur within five of the 13 Segment Alternatives 

associated with Route Alternative 2 (C, F, K, L, and N). Of these, Segment Alternative N 

has the greatest number of species (six). However, the majority of the species are known 

to occur within these Segment Alternatives also occur within Route Alternative 2 (Tables 

3.8-2, 3.8-4, and 3.8-6). Torrey’s manna-grass and white adder’s mouth (Segment 

Alternative C) and blue beech (Segment Alternative N) are the only species of concern 

for these Segment Alternatives that do not also occur within Route Alternative 2. 

3.8.1.8. Route Alternative 3 

Route Alternative 3 contains the second greatest number of species of concern of the 

Route Alternatives. Twenty-three species of concern are known to occur within the 

alternative, including northern goshawk, Le Conte’s sparrow, black tern, yellow rail, 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

252 

3.8 Species of Special Concern 

trumpeter swan, bay-breasted warbler, sandhill crane, bald eagle, Connecticut warbler, 

black-backed woodpecker, moose, creek heelsplitter, black sandshell, snapping turtle, 

goblin fern, pale moonwort, least grapefern, St. Lawrence grapefern, ram’s head lady’s 

slipper, clubspur orchid, tubercled rein-orchid, clustered bur-reed, Canada Yew, and 

New England violet. 

The State-listed species known to occur within the Route Alternative are yellow rail, 

trumpeter swan, bald eagle, puma, snapping turtle, creek heelsplitter, black sandshell, 

clubspur orchid, and tubercled rein-orchid. The USFS-listed species are the northern 

goshawk, Le Conte’s sparrow, black tern, yellow rail, trumpeter swan, bay-breasted 

warbler, Connecticut warbler, black-backed woodpecker, creek heelsplitter, black 

sandshell, goblin fern, pale moonwort, least grapefern, clubspur orchid, and clustered 

bur-reed. With the exception of black tern and tubercled rein-orchid, all of the abovelisted species known to occur within Route Alternative 3 are on the LLDRM sensitive 

species list. 

There are nine species of concern known to occur within Segment Alternatives E, R, and 

T (Tables 3.8-2, 3.8-4, and 3.8-6), five of which do not occur within Route Alternative 3: 

American bittern, dragon’s mouth orchid, Canada yew, Torrey’s manna-grass, and New 

England violet. 

3.8.1.9. Route Alternative 4 

Eighteen species of concern are known to occur within Route Alternative 4 (Tables 

3.8-1, 3.8-3, and 3.8-5) including the northern goshawk, Le Conte’s sparrow, bay 

breasted warbler, bald eagle, Connecticut warbler, osprey, black-backed woodpecker, 

dissected grapefern, triangle moonwort, mingan moonwort, pale moonwort, St. 

Lawrence grapefern, least moonwart, blue beech, spatulate-leaved sundew, clustered 

bur-reed, Canada yew, and New England violet. 

The State-listed species known to occur include bald eagle, triangle moonwort, 

mingan moonwort, pale moonwort, St. Lawrence grapefern, and least moonwart. The 

USFS-listed species are the northern goshawk, Le Conte’s sparrow, bay-breasted 

warbler, Connecticut warbler, black-backed woodpecker, triangle moonwart, pale 

moonwort, St. Lawrence grapefern, least moonwart, clustered bur-reed, and Canada 

Yew. All of the above-listed species are on the LLDRM sensitive species list. 

3.8.1.10. Leech Lake Reservation 

As stated above, LLDRM endangered, threatened, and sensitive species occur within the 

Study Areas for each of the Route and Segment Alternatives. Table 3.8-7 identifies the 

LLDRM sensitive species known to occur within the Route and Segment Alternatives for 

the Project. Route Alternative 1 contains the greatest number of LLDRM sensitive 

species (20) and Route Alternative 3 contains the fewest (15). Refer to the discussions 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

253 

3.8 Species of Special Concern 

above for additional details regarding LLDRM sensitive species occurring within the 

Route and Segment Alternatives. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

254 

3.8 Species of Special Concern 

Table 3.8-7: Sensitive Species within the LLR 

Route and 

Segment 

Alternatives 

LLDRM Sensitive Species Known to Occur (Status1) 

Route Alternatives 

1 Northern goshawk (E), Le Conte’s sparrow (S), black-backed woodpecker (T), great blue 

heron (S), red-shouldered hawk (T), bald eagle (T), osprey (S), Connecticut warbler (S),

dissected grapefern (T), triangle moonwort (T), mingan moonwort (T), goblin fern (E), pale 

moonwort (T), least moonwort (T), blue beech (S), few-flowered spike rush (S), white adder’smouth (T), one-flowered broomrape (T), clustered bur-reed (T), Canada yew (S), Torrey’s 

manna-grass (S), humped bladderwort (S), St. Lawrence grapefern (T), sweet grass (S), New 

England violet (S)

2 Northern goshawk (E), Le Conte’s sparrow (S), bay-breasted warbler (S), bald eagle (T), 

Connecticut warbler (S), osprey (S), black-backed woodpecker (T), dissected grapefern (T), 

mingan moonwort (T), goblin fern (E), pale moonwort (T), blue beech (S), clustered bur-reed 

(T), St. Lawrence grapefern (T), least moowort (T), spatulate-leaved sundew (S), few-flowered 

spike rush (S), sweet grass (S), Canada yew (S), New England violet (S) 

3 Gray wolf (S), snapping turtle (S), creek heelsplitter (SC), black sandshell (SC), northern 

goshawk (E), Le Conte’s sparrow (S), yellow rail (T), trumpeter swan (E), bay-breasted warbler 

(S), sandhill crane (S), bald eagle (T), Connecticut warbler (S), black-backed woodpecker (T), 

goblin fern (E), pale moonwort (T), least moonwort (T), ram’s head lady’s slipper (T), clubspur 

orchid (T), clustered bur-reed (T), St. Lawrence grapefern (T), dissected grapefern (T), 

Canada Yew (S), New England violet (S) 

4 Northern goshawk (E), Le Conte’s sparrow (S), bay breasted warbler (S), bald eagle (T), 

Connecticut warbler (S), osprey (S), black-backed woodpecker (T), snapping turtle (S), 

dissected grapefern (T), triangle moonwort (T), mingan moonwort (T), pale moonwort (T), 

St. Lawrence grapefern (T), least moonwort (T), blue beech (S), spatulate-leaved sundew 

(S), clustered bur-reed (T), Canada yew (S), New England violet (S) 

Segment Alternatives 

A Northern goshawk (E) 

B Northern goshawk (E), red-shouldered hawk (T), triangle moonwort (T), mingan moonwort (T), 

clustered bur-reed (T), Torrey’s manna-grass (S) 

C Triangle moonwort (T), white adder’s-mouth (T), Torrey’s manna-grass (S), New England violet 

(S) 

D Northern goshawk (E) 

E Le Conte’s sparrow (S), American bittern (S), moose (X), puma (E), creek heelsplitter (SC), 

sandhill crane (S), dragon’s mouth orchid (S), dissected grapefern (T), Canada yew (S), Torrey’s 

manna-grass (S), New England violet (S) 

F Mingan moonwort (T), pale moonwort (T), least grapefern (T) 

K Northern goshawk (E) 

L Northern goshawk (E) 

N Northern goshawk (E), red-shouldered hawk (T), osprey (S), mingan moonwort (T), pale 

moonwort (T), blue beech (S) 

R Le Conte’s sparrow (S) 

T Le Conte’s sparrow (S), bay-breasted warbler (S) 

Note: LLDRM Status: E = Endangered; T = Threatened; S = Sensitive; X = Extirpated 

Source: LLDRM, 2009d 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

255 

3.8 Species of Special Concern 

3.8.1.11. Chippewa National Forest 

As stated above, USFS-listed RFSS’s occur within the Study Areas for each Route 

Alternative. Route Alternatives 1 and 3 contain the greatest number of RFSS’s (15) and 

Route Alternatives 2 and 4 contain the least (12) (Tables 3.8-1, 3.8-3, and 3.8-5). There are 

between one and three RFSS occurrences within each of the Segment Alternatives 

(Tables 3.8-2, 3.8-4, and 3.8-6). Refer to the discussions above for further species-specific 

details regarding USFS sensitive species occurring within the CNF portions of the Route 

and Segment Alternatives. 

Several of the RFSS-listed species have been identified as CNF Management Indicator 

Species by the USFS. Identification of Management Indicator Species are required by the 

National Forest Management Act and are incorporated into the land and resource 

management plans for all national forests to “provide a means of monitoring and 

evaluating the effects of actions on biotic resources, including specific species, 

communities, habitats, and interrelationships among organisms” (USDA, 2004). The 

CNF selected four management indicator species to represent habitats and the 

assemblage of animals occurring on the LLR and CNF. Table 3.8-8 lists the management 

indicator species currently monitored in the CNF and the habitats the species inhabit. 

Table 3.8-8: CNF Management Indicator Species 

Common Name Scientific Name Vegetative Community 

Bald Eagle Haliaeetus leucocephalus Lake and Rivers 

Gray Wolf Canis lupus All Forested Habitats 

Northern Goshawk Accipiter gentiles Mature Deciduous and Coniferous Upland 

White Pine Pinus strobes Mature Lowland Coniferous Forest 

Source: USFS, 2004 

3.8.2. Direct/Indirect Effects 

This section evaluates the potential impacts of the Project on species of concern that are 

known to occur within the feasible 125-foot ROW evaluated for each alternative. 

Impacts to these species would be considered major if the Project would result in: 

• Direct effects to Federal, State, USFS, or LLDRM-listed species, including the 

taking (removal or loss) of an individual or population due to habitat 

destruction; a change in an individual or population’s habitat use due to noise; or 

visual disturbance from construction, clearing, and maintenance activities. 

• Indirect effects to Federal, State, USFS, or LLDRM-listed species, such as 

increased competition for resources or habitat due to displacement of individuals 

from the affected area into the territory of other animals; or other indirect effects 

which cause mortality or reduced breeding and recruitment in the future 

population. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

256 

3.8 Species of Special Concern 

• Direct or indirect effects on habitat types that affect population size and longterm viability for Federal, State, USFS, or LLDRM-listed species. Direct effects 

include vegetation removal by clearing, burial, or other destructive activity. 

Indirect effects include changes within larger ecological units (e.g., the Northern 

Minnesota Drift and Plains Ecoregion), but not necessarily within the Study 

Areas, that could occur at a later point in time such as a change in long-term 

vegetation composition or dominance; habitat conversion; habitat fragmentation; 

invasion by non-native species; or disruption of natural disturbance regimes 

(e.g., the annual natural hydrological cycle). 

For more details on the effects to these species please see the Biological Assessment/ 

Biological Evaluation in Appendix G. 

3.8.2.1. No-Build Alternative 

The No-Build Alternative would result in no change to the existing environment and, as 

a result, no short- or long-term changes to Federal, State, USFS, or LLDRM species of 

concern or their habitat would occur. The Project would not be constructed and no 

impacts to these species would occur. 

3.8.2.2. General Impacts on Species of Concern 

Potential impacts of the Project to individual species of concern known to occur within 

the Route and Segment Alternatives depend upon the final design, location, and width 

of the ROW. There are currently 25 plant species of species concern (Tables 3.8-5 and 

3.8-6) that occur within the Route and Segment Alternatives. Non-mobile plant species 

would be impacted if Project structures were sited on top of, or immediately adjacent to, 

known locations of these species or if individuals or populations would be destroyed 

during clearing and/or long-term maintenance of the ROW. In addition, species that 

occur in forested areas would be directly affected if the forest stands in which they 

occurred were cleared. State, USFS, or LLDRM sensitive tree species such as blue beech, 

white pine, American elm, and slippery elm would be at risk of a direct population loss 

from construction and long-term maintenance if they were located within the existing 

ROW. The sensitive flowering plants, grasses, and herbaceous species would be at risk 

for trampling from workers, construction equipment, and maintenance equipment over 

the life of the Project. The Biological Assessment and Evaluation for the Project (see 

Appendix G) notes that the MnDNR and LLDRM determined that the use of Route 

Alternative 1 would jeopardize the only known one-flowered broomrape population in 

Northern Minnesota (Otter Tail Power et al., 2010a). 

The wildlife habitats impacted by the Project are relatively common within the region 

and the State; therefore, compatible habitat is likely located near the Project ROWs. 

While this migration may increase short-term competition for resources, it is unlikely 

that the region is overpopulated with these species such that short-term migration 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

257 

3.8 Species of Special Concern 

would lead to adverse effects on state-wide populations. The MnDNR, CNF, and 

LLDRM determined that the Project may affect individuals of these mammal species 

within Route 1 and its Segment Alternatives but is not likely to affect the viability of the 

Planning Area or not cause a trend towards federal listing (HDR, 2009). Consultation 

with these agencies regarding formal concurrence with these findings is still ongoing. 

Long-term impacts from habitat conversion within the ROWs could cause localized 

impacts to bird and mammal species dependent upon mature forests for foraging or 

nesting such as the bald eagle, great blue heron, osprey, Connecticut warbler, blackbacked woodpecker, Canada lynx, and the gray wolf. The expansion of the existing 

ROWs could lead to an expansion of edge effects into previously interior forest habitat. 

However, impacts to bird species could be minimized by avoiding known nesting sites 

during the breeding season by approximately one-eighth of a mile (660 feet) for large 

raptors and colonial waterbirds (e.g., bald eagles, great blue herons, and osprey) and 

maintaining approximately 200 feet around known nesting sites for smaller species such 

as Connecticut warbler and black-backed woodpecker. 

The Project would not be located within the Federally-designated critical habitat for the 

Canada lynx. Lynx are uncommon in the Study Areas and, as stated above, snowshoe 

hare habitat is also relatively uncommon (less than 10 percent of each alternative). As a 

result, the Project would not result in an inability to meet the long-term management 

goals for the LAUs within the CNF. Therefore, the Route and Segment Alternatives are 

not likely to become common foraging habitat for Canada lynx and no adverse effects 

would be anticipated. The USFWS has determined that that the Project would be not 

likely to adversely affect the Canada lynx and the CNF and LLDRM have determined 

that the Project may adversely affect individuals but is not likely to affect the viability of 

the Planning Area (Otter Tail Power et al., 2010a). Consultation with these agencies 

regarding formal concurrence with these findings is still ongoing. 

The Project is not located within the federally-designated critical habitat for the gray 

wolf. There are no documented dens within the proposed Route Alternatives; 

however, gray wolves are generally known to occur within the Study Area (Otter Tail 

Power et al., 2010a). The Project would convert forested habitat to grassland/shrub 

habitat within the affected ROW. However, this land would still be available as foraging 

habitat following the completion of construction activities. The total area affected by 

any of the Route Alternatives (approximately 1,760 acres or 2.8 square miles) would 

account for less than 10 percent of the typical wolf pack territory (20 to 214 square 

miles). Gray wolves would likely avoid the Route and Segment Alternatives during 

construction. However, the Route and Segment Alternatives are unlikely to result in a 

long-term, direct loss of habitat for gray wolves. The USFWS has determined that that 

the Project would be not likely to adversely affect the gray wolf and the CNF and 

LLDRM have determined that the Project may adversely affect individuals but is not 

likely to affect the viability of the Planning Area (Otter Tail Power et al., 2010a). For 

more details on the effects to these species please see the Biological 

Assessment/Biological Evaluation in Appendix G.
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

258 

3.8 Species of Special Concern 

3.8.2.3. Route Alternative 1 and Associated Segment Alternatives 

Seventeen plant species have been identified or are known to occur within Route 

Alternative 1 and its associated Segment Alternatives (dragon’s mouth orchid, dissected 

grapefern, triangle moonwort, mingan moonwort, goblin fern, pale moonwort, least 

moonwort, St. Lawrence grapefern, sweet grass, blue beech, few-flowered spike rush, 

white adder’s-mouth, one-flowered broomrape, clustered bur-reed, Canada yew, 

Torrey’s manna-grass, New England violet, and humped bladderwort). All of these 

plants would be at risk of direct population losses from trampling, ROW clearing, or 

other construction-related disturbance. Thirteen of these species (dragon’s mouth 

orchid, dissected grapefern, triangle moonwort, mingan moonwort, goblin fern, pale 

moonwort, least moonwort, blue beech, white adder’s-mouth, one-flowered broomrape, 

Canada yew, Torrey’s manna-grass, and New England violet) occur in forested areas 

where the clearing of those forest stands would affect the habitat ability of those species. 

Seven of the known species (triangle moonwort, mingan moonwort, goblin fern, blue 

beech, white adder’s-mouth, Canada yew, and New England violet) are primarily forestdependent and would face a loss of canopy cover within the ROW. Therefore, clearing 

of the ROW could result in localized effects on these populations. The MnDNR, CNF, 

and LLDRM have determined that the Project may affect individual mammals and forest 

and riparian-dependent plants within Route 1 and its Segment Alternatives but is not 

likely to affect the viability of the Planning Area or not cause a trend towards federal 

listing (Otter Tail Power et al., 2010a). Consultation with these agencies regarding 

formal concurrence with these findings is still ongoing. 

The MnDNR and LLDRM determined that the use of Route Alternative 1 would 

jeopardize the only known one-flowered broomrape population in Northern Minnesota 

(Otter Tail Power et al., 2010a). The CNF has determined there to be no effect on this 

species. This impact could be avoided through the use of Segment Alternatives N and O 

as well as a portion of Route Alternative 2 to relocate the route in the vicinity of this 

species. 

Four species (few-flowered spike rush, clustered bur-reed, Torrey’s manna grass, and 

humped bladderwort) are primarily aquatic species and would only be affected to the 

extent that the Project would impact wetlands and other aquatic environments (refer to 

Section 3.6, Wetlands, for additional discussion about the potential effects to these 

areas). If impacts to wetlands and other aquatic features were avoided, the Project 

would be unlikely to impact these aquatic-dependent species. Dissected grapefern and 

pale moonwort thrive under disturbed conditions. Therefore, provided that the 

populations did not suffer a direct loss from trampling, the long-term impacts to these 

species are anticipated to be minimal. 

The inherent flexibility in the micro-siting of the Project makes it unlikely that there 

would be adverse impacts to species of concern within the ROW for this Route 

Alternative. However, the ultimate determination of the potential impacts of this Route 

Alternative is dependent upon the final design and location of the ROW within the 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

259 

3.8 Species of Special Concern 

Study Area. For more details on the effects to these species please see the Biological 

Assessment/Biological Evaluation in Appendix G.

3.8.2.4. Route Alternative 2 and Associated Segment Alternatives 

Route Alternative 2 and its Segment Alternatives support a comparable species 

composition to Alternative 1 but fewer overall occurrences (dissected grapefern, mingan 

moonwort, goblin fern, pale moonwort, St. Lawrence grapefern, least moonwort, blue 

beech, clustered bur-reed, spatulate leaved sundew, few-flowered spike rush, sweet 

grass, Canada yew, and New England violet). Many of the forest-dependent (triangle 

moonwort, mingan moonwort, goblin fern, white adder’s-mouth, Canada yew, and New 

England violet), aquatic-dependent (spatulate-leaved sundew and few flowered spike 

rush), and disturbance tolerant (dissected grapefern and pale moonwort) species are also 

known to occur within this Route Alternative. Therefore, the potential exists for similar 

indirect impacts to these species. 

 

Sweet grass, an open canopy/grassland species, is known to occur within Route 

Alternative 2. These species would also have the potential for direct losses due to ROW 

clearing and maintenance. However, if these species were avoided during these 

activities, then the long-term impacts would be expected to be minimal. 

The inherent flexibility in the micro-siting of the Project makes it unlikely that there 

would be adverse impacts to species of concern within the ROW for this Route 

Alternative. However, the ultimate determination of the potential impacts of this Route 

Alternative is dependent upon the final design and location of the ROW within the 

Study Area. The MnDNR, CNF, and LLBO LLDRM have determined that the Project 

may affect individual mammals and forest and riparian-dependent plants within Route 

Alternative 2 and its Segment Alternatives but is not likely to affect the viability of the 

Planning Area or not cause a trend towards federal listing (Otter Tail Power et al., 

2010a). Consultation with these agencies regarding formal concurrence with these 

findings is still ongoing. For more details on the effects to these species please see the 

Biological Assessment/Biological Evaluation in Appendix G.

3.8.2.5. Route Alternative 3 and Associated Segment Alternatives 

Twenty-three species of concern are known to occur within Route Alternative 3 and its 

associated Segment Alternatives (northern goshawk, Le Conte’s sparrow, black tern, 

yellow rail, trumpeter swan, bay-breasted warbler, sandhill crane, bald eagle, 

Connecticut warbler, black-backed woodpecker, American bittern, moose, creek 

heelsplitter, black sandshell, snapping turtle, dragon’s mouth orchid, goblin fern, pale 

moonwort, least moonwort, ram’s head lady’s slipper, clubspur orchid, tubercled reinorchid, clustered bur-reed, Canada yew, Torrey’s manna-grass, and New England 

violet). Several species known to occur along Route Alternative 3 (e.g., creek 

heelsplitter, black sandshell, puma, gray wolf, and snapping turtle) are unique to this 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

260 

3.8 Species of Special Concern 

alternative. It is anticipated that the Project would have the same direct and indirect 

impacts on bird and plant species, and the same available mitigation measures as the 

other Route Alternatives. In addition, the avoidance of Segment Alternatives R and T 

would avoid potential impacts to Le Conte’s sparrows and bay-breasted warblers in the 

Blackduck vicinity. The potential impacts of the Project on the special concern species 

unique to this Route Alternative are discussed below. 

Tubercled rein-orchid is a sensitive species which occurs only in high-quality, semiaquatic habitats and is known to occur within Route Alternative 3. This species is 

particularly sensitive to human disturbance and would likely be directly impacted if the 

Project were to disturb its habitat. This species does not occur in the vicinity of Segment 

Alternative E and, therefore, this Segment Alternative could not be used to avoid this 

species. 

The MnDNR, CNF, and LLDRM have determined that the Project may affect individual 

mammals and forest and riparian-dependent plant species within Route 3 and its 

Segment Alternatives but is not likely to affect the viability of the Planning Area or not 

cause a trend towards federal listing (Otter Tail Power et al., 2010a). Consultation with 

these agencies regarding formal concurrence with these findings is still ongoing. 

The unionid mussels (e.g., Creek Heelsplitter and Black Sandshell) would not be directly 

impacted because all river and stream crossings would be spanned. These species 

generally prefer small to medium streams; therefore the flexibility in micro-siting of the 

Project could span all small to medium streams such that there would be no direct 

impacts to these species. These species could potentially be indirectly impacted during 

construction due to the potential for increased run-off or siltation as a result of land 

clearing and ground disturbances near the shoreline. However, these impacts would be 

minimal, short-term, and mitigated through the implementation of a sediment and 

erosion control plan during construction. 

The population of pumas within the State is likely small based upon the limited 

sightings and lack of evidence of breeding populations, which indicates that individuals 

are generally scattered and transient. Pumas require vast undisturbed forest habitats, 

therefore the Project would result in disturbance to a small portion of potential puma 

habitat in the region due to its use of existing ROWs. For this reason, it is expected that 

the Project would not result in direct impacts to Pumas nor would it pose an adverse 

impact to Puma habitat within the State. The MnDNR and LLDRM have determined 

that the Project may affect individual pumas within Route 3 and its Segment 

Alternatives but is not likely to affect the viability of the Planning Area or not cause a 

trend towards federal listing (Otter Tail Power et al., 2010a). Consultation with these 

agencies regarding formal concurrence with these findings is still ongoing. 

The Project is not located within designated critical habitat for the gray wolf. 

Observations (Otter Tail Power et al., 2010a) indicate the likely presence of a single wolf 

pack whose territory includes the ROWs. However, the LLDRM has indicated that 

between four and seven gray wolf packs may be located in proximity to Route 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

261 

3.8 Species of Special Concern 

Alternative 3 (LLDRM, 2010a). The Recovery Plan for the Eastern Timber Wolf (USFWS, 

1992), which is the same species as the Gray Wolf, identifies five main factors critical to 

the long-term survival of this species, including: 

1) large tracts of wild land with low human densities and minimal accessibility by 

humans; 

2) ecologically sound management; 

3) availability of adequate wild prey; 

4) adequate understanding of wolf ecology and management; and 

5) maintenance of populations that are either free of, or resistant to, parasites and 

diseases new to wolves, or are large enough to successfully contend with their 

adverse effects. 

The Project would not cause a major effect on these five critical factors because the 

Project would not contribute to a direct loss of suitable habitat or fragmentation of 

additional habitat, or an indirect decline in prey species due to habitat loss. 

The overall footprint of the Project would not eliminate habitat, and is not expected to 

have a major effect the wolf population in the region. The Gray Wolf population in 

Minnesota (estimated at 2,922 gray wolves) is considered fully recovered by MnDNR 

because it has surpassed the federal delisting goal of 1,251 to 1,400 wolves. Therefore, 

the Project would not adversely affect Gray Wolf in Minnesota. The USFWS has 

determined that that the Project would be not likely to adversely affect the gray wolf 

and the CNF and LLDRM have determined that the Project may adversely affect 

individuals but is not likely to affect the viability of the Planning Area (HDR, 2009). 

Consultation with these agencies regarding formal concurrence with these findings is 

still ongoing. 

As with the other Route Alternatives, the inherent flexibility in the micro-siting of the 

Project makes it unlikely that there would be adverse impacts to species of concern 

within the ROW for this alternative. However, the ultimate determination of the 

potential impacts of Route Alternative 3 is dependent upon the final design and location 

of the ROW within the Study Area. For more details on the effects to these species 

please see the Biological Assessment/Biological Evaluation in Appendix G.

3.8.2.6. Route Alternative 4 

Route Alternative 4 supports a comparable species composition to Route Alternative 

2, but with a lower number of overall occurrences (Le Conte’s sparrow, bald eagle, 

black-backed woodpecker, dissected grapefern, pale moonwort, St. Lawrence 

grapefern, least moonwort, spatulate leaved sundew, clustered bur-reed, and Canada 

yew). Many of the forest-dependent (triangle moonwort, mingan moonwort, Canada 

yew), aquatic-dependent (spatulate-leaved sundew and clustered bur-reed), and 

disturbance tolerant (dissected grapefern and pale moonwort) species occur within 

this Route Alternative. Therefore, the potential exists for similar indirect impacts to 

these species, as those already discussed for Route Alternative 1. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

262 

3.8 Species of Special Concern 

Least moonwort, an open canopy/grassland species, is known to occur within Route 

Alternative 4. This species would have the potential for direct losses due to ROW 

clearing and maintenance. However, if the species were avoided during these 

activities, then the long-term impacts would be expected to be minimal. 

The inherent flexibility in the micro-siting of the Project makes it unlikely that there 

would be adverse impacts to species of concern within the ROW for this Route 

Alternative. However, the ultimate determination of the potential impacts of this 

Route Alternative is dependent upon the final design and location of the ROW within 

the Study Area. The MnDNR, CNF, and LLBO/LLDRM have determined that the 

Project may affect individual mammals and forest and riparian-dependent plants 

within Route Alternative 4, but is not likely to affect the viability of the Planning 

Area or not cause a trend towards federal listing (Otter Tail Power et al., 2010a). 

Consultation with these agencies regarding formal concurrence with these findings is 

still ongoing. For more details on the effects to these species please see the Biological 

Assessment/Biological Evaluation in Appendix G. 

3.8.2.7. Leech Lake Reservation 

Within the LLR, the only threatened, endangered, or sensitive species with the potential 

to be impacted would be within, or immediately adjacent to, the construction and 

operational ROW for the Project. There are 35 LLDRM sensitive species known to occur 

within the LLR portion of one or more of the Route and Segment Alternatives (Table 3.8-

7). The potential impacts to these species are discussed as part of the general and Route 

Alternative-specific impacts discussed above. The MnDNR and LLDRM determined 

that the use of Route Alternative 1 would jeopardize the only known one-flowered 

broomrape population in Northern Minnesota (Otter Tail Power et al., 2010a). 

Approximately 60 percent of Route Alternatives 1, 2, and 4 are within the LLR, while 

less than 1 percent of Route Alternative 3 is within the LLR borders. Although Route 

Alternative 3 does provide habitat for LLDRM sensitive species, these habitats do not 

occur within the LLR boundary. Therefore, the potential effects of Route Alternative 3 

on the availability of LLDRM sensitive species within the LLR are negligible. To the 

extent that Route Alternative 3 would impact LLDRM sensitive wildlife species outside 

of the LLR, it is possible that these effects could indirectly influence the availability of 

these resources within the LLR. Although relative to Route Alternatives 1, 2, and 4, the 

potential effects would likely be minimal. There are no Segment Alternatives associated 

with Route Alternatives 1 and 2 that would reduce the amount of the Route Alternatives 

within the LLR. Additionally, each of the Segment Alternatives also provide habitat for 

LLDRM sensitive species, therefore use of these Segments would not wholly avoid 

impacts to LLDRM sensitive species. 

The potential mitigation measures available to offset these impacts would be 

comparable to those for the Route Alternatives, as described in Section 3.8.3. For more 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

263 

3.8 Species of Special Concern 

details on the effects to these species please see the Biological Assessment/Biological 

Evaluation in Appendix G.

3.8.2.8. Chippewa National Forest 

Within the CNF, the only RFSS species with the potential to be impacted would be 

within, or immediately adjacent to, the construction and operational ROW for the 

Project. There are 20 RFSS species known to occur within the CNF portion of one or 

more of the Route and Segment Alternatives (Tables 3.8-1 through 3.8-6). The potential 

impacts to these species are discussed as part of the general and Route Alternativespecific impacts, discussed above. 

Approximately 50 percent of the total areas for each of the Route Alternatives are within 

the CNF; however, it should be noted that the total area of Route Alternative 3 within 

the CNF is approximately 40 percent larger than Route Alternatives 1, 2, or 4. There are 

no Segment Alternatives associated with any of the Route Alternatives that would 

reduce the amount of the Route Alternatives within the CNF. Additionally, each of the 

Segment Alternatives also provide habitat for RFSS species. Therefore, use of these 

Segments would not wholly avoid impacts to RFSS sensitive species relative to the main 

Route Alternative. 

The potential mitigation measures available to offset these impacts would be 

comparable to those for the Route Alternatives, as described in section 3.8.3. For more 

details on the effects to these species please see the Biological Assessment/Biological 

Evaluation in Appendix G.

3.8.3. Mitigation 

The primary mitigation measure for these species is avoidance of known locations to 

ensure that long-term project features (i.e., transmission line poles and support 

structures) are not located on top of, or immediately adjacent to, these species. The 

inherent flexibility in the micro-siting of the Project makes it unlikely that there would 

be adverse impacts to species of concern within any of the Route Alternatives. 

In the event that the species cannot be avoided, potential impacts could be reduced by 

fencing or flagging special concern species populations to prevent disturbance. 

The MnDNR generally does not consider transplantation to be acceptable mitigation for 

taking of endangered or threatened species. In the event a take does occur, 

compensatory mitigation includes: 

• funding state acquisition of another site where the species occurs that is currently 

unprotected and vulnerable to destruction; 

• funding additional survey work to locate other sites; and/or 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

264 

3.8 Species of Special Concern 

• funding research to improve our understanding of the habitat requirements or 

protection needs of the species. 

To reduce impacts to known sensitive species, the Applicants have agreed to the 

following mitigation measures, which are also discussed above: 

• Once selected, the approved route would be subject to field surveys prior to final 

design of the project. If impacts to these species would be unavoidable, 

mitigation measures including fencing/flagging during construction, or 

compensatory mitigation including off-site habitat preservation, funding 

sensitive species research and survey work, would be evaluated. 

• To facilitate access to the ROW for maintenance, emergency situations, and to 

allow for visual identification during aerial surveys, the ROW must be 

periodically cleared of vegetation. To minimize impacts to the nesting success of 

species of concern, clearing activities would be completed outside of the 

breeding season (April 15 and August 1). 

• In addition to siting around known locations of special concern species and 

conducting maintenance activities outside of the breeding season, the Project 

would conduct pre-construction surveys and avoid identified active nesting and 

breeding locations by the following minimum distances: Raptors – 330 feet with 

limited activity within 660 feet; Colonial Waterbirds – 660 feet; and Gray Wolf 

dens – 0.5 mile. MnDNR recommends that construction and logging should 

not occur within at least 0.3 mi of an active northern goshawk nest during the 

breeding season of February 1st through August 1st. 

• The Department of Interior recommends siting high voltage transmission lines 

at least two miles away from nests, foraging areas, and communal roosts of 

bald eagles. The recommendation may not be feasible to follow given the 

high density of bald eagles in the Study Area. Impacts to individuals, nests, 

and habitat would be minimized by implementing construction restrictions 

during the breeding season, if activities are proposed within 660 feet of an 

active nest. 

• If previously unknown nesting/breeding sites are identified during construction, 

the Applicants would notify the appropriate resource agencies. 

• If an active gray wolf den is located during construction, construction activities 

would be restricted to avoid failure or abandonment of the denning site. 

Location and avoidance measures would be coordinated with the USFWS, 

CNF, DRM, and DNR, as appropriate. 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

265 

3.9 Cultural Resources and Values 

3.9. Cultural Resources and Values 

This section of the EIS identifies known cultural resources in the Study Area. 

Cultural resources will continue to be identified as consultation under Section 106 of 

the National Historic Preservation Act proceeds. 

3.9.1. Introduction 

There is no legal or generally accepted definition of “cultural resources” within the 

Federal government. The term, however, is used throughout the Federal government to 

refer to historic, aesthetic, and cultural aspects of the human environment. Under the 

National Environmental Policy Act (NEPA) the human environment includes the 

natural and the physical (e.g., buildings) environment, and the relationships of people to 

that environment. Accordingly, a thorough NEPA analysis should address the human 

(social and cultural) and natural aspects of the environment, and the relationships 

between them. In meeting its requirements as the lead agency for NEPA, RUS must 

consider the impact of its actions on all aspects of the human environment, including 

“cultural resources.” 

Cultural resources include archeological sites, defined by the National Park Service as 

locations “that contain the physical evidence of past human behavior that allows for its 

interpretation;” buildings; structures; and traditional resources and use areas. Those 

cultural resources which qualify for listing in the National Register of Historic Places 

(NRHP) must meet one or more of the following criteria for evaluation: 

The quality of significance in American history, architecture, archaeology, 

engineering, and culture is present in districts, sites, buildings, structures, and 

objects that possess integrity of location, design, setting, materials, workmanship, 

feeling and association, and: 

• That are associated with events that have made a significant contribution to 

the broad patterns of our history; or 

• That are associated with the lives of persons significant in our past; or 

• That embody the distinctive characteristics of a type, period, or method of 

construction, or that represent the work of a master, or that possess high 

artistic values, or that represent a significant and distinguishable entity 

whose components may lack individual distinction; or 

• That yielded, or may be likely to yield, information important in prehistory 

or history (National Register Bulletin: How to Apply the Criteria for 

Eligibility, NPS, 1997). 

The NRHP is a commemorative listing of those resources significant to the American 

past. Those cultural resources listed on or eligible for listing on the NRHP are 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

266 

3.9 Cultural Resources and Values 

designated “historic properties.” Under the National Historic Preservation Act (NHPA), 

as amended 2006, “historic property” means “any prehistoric or historic district, site, building, 

structure, or object included in, or eligible for inclusion on the National Register, including 

artifacts, records, and material remains related to such a property or resource (16 U.S.C. 470w). 

In accordance with Section 106 of NHPA, 16 U.S.C. § 470f, RUS is required to take into 

account the effect of its undertakings on historic properties. The regulation, “Protection 

of Historic Properties” (36 CFR Part 800), implementing Section 106 establishes the 

process through which RUS and other federal agencies consider effects to historic 

properties in their decision making. 

Together, Minnkota Power Cooperative, Inc., Otter Tail Power Company, and 

Minnesota Power (Applicants) propose to construct approximately 68 to 116 miles of 

230 kV transmission line between the cities of Bemidji and Grand Rapids in Northern 

Minnesota. Minnkota Power Cooperative, Inc., is seeking financial assistance from 

RUS to support its part of this proposal. RUS may fund this application, thereby 

making the Applicants’ proposal an undertaking subject to review under Section 106 of 

NHPA and its implementing regulation (36 CFR Part 800). In addition, the U.S. Army 

Corps of Engineers (USACE) is considering the issuance of permits for the Applicants’ 

proposed project under Section 10 of the Rivers and Harbors Act of 1899 (33 U.S.C. 403) 

and Section 404 of the Clean Water Act, (33 U.S.C. § 1344). The USACE may issue these 

permits thereby making the Applicants’ project an undertaking subject to review under 

Section 106. Finally, the proposed project requires a Special Use Permit from the U.S. 

Forest Service (USFS) under 36 CFR § 251.58 to cross land within the Chippewa National 

Forest (CNF). The USFS-CNF may issue the Special Use Permit thereby making the 

Applicants’ project an undertaking subject to review under Section 106. 

In accordance with 36 CFR § 800.2(a)(2), USACE and CNF have designated RUS as the 

lead agency who shall act on their behalf, fulfilling their collective responsibilities under 

Section 106. As the lead agency, RUS is coordinating compliance between the Section 

106 procedures and the steps taken to meet NEPA requirements. As such, studies and 

analyses conducted to comply with NEPA, including this EIS, would be used and 

expanded as appropriate by RUS to meet the requirements of Section 106. Pursuant to 

36 CFR § 800.2(d)(3), RUS has used its NEPA procedures to meet its requirements for 

public involvement under 36 CFR Part 800. 

3.9.2. Geographic Scope 

Pursuant to 36 CFR § 800.16(d), the area of potential effects (APE) is defined as the area 

within which the Applicants’ proposal has the potential to either directly or indirectly 

affect historic properties that may be present. Currently, the APE includes the 1,000-

foot-wide route for each build alternative under consideration in this EIS. However, the 

APE also must address visual effects. Given the height of the proposed structures and 

the requirement to maintain an alignment cleared of vegetation, this project could alter a 

historic property’s integrity by diminishing its setting or feeling. Accordingly, the APE 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

267 

3.9 Cultural Resources and Values 

would be adjusted and refined as RUS learns more about the historic properties that 

might be present and the project’s specific effects on them. 

3.9.2.1. Study Area 

The study area includes the entire geographic area evaluated in order to develop all of 

the alternatives proposed in the Macrocorridor Study and Alternatives Evaluation Study. 

As such it encompasses the APE, but is much broader. 

3.9.3. Consultation 

This section describes the consultation process for the Project, which is ongoing. 

3.9.3.1. Early Coordination 

The alternatives which were initially proposed by the Applicants in 2006 not only cross 

the CNF, but also lie within the exterior boundary of the reservation of the Leech Lake 

Band of Ojibwe Indians (LLBO). Given the geographic relationship between the project 

alternatives and the reservation, the LLBO was invited to become a cooperating agency 

under NEPA for the development of this EIS. This geographic relationship and the 

establishment of its Tribal Historic Preservation Office (THPO) also affords the LLBO a 

special role in Section 106 review and in the development of applicable agreements. 

Accordingly, shortly after forming their utility partnership in 2006, the Applicants began 

meeting with the CNF and the LLBO. 

Then, on November 28, 2006, the Applicants met with RUS, CNF, LLBO and the Bureau 

of Indian Affairs (BIA) Midwest during which participants discussed creation of a 

cooperating agency agreement and development of a plan of action that would establish 

how to best proceed to incorporate the requirements of both NEPA and Section 106. 

In an effort to avoid unnecessary duplication as much as possible, RUS considered the 

various requirements of the federal and state regulatory agencies with the intent of 

bringing those all together into one environmental document. 

Discussion between the Applicants, the CNF, the LLBO, the counties, townships and 

cities and the public continued throughout 2007. The Applicants attended Local Indian 

Council (LIC) meetings and hosted numerous open houses in an effort to present the 

project and gather input on the route alternatives that had been proposed. During these 

discussions in the late Spring and early Summer, the LLBO expressed considerable 

concern that the proximity between the CNF, the reservation and Route Alternatives 1 

and 2, which had been proposed increased the likelihood that traditional resources 

important to the tribe could be negatively impacted. The LLBO also voiced concern 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

268 

3.9 Cultural Resources and Values 

about the possible cumulative effects of the project as proposed at that time when 

considered with the impending construction of the Enbridge Pipeline. 

The LLBO specifically requested that the project avoid any impact to that part of the Ten 

Section from east of Pike Bay to U.S. Highway 2. The Ten Section was originally set 

aside under the Morris Act (1902) to protect old-growth red and white pine from logging 

and illegal timber theft. The CNF has long managed Ten Section with a focus on 

retention of old-growth forest characteristics and natural processes. As such, it is a 

landscape that contains traditional resources and uses, and areas important to the LLBO. 

In July 2007, the Applicants filed draft versions of the Macrocorridor Study and the 

Alternatives Evaluation Study with the RUS. 

In response to these documents, the LLBO again expressed grave concern about the 

proposed use of the Central Corridor. According to the LLBO, the proposed central 

corridor is already cluttered with infrastructure so this project would further diminish 

lands that had been set aside as the homeland of the tribe. This additional loss of land 

from this project further diminishes the opportunity for LLBO band members “to practice 

traditional, cultural and spiritual activities” (LLBO, 2007) within the proposed corridor. 

The LLBO THPO was particularly concerned about the adequacy of the steps that had 

been taken thus far to identify historic properties, particularly those to which the tribe 

might attach religious and cultural significance. The THPO pointed out that the MCS 

and AES which had been filed in 2007 mention rice beds only in connection with their 

economic importance to native communities; completely ignoring the importance of 

these places as “a cultural identifiable resource” (LLBO, 2007). 

In response to the LLBO’s comments, as well as comments from the CNF, DRM and 

other agencies, RUS identified three additional macrocorridors. After review of 

summary environmental data, including summary information about known cultural 

resources, for each of these three macrocorridors, RUS selected one to be included for 

evaluation in the EIS. 

3.9.3.2. Consultation 

Multiple meetings among the agencies throughout 2007 culminated in development of a 

final draft plan of action titled, “Plan of Action for NHPA Compliance and Tribal 

Consultation, Proposed Bemidji to Grand Rapids 230 kV Transmission Line, Minnesota” 

(July 17, 2007) that affirmed the role of RUS as lead agency for compliance with Section 

106, but directed the USACE to initiate consultation on behalf of the lead agency. In 

accordance with this plan of action, the USACE initiated consultation with the 

Minnesota State Historic Preservation Office (SHPO) in July 2007. The USACE invited 

Indian tribes to participate in government-to-government consultation in August 2007. 

The USACE selected the tribes to be invited using the Native American Graves 

Protection and Repatriation (NAGPRA) online consultation database, which lists those 

Indian tribes according to their interest in specific states and counties. With one 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

269 

3.9 Cultural Resources and Values 

exception, the Indian Tribes listed in Table 3.9-1 were invited to participate in 

consultation by the USACE on behalf of RUS. 

The invitations included a layout of the proposed corridor and a preliminary two-mile 

visual APE; a notification that the Applicants had retained the services of the Leech 

Lake Heritage Sites Program (LLHSP), an entity which provides cultural resources 

services primarily for the Leech Lake Reservation, to gather information and conduct 

surveys as needed to satisfy the requirements of 36 CFR Part 800; and a request for 

comment on the preliminary APE. The USACE followed-up this invitation to determine 

each tribe’s interest in participating in consultation and ensure that the invitation and 

other documentation had been received. 

As part of its efforts to better coordinate review under NEPA and Section 106, RUS 

distributed a scoping notice dated July 24, 2008 to the Minnesota State Historic 

Preservation Office (SHPO) and all of the Indian tribes listed in Table 3.9-1 with the 

exception of the Assiniboine and Sioux Tribes of the Fort Peck Reservation. At a 

meeting held in Bemidji, MN the next month between the agencies, the LLBO, the 

Applicants, and other parties, RUS assumed full responsibility for Section 106 review, 

including government-to-government consultation. 

In response to this notification and the earlier efforts of the USACE, in addition to the 

federal agencies and the SHPO, the following tribes had identified an interest in 

participating in consultation – the LLBO, Red Cliff Band of Lake Superior Chippewa, 

Mille Lacs Band of Ojibwe, Lower Sioux Indian Community and the Santee Sioux Tribe 

of Nebraska. In early 2009, the Assiniboine and Sioux Tribes of the Fort Peck 

Reservation contacted RUS directly with a request to participate in consultation. This 

request was granted by RUS. 

Table 3.9-1: Indian Tribes Invited to Consult 

Name of the Nation 

Leech Lake Band of Ojibwe Red Cliff Band of Lake Superior Chippewa 

Bois Forte Band of Chippewa Red Lake Band of Lake Superior Chippewa 

Bad River Band of Lake Superior Chippewa Santee Sioux Nation, Nebraska 

Flandreau Santee Sioux Tribe of North Dakota Sisseton-Wahpeton Oyate of the Lake Travese Reservation 

Fond du Lac Band of Lake Superior Chippewa Sokogan Chippewa Community 

Grand Portage Band of Lake Superior Chippewa Spirit Lake Nation 

Keweenaw Bay Indian Community St. Croix Band of Lake Superior Chippewa 

Lac Courte Oreilles Band of Lake Superior Chippewa Upper Sioux Community 

Lac Vieux Desert Band of Lake Superior Chippewa White Earth Band of Ojibwe 

Lower Sioux Indian Community Assiniboine and Sioux Tribes of Fort Peck Reservation

Prairie Island Indian Community Mille Lacs Band of Ojibwe 

On January 16, 2009 via email, RUS invited the Section 106 consulting parties to 

attend a meeting scheduled for January 28th in Walker, Minnesota to consider each of 

the proposed alternatives and identify those which might be carried forward to 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

270 

3.9 Cultural Resources and Values 

analysis in the EIS. In addition, RUS hoped to determine the appropriate level of 

effort needed for the identification and evaluation of historic properties, and to 

resolve concerns about providing comparable information for analysis across 

alternatives. To support this deliberation, ERM prepared a report titled, Phase I 

Cultural Resource Investigation Research Design and Natural Resources Field Study 

Plan (January 2009), which presented selected information about known archeological 

sites within the Study Area, and recommendations on the types of studies that ought 

to be included in the EIS. Prior to the meeting, RUS provided the consulting parties 

with access to various project reports, maps and other documents. 

With the exception of the federal agencies and the LLBO, no other Section 106 

consulting parties attended the January 28, 2009 meeting. Accordingly, on February 

17, 2009, RUS hosted a teleconference to update consulting parties on the project, and 

to solicit their views and recommendations about which alternatives to carry forward 

to analysis in the EIS and the scope of Section 106 identification and evaluation 

studies. Based on the recommendations received, RUS and the Applicants drafted a 

scope of work for archeological and traditional resources surveys. The Applicants 

retained the LLBO THPO to conduct the traditional resources survey and the LLHSP 

to conduct the archeological study. 

RUS distributed the scopes of work for these surveys to the consulting parties for 

their review on July 2, 2009. RUS asked that consulting parties provide any 

information that might help inform the conduct or outcome of the survey effort. At 

that time, the APE for the undertaking included all alternatives because RUS had not 

yet issued a scoping decision identifying which alternatives would be carried forward 

to analysis in the EIS. Rather than wait for this decision to be issued, the Applicants 

decided to proceed with survey of Route Alternatives 1, 2 and 3 only. 

RUS received no comments or recommendations on the scopes of work for 

archeological and traditional resources studies. Accordingly, RUS advised the LLBO 

THPO and the LLHSP to proceed with survey to identify archeological and traditional 

resources within the APE. The archeological study reviewed existing information on 

recorded archeological sites from the databases of the SHPO, CNF and the LLBO 

THPO. This information served as the basis for development of a predictive model 

for archaeological site location. As part of the identification effort, the LLHSP also 

conducted pedestrian survey of public lands within Route Alternative 3 to ensure that 

comparable information about all of the alternatives under consideration would be 

presented in the EIS. For the traditional resources survey, the LLBO THPO 

interviewed tribal members to identify traditional resources and use areas located 

within the Route Alternative 2 corridor. The identification of these locations was 

followed by field verification. 

 

Following initiation of these studies, RUS advised consulting parties that, because of 

the large land area under consideration and the multiple corridors involved, RUS 

planned to phase identification, evaluation and application of the criteria of effect in 

accordance with 36 CFR §§ 800.4(b)(2) and 800.5(a)(3). Such phasing is appropriate 

“[w]here alternatives under consideration consist of corridors or large land areas” as is 

the case with the alternatives under consideration for the Project. Such phasing 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

271 

3.9 Cultural Resources and Values 

would be specifically provided for in a Programmatic Agreement (PA). The first draft 

of the PA was distributed by RUS to consulting parties on August 21, 2009. 

 

To facilitate the development of the PA, RUS convened a consultation meeting on 

September 21, 2009 in Walker, MN. At this time, the LLBO THPO, which hosted the 

meeting, informed RUS of other tribes that were now interested in participating in 

consultation. At the request of the LLBO THPO, the White Earth, Bois Forte Band of 

Chippewa and Mille Lacs Band of Chippewa also were invited to consult. The 

September 21, 2009 meeting was attended by RUS, the CNF, the LLBO THPO, the 

White Earth Band of Ojibwe, Bois Forte, the Lower Sioux Indian Community and the 

Applicants. After providing an update on project developments, RUS and the other 

participants identified and considered possible revisions to the draft PA. LLBO 

reiterated concerns about specific resources that are important to the tribe, such as the 

Ten Section Area. 

RUS considered the comments and recommendations about the PA and other related 

issues that had been provided at the September 21, 2009 meeting in preparing the 

Cultural Resources section of the DEIS and the next revision of the PA. Specifically, 

RUS wanted to ensure that the EIS reflected the cultural significance of the Ten 

Section Area to the LLBO, and clearly acknowledged the agency’s awareness of its 

responsibility under Section 106 to consider effects to historic properties as well as 

impacts to cultural resources under NEPA. 

While the DEIS was available for public review, RUS hosted another teleconference 

to consult about the terms of the PA on March 9, 2010. The issues discussed were 

related to land ownership, jurisdiction and responsibilities under NAGPRA. As a 

follow-up, RUS set aside a portion of the time slated for the DEIS public meetings to 

solicit comments on issues related to cultural resources and Section 106. RUS again 

met with consulting parties on March 23, 2010 to provide them with an update on the 

status of the studies, and continue consideration and development of the terms of the 

PA. Although the draft PA had been revised to address LLBO THPO concerns, 

outstanding issues remained. For example, the LLBO THPO observed that roles and 

responsibilities of all of the Applicants had not been precisely identified in the PA. 

In addition, the LLBO THPO wanted the PA to do a better job discriminating 

between the role of the THPO and that of the SHPO. 

Shortly thereafter, on April 12-13, 2010, RUS distributed the following three 

identification reports to consulting parties for their consideration – Summary Report 

of a Records Review and Cultural Resources Sensitivity Model for Proposed Routes of a 

230 kV Electrical Transmission Line from Bemidji to Grand Rapids in Beltrami, Cass, 

Hubbard and Itasca Counties, Minnesota (Wells, 2009); Summary Report of Preliminary 

Fieldwork Conducted on Selected Portions of Route 3 of the Proposed 230 kV 

Transmission Line Proposal in Beltrami and Itasca Counties, Minnesota (Foss and 

Wells, 2009); and A Traditional Cultural Property Survey of the Bemidji to Grand 

Rapids 230 kV Transmission Line Proposal in Cass and Itasca Counties of Minnesota, 

on the Leech Lake Reservation (Lemon, 2010). Then, on May 6, 2010, RUS convened a 

meeting of the consulting parties to discuss the findings and recommendations of 

these reports and consider further revision of the draft PA. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

272 

3.9 Cultural Resources and Values 

Regarding the terms of the PA, consulting parties asked that RUS consider including 

a provision that would require tribal participation during any subsequent 

identification surveys as well as use of tribal monitors once construction has begun. 

The LLBO THPO requested that the PA adopt, as mitigation measures, 

recommendations contained in the traditional resources report (Lemon, 2010). At a 

later discussion, the Minnesota SHPO requested that RUS broaden the scope of the 

PA to ensure that visual effects NRHP listed or eligible above-ground resources also 

will be considered. All of the comments that have been provided by consulting 

parties will be considered by RUS in developing the final PA. 

Any additional consultation that is needed to develop and execute the PA will be 

accomplished in accordance with 36 CFR Part 800. 

3.9.4. Cultural Resources History of the Study Area 

This section discusses the history of the Study Area as it relates to cultural resources. 

3.9.4.1. Introduction 

Only a few archeological sites date to the earliest periods of human occupation. The 

vast majority of these human habitations were located near bodies of open water. Many 

of these water-oriented habitation sites have been found along margins of bogs that once 

held open water but may be hundreds of feet from present shorelines. Other sites have 

been submerged due to natural fluctuations of lake levels in past millennia or flooding 

caused by construction of dams in the past 120 years. Wind-blown sands that were 

deposited over parts of the area several thousand years ago may also bury some sites in 

upland settings. 

The remaining more recent sites include those associated with industrial logging 

(beginning about 1890), homesteading and Anishinabe home sites, early resorts and 

tourism, and depression era sites developed through governmental natural resource 

management programs. Anishinabe traditional use areas, most of which pertain to 

natural resource gathering, have also been recorded and mapped within the CNF. The 

numbers of these types of locations likely would increase as our knowledge of them is 

better developed. 

The traditional landscape occupied by American Indian peoples within the project area 

prior to the arrival of Europeans has been altered forever by these activities. However, 

core beliefs and traditional practices continue to flourish among local Anishinabe 

despite the enormous pressures to adopt western culture to the exclusion of their own, 

or to be forcibly separated from the vast majority of their traditional land and resource 

base. The removal of the land base and alterations in its use through the construction of 

dams, industrial logging, and other developments has significantly affected the 

distribution and accessibility of traditional resources. Maintaining the health, 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

273 

3.9 Cultural Resources and Values 

availability and access to these resources is of vital concern to Indian tribes involved in 

traditional practices within the area. 

3.9.4.2. Background 

Following the deglaciation that occurred about 12,000 years ago, the area within and 

surrounding the APE has been a focal point for human settlement. Archeological sites 

within the area reveal human presence as early as about 9,000 years ago. The evidence 

of these early inhabitants comes from a few, usually deeply buried, archeological sites 

that are small with few artifacts. (Risjord, 2005; Dobbs, 1990a and 1990b). From that time 

forward, humans have affected their surroundings in a variety of ways, and the extent 

and intensity of the human impacts on the environment has increased through time. 

Historically, human settlement within and immediately surrounding the APE is 

distinctive due to several factors, such as the cultures present; abundant food staples 

from an aquatic system that included vast fish resources and extensive wild rice beds; 

the opportunity for unimpeded water transport; and proximity to major prairie and 

forest ecotones. 

With the possible exception of the use of fire, impacts of the earliest people within the 

ecosystem would be local and of short duration given low population density and a 

nomadic settlement pattern. As the millennia pass, however, the archeological record 

reveals the use of new technologies and subsistence-settlement patterns that support 

larger populations, living in semi-permanent or regularly visited habitation areas. These 

changes are evidenced in the last three thousand years, and are most clearly recognized 

in the past one thousand years. 

About 6,000 years before present, material remains evidence a changing adaption that 

has been designated as the Archaic period. Cultures of this period continued reliance on 

large game hunting and evidence increasingly diversified technologies associated with 

hunting, trapping, fishing, foraging, woodworking and plant processing. This 

diversification of culture and associated technologies is believed to reflect a more highly 

regionalized adaptation to local environmental conditions. Chipped stone tools, such as 

stemmed and notched projectile points, dominate, but the use of pecked and ground 

stone implements also became widespread. Evidence of the exploitation of diverse floral 

and faunal resources suggests a seasonal round type subsistence-settlement system, with 

habitation areas often located along the margins of lakes and major rivers. 

Archeological investigation has established that at this time trade networks connected 

the Archaic cultures of Minnesota with resources as far away as the Gulf of Mexico 

(Anfinson, 1987; Wilford, 1941, 1955, and 1960; Risjord, 2005). 

While intensive gathering continued to provide the bulk of subsistence, designated as 

the Woodland period, beginning about 800 BC, also appears to have been associated 

with incipient plant domestication. Wild rice, however, remained a staple food. 

Settlement patterns resembled those appearing previously, with particularly intense 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

274 

3.9 Cultural Resources and Values 

occupation of stream/lake junctions late in the period. An especially significant 

technological innovation of the Woodland peoples is the development of ceramics. 

Earthwork (mound) construction frequently associated with mortuary activity also 

developed at this time. 

The larger populations of the last several centuries prior to the arrival of Europeans 

created greater impact within the ecosystems than previous occupations. The 

development of fire-dependent vegetative communities within this area is likely the 

direct result of the human use of fire during this time. With the exception of fire, 

however, these impacts would continue to be localized. In terms of wide-ranging 

landscape processes, human impact through the use of fire was a major process. Prior to 

the latter half of the nineteenth century, forest communities of the area were largely 

shaped by fire that often swept in from the prairies to the west or was ignited, either 

accidentally or purposefully, by local native communities. These re-occurring 

disturbance events influenced present day vegetation communities and brought a 

unique “prairie influence” to the area. 

It is possible that several hundred, perhaps as many as a few thousand people could 

have lived within the area at various points in time during these later centuries. Such 

occupation could affect the local availability of plant and animal resources. Regularly 

visited habitation areas would have created non-forested openings, diminished wood 

available for fuel or building materials and otherwise altered local plant communities. 

In the area within and surrounding the APE, the archeological remains of these have 

dense middens of processed, burned, and trampled animal bone and other debris and 

occasionally include the development of anthropic soil horizons. While scores of 

archeological sites identified along the shorelines attest to the impact of early aboriginal 

people, such effects are minor when compared with the large-scale extraction of 

resources to come with the arrival of Europeans. 

By about 1630, the western portions of what was to become the state of Minnesota were 

occupied by the Yankton Dakota, while the Santee Dakota occupied the east. The 

traditional tribal cultures were disrupted during the mid-seventeenth century, as 

European explorers and trade goods began to enter the region. French fur traders were 

among the first Europeans to arrive in northern Minnesota in the 1650s. As early as 

1660, Sault Ste. Marie, traditionally a seasonal gathering place during the whitefish run, 

became a year-round stopping place for tribes due to the opportunity to trade with 

Europeans (Meyer, 1994). European trade, primarily for furs, created new pressures on 

and among the tribes of the region. 

By the mid-1700s in the northeast of what was to become Minnesota the Anishinabe had 

largely displaced the Dakota. According to Anishinabe tradition, the five original clans 

emerged from an ocean which could have been the Atlantic Ocean. Sometime prior to 

1500, the Anishinabe began a migration through the Great Lakes watershed to find a 

place where food grows on water (i.e., wild rice), guided by a vision of a miigis shell 

(Meyer, 1994; Benton-Banai, 1979). Anishinabe oral tradition relates a 500-year journey, 

with some groups settling along the way. The O’daw-wahg’, who provided goods and 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

275 

3.9 Cultural Resources and Values 

were later called the Ottawa, settled at Lake Huron. The Ish-ko-day’-wa-tomi, who 

maintained the Sacred Fire and were later called the Potawatomi, settled in Michigan, 

first near the Mackinac Strait and then in lower Michigan. The Ojibway, who were the 

Faith Keepers, continued west to Lake Superior. The migration ended at Madeline 

Island, southernmost of the Apostle Islands and the location of La Pointe, Wisconsin 

(Benton-Banai, 1979). By the late 1600s through the fur trade and conflict, the 

Anishinabe were expanding displacing the Sioux tribes south and possibly further west 

(Gibbon, 2002). 

In the 1700s, the first Anishinabe settlements in the region were located on small islands 

in Leech Lake (LLBO, 2009). The Anishinabe, like the Dakota tribes, seasonally 

harvested fish, game, maple sugar, fruit, berries, roots, and wild rice. Fish were 

harvested by netting and spearing, both from canoes and through ice. Fish were 

preserved by salting, smoking, or drying (Risjord, 2005). Even without agriculture, the 

plentiful wild rice and fish around Lake Superior allowed the Anishinabe to live in 

sedentary villages for seven months of the year, usually right at the lakeshore, but also 

along rivers and streams. Birchbark was employed in home and canoe construction and 

container manufacture. Cedar wood and bark were also used for these purposes. Sweet 

grass and sage were also harvested, and often burned for medicinal and spiritual 

purposes (McClurken, 2000). 

Beginning in 1837, treaties between the Anishinabe and the U.S. government opened the 

way for Euroamerican settlement. The establishment of Fort Snelling at the confluence 

of the Minnesota and Mississippi Rivers accelerated this settlement. First fur trading, 

then logging, agriculture, and mining attracted Euroamerican settlers to Minnesota 

(Risjord, 2005) which first became a Territory in 1849 and then the 32nd state in 1858. 

In 1854 and 1855, treaties between the Anishinbe and the U.S. government allocated 

permanent reservation lands within ceded territories to the tribe, a rare provision at the 

time (Risjord, 2005). The Leech Lake Reservation was established by treaty in 1855, with 

revisions to reservation boundaries made in 1864, 1873, and 1874 (LLBO, 2009). 

Through treaty and federal legislation most of the ancestral lands of the Anishinabe 

people were ceded and opened to logging, farming and permanent settlement by 

Euroamericans in the late nineteenth century. A Forest Reserve that would eventually 

become the Chippewa National Forest was established in 1902. This era of increased use 

and settlement forever changed the character of the area in a number of ways. 

Commercial tree harvesting and the suppression of fire affected the composition, 

structure, and spatial arrangement of forested landscapes, and thus have likely affected 

associated wildlife. With the industrial logging initiated in the area that includes the 

APE a century ago, most of the old-growth pine was removed from the landscape within 

just a few years. The slash left behind in cutover areas created a high risk of catastrophic 

wildfire and the era of active fire suppression began. Fire suppression has caused a 

decline in fire dependent pine forests with an increase in those forest species, such as 

hardwoods, balsam fir and dense shrubs, that often displace fire-dependent 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

276 

3.9 Cultural Resources and Values 

communities in the absence of fire. While pine remains a major forest component and is 

still harvested, commercial timber operations of more recent decades have focused 

primarily on the use and regeneration of aspen. 

During the early days of pine logging, the practice of temporarily damming waterways 

to provide flow for floating logs also altered both terrestrial and aquatic habitats. 

Permanent dams at Stump Lake, Cass Lake, and Lake Winnie and other smaller control 

structures now control water levels in the Mississippi River and headwaters lakes. One 

of the most dramatic permanent changes came with the construction of Winnie Dam, 

which raised the water elevation in the lake by about nine feet, and in the Turtle River 

flowage. These dams have changed the natural hydrology, affected aquatic and riparian 

communities associated with the lakes and rivers, and altered human use and settlement 

of shoreline areas. 

Over the past 250 years of Euroamerican settlement, ecosystems within the project area 

have been affected through human intervention by a variety of means including the 

nearly complete removal of several fur-bearing mammal species during the fur trade 

era, and the removal and regeneration of timber resources on a vast scale beginning in 

the late 19th century. Development of more permanent human settlements, increasingly 

dependent on national and international economic systems, accompanied these changes. 

This was expressed in the development of modern land transportation routes, the 

construction of dams to float logs and to provide reliable water levels for business 

interests downstream, the elimination of fire from the ecosystem, the construction of 

summer homes, resorts and other recreation sites, the development of modern sports 

fisheries and wildlife management to serve larger human populations, and farming. 

All of these cultural resources represent a remarkable record of human history that 

continues to have religious or spiritual significance to present day communities. 

Although much of the resource remains in good condition they are all potentially subject 

to a variety of threats. Scores of archeological sites have been damaged or destroyed 

through erosion associated with drastic water level fluctuations brought by construction 

of logging dams. Modern human use of shoreline areas for recreational access has also 

created erosion that has affected heritage sites. Other sites have been damaged through 

earth disturbing developments prior to the advent of legislation protecting heritage 

resources on public lands. Even with modern legal protections of heritage sites on public 

lands, human error in implementing project mitigation measures remains a threat. 

Private development of lakeshore or the margins of other riparian areas is an additional 

peril. A few sites in the area show physical evidence of vandalism or have had artifacts 

removed from surface exposures by relic collectors. 

3.9.5. Recorded Cultural Resources 

This section identifies recorded cultural resources within the Study Area, including 

archeological resources and traditional resources. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

277 

3.9 Cultural Resources and Values 

3.9.5.1. Archeological Resources 

The DEIS relied on a very preliminary review of existing information contained in a 

report prepared at the request of OES. The report titled, Phase I Cultural Resource 

Investigation Research Design, Proposed Bemidji-Grand Rapids 230-kV Electrical 

Transmission Line, Minnesota (ERM, 2009) contains records of search results and draft 

recommendations. Since then, more comprehensive literature reviews and 

reconnaissance level studies of the APE designed to gather information to determine 

the level of effort that will be needed to identify historic properties for the preferred 

alternative were completed by the LLHSP. This information, which was not available 

prior to publication of the DEIS, has now been incorporated into the FEIS. 

Many of the archeological resources recorded in the Study Area were identified 

through previous studies conducted for transportation projects, transmission and 

pipeline corridors, and surveys conducted on state and federally-owned management 

areas. Much of this information is maintained by the SHPO, although the USFS, 

LLHSP, the LLBO THPO, and the Office of the State Archaeologist keep their own 

records. Because of this, no one source should be considered a complete record of all 

recorded historic properties within the Project study area, but informational 

databases should supplement each other. Table 3.9-2 incorporates the data from the 

LLHSP studies (Wells, 2009; Foss and Wells, 2009) and compares the number of acres 

within each route alternative that have been previously investigated. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

278 

3.9 Cultural Resources and Values 

Table 3.9-2: Summary of Acres Surveyed per Route Alternative 

Route and Segment 

Alternatives 

Total Acres Acres Surveyed 

1 8,375 3,028 

2 8,147 2,274 

3 14,120 2,198 

4 7,749 Included in Route 

Alternatives 1 and 2 

Segment Alternatives 

A 1,922 0 

B 1,300 504 

C 543 322 

D 623 37 

E 1,301 27 

F 180 62 

G 204 0 

H 192 0 

I 77 0 

J 68 0 

K 732 86 

L 317 0 

M 311 <1 

N 471 351 

O 352 260 

P 64 7 

Q 46 1 

R 234 11 

S 133 0 

T 262 5 

Source: LLHSP, 2009. 

3.9.5.2. Traditional Resources 

In addition to archeological sites, cultural resources anticipated to be identified include 

those of traditional importance to the LLBO and other Indian tribes. Because 

traditional resources are essential to the maintenance and realization of tribal lifeways, 

their destruction or damage can have profound cultural consequences. 

Since the Project may impact resources of traditional importance and use to the LLBO 

and other Indian tribes, RUS engaged the LLBO THPO to conduct a preliminary 

study of traditional resources in the APE. The results of this study are presented in 

the report titled, A Traditional Cultural Property Survey of the Bemidji to Grand 

Rapids 230 kV Transmission Line Proposal in Cass and Itasca Counties of Minnesota, 

on the Leech Lake Reservation (Lemon, 2010). Although traditional resources could be 

impacted by any of the proposed Alternatives, this study focused almost entirely on 

Route Alternative 2. Major concerns with Route Alternative 1 had already been raised 

by LLBO and the study focused on Route Alternative 2 to compile an understanding 

of the traditional uses within the LLR for purposes of determining appropriate 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

279 

3.9 Cultural Resources and Values 

mitigation from impacts. The findings of the study were used to guide the 

development of appropriate mitigation projects on Chippewa National Forest 

managed lands (see Table ES-3). Route Alternative 4 generally follows Route 

Alternative 2 through the LLR and the CNF. 

The objective of this study was to identify and document traditional resources 

gathered by LLBO tribal members within the Route Alternative 2 corridor. To do so, 

information was gathered using individual interviews of LLBO tribal members and 

community meetings held by the LLBO Local Indian Councils (LIC). The individuals 

interviewed were those actively using the proposed Route Alternative 2 corridor to 

gather traditional resources or those with knowledge of traditional uses areas. By 

broadening the inquiry to include the LIC meetings, it was possible to obtain 

information on traditional cultural practices, traditional resource gathering and 

burials that may not be recorded in the LLBO THPO database. In addition to these 

sources, the survey gathered information from a database of traditional uses areas on 

the CNF that was developed by the CNF “to assist in determining how and where 

[LLBO] tribal members were exercising their traditional gathering rights.” This 

database contains information from over 400 LLBO members. 

Wild rice traditionally has been an especially important staple of tribal lifeways - 

subsistence and exchange. Wild rice grows naturally within Hubbard, Beltrami, Cass, 

and Itasca counties. Based upon the MnDNR inventory, the range of natural wild rice 

today includes 55 counties in Minnesota. These areas support a minimum of 64,328 

acres of natural wild rice when growing conditions are favorable. In particular, 

Beltrami County lakes support approximately 2,438 acres of wild rice; Cass County 

lakes support approximately 8,323 acres; Hubbard County lakes support 

approximately 963 acres; and Itasca County lakes support 8,448 acres (MnDNR, 

2008d). 

Other traditional resources within or near the Route Alternative 2 corridor are listed 

as follows by interviewees (Lemon, 2010): 

Medicinal Plants Sweet Grass 

Balsam Fir Hunting – Deer/Small Game 

Birch Bark Red Willow/Osier 

Porcupine Trapping Sugar Maple 

Pine/Pine Cone Swamp Tea 

Raspberry Choke Cherries 

Wild Grapes Cedar/Cedar Root 

Blueberry Sage 

Hazel/Nuts Basswood 

Berries Princess Pine 

Spruce 

In its numerous comments on this Project, the LLBO has continued to emphasize the 

value of the Ten Section Area (located south of Pike Bay) to the tribe. The LLBO also 

has expressed concern about potential impacts to the high conservation value forests 

within the Guthrie Till Plain. The area of the current Leech Lake reservation was 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

280 

3.9 Cultural Resources and Values 

established in 1855 as the homeland for the LLBO. The Ten Section Area was 

established within this reservation under the Morris Act (1902) to protect the few 

remaining old growth red and white pines. 

Given the ever increasing pressure on limited natural resources experienced within 

the Study Area within the last 100 years, it is likely that this reserve is perhaps even 

more important to the LLBO today than when it was first established. According to 

the CNF, “the old-growth forests of the Ten Section Area and the nearby northern 

hardwood forests of the Guthrie Till Plain/Cuba Hill Area include some of the most 

culturally important areas on the reservation for LLBO members to practice their 

traditional activities” (NPS, 2000). It is possible that some of the traditional cultural 

resources associated with these locations could meet the criteria for listing on the 

NRHP and be properties to which the LLBO attach religious and cultural significance. 

The report (Lemon, 2010) observes that the overwhelming testimonial from all tribal 

communities is that construction within the LLR boundaries would “result in the 

permanent loss of traditional resources and end traditional practices.” 

The locations of traditional resources and use areas indentified in the Lemon 2010 

report have not been individually evaluated for their eligibility for listing in the 

NRHP. However, the location of these use areas within and near the Route 

Alternative 2 corridor proximate to the Ten Section Area suggests that efforts to 

identify affected historic properties should not be exclusively focused on recording 

individual resources. Rather, the perspective should be broadened so that individual 

traditional resources and use areas can be evaluated for their contribution to a larger 

historic landscape that may exist. 

3.9.5.3. Built Resources 

In addition to archeological sites and traditional resources, the Project also may affect 

buildings and structures that are listed in or eligible for listing in the NRHP. 

Currently, there are 14 NRHP listed properties in Beltrami County, 47 in Cass County, 

including the CNF Supervisor’s Headquarters, and 30 in Itasca County, including the 

Marcell Ranger Station on the CNF. It is possible, therefore, that the Project because 

of its vertical height may diminish the integrity of a historic property by altering its 

setting and feeling, when those aspects are applicable. A detailed study to identify 

built resources, primarily those residential, recreational, commercial and industrial 

buildings, in the APE that are NRHP listed or eligible and might be affected by the 

Project will be conducted following selection of the preferred alternative and 

included as a requirement of the PA. 

3.9.5.4. Summary 

Table 3.9-2 summarizes preliminary findings from literature searches conducted as part 

of the Route Permit Application and in December 2008 (ERM, 2009), and additional 

database searches conducted in 2009 by LLHSP. The number of sites within each 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

281 

3.9 Cultural Resources and Values 

alternative was determined using a database search of SHPO files, and an analysis of 

SHPO topographic maps for the four counties through which the Route Alternatives 

would pass. Additional archival research was conducted by LLHSP to supplement the 

SHPO data using databases and files from the U. S. Forest Service and the Leech Lake 

THPO that may not have been previously available from the SHPO. This initial review 

is preliminary. Reconnaissance level studies of known archeological and traditional 

resources located the APE are underway, but their results were not final at the time this 

EIS was published. Also, to better compare the route alternatives, additional field 

research was conducted in 2009 on public lands on Route Alternative 3 by LLHSP. 

Results from the 2009 field survey include the identification of 14 newly recorded sites. 

 

Table 3.9-3: Summary of Cultural Properties By Route and Segment Alternative 

Route Alternative Historic Prehistoric Multi-component Total 

1 14 25 2 41 

2 25 11 2 38 

3 27 6 0 33 

4 8 10 1 19 

Segment B 1 0 0 1 

Segment C 3 0 0 3 

Segment E 12 0 0 12 

Segment F 1 0 0 1 

Segment K 2 6 1 9 

Segment N 3 0 0 3 

Segment O 1 0 0 1 

Segment R 1 0 0 1 

Totals 98 58 6 162 

 Source: HDR, 2010. 

 Note: Historic category includes historic archaeological sites, standing structures, and cemeteries. 

According to this data, 41 properties were identified in Route Alternative 1, 38

properties were identified in Route Alternative 2, 33 properties were identified in Route 

Alternative 3, and 19 properties were identified in Route Alternative 4. As shown in 

Table 3.9-3, Route Alternative 3 crosses the greatest number of cultural properties, while 

Route Alternative 2 crosses the least. 

3.9.6. Direct/Indirect Effects 

This section provides a description of the potential impacts of the No-Build Alternative, 

and Route Alternatives 1, 2, 3, and 4. 

The construction of new transmission line facilities could affect recorded and currently 

unknown cultural resources. The transmission line, with its pole installation and 

substation modification, has the potential to disturb archeological sites. The Project 

could alter the setting and feeling of historic structures or landscapes, or the setting of 

and access to traditional cultural properties. In areas not previously disturbed and 

where archeological potential is assessed to be high, such as near large lakes and river 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

282 

3.9 Cultural Resources and Values 

crossings, unrecorded archeological sites or traditional cultural properties may be 

affected during construction of transmission structures, substations and substation 

modifications, or access roads. Historic buildings or other sites may be impacted, as 

well, in that construction of modern transmission structures may impact the historic 

viewshed in which above-ground archeological and historic resources are located. 

Although extensive landscaping and contouring are not planned, possible impacts to 

archeological resources that would apply to all of the route and route segment 

alternatives include: 

• Subsurface excavations necessary to install structures 

• Disturbance to surface soils throughout the route as a result of heavy 

construction vehicle equipment operation 

• Disturbance to surface soils from dragging heavy objects (e.g., power poles) 

• Disturbance to surface soils through grubbing, stump removal, and grading 

Impacts to cultural resources, including historic structures, archeological sites, and 

traditional cultural properties, would be considered significant if they result in adverse 

effects to historic properties that are eligible for listing on the NRHP as defined by 

Section 106 of the NHPA. If a cultural resource is identified as an historic property, the 

historic significance of the property is determined by evaluating it in terms of its ability 

to meet the National Register criteria (36 CFR § 800.4 (c)(1)). A cultural resource that 

meets the criteria is considered an historic property entitled to the consideration 

afforded by Section 106 of the NHPA, as outlined in the Advisory Council on Historic 

Preservation’s implementing regulations (36 CFR 800). Potential impacts to each historic 

property would be evaluated in terms of the specific significance of the resource, and the 

potential for the Project to detract from that significance. However, it must be kept in 

mind that adverse effect under Section 106 does not equate with significant impact under 

NEPA, and that all aspects of a cultural environment need to be considered along with 

historic properties. 

For example, impacts to traditional resource use, such as wild rice harvesting, maple 

sugaring, sweet grass harvesting, or berry picking, would depend upon the 

requirements of the resource, and the Project alternative. Game animal populations, 

including fish, are not anticipated to be affected by the Project. No indirect effects to 

traditional resource appreciation and use are anticipated. Potential direct and indirect 

effects to biological resources (i.e., flora and fauna) are discussed in Section 4.7. 

Potential direct and indirect effects to species of concern are discussed in Section 4.8. 

3.9.6.1. No-Build Alternative 

The No-Build Alternative would not impact existing cultural resources either directly or 

indirectly. This alternative would allow for existing conditions to remain as they 

currently are. Archeological and historic resources would neither be preserved in 

another manner nor damaged under the No-Build Alternative. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

283 

3.9 Cultural Resources and Values 

3.9.6.2. Route Alternative 1 

Due to the number of pipelines constructed in the vicinity of Route Alternative 1, a 

number of cultural resource field surveys have been conducted within the area 

incorporated by this alternative. As indicated in Table 3.9-3, a total of 41 sites have been 

recorded within Route Alternative 1 including 14 historic sites, 25 prehistoric sites, and 

two multi-component sites. 

Segment Alternatives A, B, C, D, J, K, L, M, N, O, P, and Q are associated with this Route 

Alternative. Segment Alternative B included one historic site; Segment Alternative C 

included three historic sites; Segment Alternative K included two historic sites, six 

prehistoric sites, and one multi-component site; Segment Alternative N included 

three historic sites; and Segment Alternative 0 included one historic site. No sites 

were located within the other Segment Alternatives. 

A detailed study to identify built resources, primarily those residential, recreational, 

commercial and industrial buildings in the APE that are NRHP listed or eligible and 

might be affected by the Project, will be conducted following selection of the 

preferred alternative and included as a requirement of the PA. No building structures 

can be located within the ROW; therefore, the ROW could be sited to avoid direct 

impacts to historic properties. 

It is possible that the vertical height of the Project may diminish the integrity of a 

historic property by altering its setting and feeling, when those aspects are applicable. 

New transmission lines would result in a change in the existing viewshed of a historic 

property or could be seen from that property. Mitigation for visual impacts is 

discussed in greater detail in Section 3.1, Aesthetics. 

During construction, noise and dust may be created. The potential impacts of noise 

and dust are further discussed in Sections 3.21 and 3.2, respectively. These 

construction effects may be experienced by users and visitors of historic properties 

during construction of the Project, which could alter the user’s experience. 

3.9.6.3. Route Alternative 2 

Similar to Route Alternative 1, a number of cultural resource surveys have been 

conducted in the area incorporated by Route Alternative 2. As shown in Table 3.9-3, a 

total of 38 sites have been recorded within Route Alternative 2 including 25 historic 

sites, 11 prehistoric sites, and two multi-component sites. 

Segment Alternatives C, F, G, H, I, J, K, M, N, O, P, and Q are associated with this Route 

Alternative. Segment Alternative C included three historic sites; Segment Alternative 

F included one historic site; Segment Alternative K included two historic sites, six 

prehistoric sites, and one multi-component site; Segment Alternative N included 

three historic sites; and Segment Alternative 0 included one historic site. No sites 

were located within the other Segment Alternatives. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

284 

3.9 Cultural Resources and Values 

A detailed study to identify built resources, primarily those residential, recreational, 

commercial and industrial buildings in the APE that are NRHP listed or eligible and 

might be affected by the Project, will be conducted following selection of the 

preferred alternative and included as a requirement of the PA. No building structures 

can be located within the ROW; therefore, the ROW could be sited to avoid direct 

impacts to historic properties. 

It is possible that the vertical height of the Project may diminish the integrity of a 

historic property by altering its setting and feeling, when those aspects are applicable. 

New transmission lines would result in a change in the existing viewshed of a historic 

property or could be seen from that property. Mitigation for visual impacts is 

discussed in greater detail in Section 3.1, Aesthetics. 

During construction, noise and dust may be created. The potential impacts of noise 

and dust are further discussed in Sections 3.21 and 3.2, respectively. These 

construction effects may be experienced by users and visitors of historic properties 

during construction of the Project, which could alter the user’s experience. 

3.9.6.4. Route Alternative 3 

Route Alternative 3 has not been the subject of as many surveys as the other Route 

Alternatives, but has the potential to contain a large number of archeological and 

historic resources, as it is the longest of the possible routes. Archeological sites relating 

to both prehistoric and historic habitation are common throughout the Study Area. The 

area is dense with lakes, wetlands, and abundant wild rice beds, which still are 

important resources in Native economies. To better understand this corridor, additional 

field survey of public lands was completed by LLHSP in 2009. As shown in Table 3.9-3, 

33 sites have been identified within this Route Alternative including 27 historic sites and 

six prehistoric sites. 

Segment Alternatives E, R, S, and T are associated with this Route Alternative. Segment 

Alternative R contained one historic site. No sites were located within the other 

Segment Alternatives. 

A detailed study to identify built resources, primarily those residential, recreational, 

commercial and industrial buildings in the APE that are NRHP listed or eligible and 

might be affected by the Project, will be conducted following selection of the 

preferred alternative and included as a requirement of the PA. No building structures 

can be located within the ROW; therefore, the ROW could be sited to avoid direct 

impacts to historic properties. 

It is possible that the vertical height of the Project may diminish the integrity of a 

historic property by altering its setting and feeling, when those aspects are applicable. 

New transmission lines would result in a change in the existing viewshed of a historic 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

285 

3.9 Cultural Resources and Values 

property or could be seen from that property. Mitigation for visual impacts is 

discussed in greater detail in Section 3.1, Aesthetics. 

During construction, noise and dust may be created. The potential impacts of noise 

and dust are further discussed in Sections 3.21 and 3.2, respectively. These 

construction effects may be experienced by users and visitors of historic properties 

during construction of the Project, which could alter the user’s experience. 

3.9.6.5. Route Alternative 4 

As previously indicated, Route Alternative 4 includes portions of Route Alternative 1 

and Route Alternative 2. As shown in Table 3.9-3, a total of 19 sites have been 

recorded within Route Alternative 4. The sites include eight historic sites, 10 

prehistoric sites, and one multi-component site (HDR, 2010). One NRHP site is 

located within this Route Alternative. Ten sites have not been evaluated for their 

potential eligibility for listing on the NRHP, and seven sites have been determined 

ineligible for listing (HDR, 2010). 

A detailed study to identify built resources, primarily those residential, recreational, 

commercial and industrial buildings in the APE that are NRHP listed or eligible and 

might be affected by the Project, will be conducted following selection of the 

preferred alternative and included as a requirement of the PA. No building structures 

can be located within the ROW; therefore, the ROW could be sited to avoid direct 

impacts to historic properties. 

It is possible that the vertical height of the Project may diminish the integrity of a 

historic property by altering its setting and feeling, when those aspects are applicable. 

New transmission lines would result in a change in the existing viewshed of a historic 

property or could be seen from that property. Mitigation for visual impacts is 

discussed in greater detail in Section 3.1, Aesthetics. 

During construction, noise and dust may be created. The potential impacts of noise 

and dust are further discussed in Sections 3.21 and 3.2, respectively. These 

construction effects may be experienced by users and visitors of historic properties 

during construction of the Project, which could alter the user’s experience. 

3.9.7. Mitigation 

The reconnaissance level studies of the APE that have been conducted present

information about previous archeological survey efforts and recorded archeological

sites. This information has been evaluated in conjunction with pertinent 

environmental data in order to develop a model that predicts where archeological sites 

are most likely to be found in the APE. An additional survey completed a preliminary 

identification of those resources and use areas located in the APE that are of traditional 

importance to the LLBO and other Indian tribes. The size of the corridors under 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

286 

3.9 Cultural Resources and Values 

evaluation in this EIS precluded more detailed analysis until the preferred alternative 

had been selected. 

Implementation of the subsequent studies needed to identify and evaluate historic 

properties in the ROW will be required under the terms of the Programmatic 

Agreement (PA) developed to conclude review under Section 106 of NHPA for RUS, 

the CNF and the USACE. A draft of the PA is included in Appendix K. Because not 

all affected historic properties would be known prior to selection of the preferred 

alternative, the PA drafted by RUS establishes procedures to guide the identification 

and evaluation of historic properties, the assessment of adverse effects to them, and 

the development of appropriate mitigation for any adverse effects. The PA 

establishes that avoidance of adverse effects to historic properties is preferred. For 

example, an adverse effect might be avoided by shifting the ROW away from the 

location of the historic property. This approach proposed in the PA is consistent with 

the LLBO THPO recommendation in the traditional resources study (Lemon, 2010). A 

commitment to avoidance of archeological and historic resources also has been 

included in the summary of mitigation measures (Table ES-3). 

In meeting the requirements of the PA, RUS and the other federal agencies are 

required to continue consultation with the LLBO THPO, other participating Indian 

tribes, and the SHPO. This approach is also consistent with the recommendation 

from the LLBO THPO that the federal agencies “work cooperatively with the Heritage 

Sites Program to collaborate on their recommendations for identified historic 

properties” (Lemon, 2010). 

Under the terms of the PA, however, the exact mitigation measures to be implemented 

will not be determined until the NRHP status of a resource has first been resolved. 

Once that has been determined, RUS will consult with the other agencies, LLBO 

THPO, other Indian tribes and the SHPO to identify mitigation measures that are 

appropriate and in the public interest. In addition, the PA outlines the specific roles 

and responsibilities for agencies, tribes and the Applicants, and contains protocols for 

inadvertent discoveries and pertinent administration provisions. 

The agreed upon mitigation measures for those traditional resources that might not 

be considered NRHP eligible is summarized in Table ES-3. Again, these measures are 

consistent with many of the recommendations offered by the LLBO THPO (Lemon, 

2010). 

The following mitigation measures and criteria have been identified by CNF and 

LLDRM specific to CNF lands: 

• The CNF will work with LLDRM and the Applicants to develop, fund and 

implement a program to assess suitable mitigation and contingency sites; 

develop, fund, and implement establishment of mitigation sites; and 

implement adaptive management as needed to achieve site-specific goals. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

287 

3.9 Cultural Resources and Values 

• The CNF will develop mitigation criteria in conjunction with the LLDRM with 

input from the tribal community in a form and location(s) acceptable to the 

LLDRM. 

• Suitable mitigation, and locations for these projects, will be identified prior to 

the installation of the Project; these mitigation projects must be initiated 

within five years of the initiation of transmission line construction. 

• If suitable mitigation projects or locations for these projects cannot be 

identified on areas already approved through NEPA, the CNF will initiate 

NEPA on additional locations within one year of the completion of the 

transmission line construction on the CNF. 

• The CNF will work with the Applicants to find a means of meeting the 

financial, logistical, and staffing requirements to make the mitigation 

successful. 

• Mitigation will be in the form of providing for traditional gathering 

opportunities and products. Mitigation projects will be deemed to be 

successful when determined by the CNF in collaboration with the LLDRM on 

an annual basis. 

The following Projects have been identified as potential mitigation for traditional 

gathering opportunities on CNF lands: 

• Blueberry management, consisting of intensive and moderate enhancement on 

no less than 800 acres by brushing, burning and/ or pine thinning. This 

project would include establishment of harvestable blueberry and adaptive 

management as needed to achieve site-specific goals. 

• Sugar Maple/basswood ecosystem management, consisting of protection or 

enhancement of no less than 200 acres by using methods including, but not 

limited to, creating single or few-tree openings, single tree girdling, and, as 

necessary, deer enclosures. This project would include establishment of sugar 

bush characteristics, and adaptive management as needed to achieve sitespecific goals. 

• Sweet grass management, consisting of plantings in openings of no less than 

10 acres. This project requires researching methods of propagation, acquiring 

local seeds or plants, and maintaining suitable openings for habitat. Some 

sweet grass may be maintained in intensively managed plots while some will 

be maintained in more natural locations and densities. This project would 

include establishment of harvestable sweet grass and adaptive management as 

needed to achieve site-specific goals. 

• Berry patch management, consisting of protection or enhancement on no less 

than 35 acres of multiple species of fruiting shrubs and vines. Management 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

288 

3.9 Cultural Resources and Values 

would consist of, but not be limited to, establishing and maintaining areas 

suitable for traditional harvesting of berries. This project would include 

establishment of harvestable diverse traditional fruits and adaptive 

management as needed to achieve site-specific goals. 

Under the terms of the PA, consultation will continue as RUS implements the 

agreement’s procedures. This approach affords the consulting parties an opportunity to 

continue their direct participation in project decision making. As such, the PA aims to 

establish an open and transparent environment for which the goals and process of 

consultation are clearly displayed and understood. 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency.
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

289 

3.10 Land Use 

3.10. Land Use 

This section provides a description of the land use patterns within the Study Area, 

which consists of the 1,000-foot-wide routes identified for the Route Alternatives and 

Segment Alternatives. 

Methodology and Sources of Information 

Information from the Minnesota Department of Natural Resources (MnDNR) 

Geographical Analysis Program (GAP) and United States Forest Service (USFS) 

/Chippewa National Forest (CNF) landscape data was used to determine the Study 

Area’s existing conditions and potential effects on those conditions. 

3.10.1. Affected Environment 

The MnDNR categorizes land use in the State of Minnesota into eight types: urban and 

rural development, cultivated land, hay/pasture/grassland, brush-land, forested, water, 

bog/marsh/fen, and mining (LMIC, 1999d). Land use typically is regulated by local 

and county zoning ordinances. Records of existing and future land use are maintained 

by these entities to plan for current and future development. 

The description of the affected environment includes a discussion of the Study Area and 

the individual acreages for each alternative, zoning, and land cover, as defined by the 

MnDNR GAP analysis and information obtained from the USFS and CNF. 

3.10.1.1. Study Area 

The Study Area extends through portions of Beltrami, Cass, Hubbard, and Itasca 

counties in northern Minnesota. Portions of the Route and Segment Alternatives pass 

through the CNF and the Leech Lake Reservation (LLR). 

Each Route Alternative crosses federal, state, and privately-owned land. Table 3.10-1 

summarizes the approximate acreage of each Route Alternative and Segment 

Alternative. Approximately 1.6 million acres of land are within the boundaries of the 

CNF, approximately 660,000 acres of which are National Forest System lands. 

Approximately 680,000 acres of land are located within the boundaries of the Leech 

Lake Reservation (Indian Affairs Council, 2010; LLBO, 2010). Over 8 million acres of 

land in Minnesota are owned by the state (Minnesota House Research, 2002). 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

290 

3.10 Land Use 

Table 3.10-1: Acreage Crossed by Route Alternative and Segment Alternatives 

Leech Lake Reservation1 Chippewa National Forest 2 State 

Route and 

Segment 

Alternatives 

Associated 

Route 

Alternatives 

Total Acres 

Acres 

% of total 

Route or 

Segment 

Alternative 

Acres 

% of total 

Route or 

Segment 

Alternative 

Acres 

Route Alternatives

1 8,375 5,291 63% 4,340 52% 1,280 2 8,147 5,232 64% 3,999 49% 1,189 3 14,120 36 0% 7,351 52% 1,429 4 7,749 4,347 56% 3,580 46% 798 

Segment Alternatives 

A 1 1,900 N/A N/A N/A N/A 30 B 1 1,270 1,270 100% 619 49% 235 C 1, 2 525 482 92% 325 62% 119 D 1 596 536 90% 19 3% 31 

E 3 1,281 1,161 91% 1,152 90% 231 

F 2 179 179 100% 98 55% N/A 

G 2 199 N/A N/A N/A N/A N/A 

H 2 121 N/A N/A N/A N/A N/A 

I 2 59 N/A N/A N/A N/A N/A 

J 1, 2 53 N/A N/A N/A N/A N/A 

K 1, 2 735 285 39% N/A N/A 51 

L 1 298 206 69% N/A N/A N/A 

M 1, 2 296 296 100% N/A N/A N/A 

N 1, 2 441 441 100% 441 100% N/A 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

291 

3.10 Land Use 

O 1, 2 325 325 100% 325 100% N/A 

P 1, 2 64 64 100% 64 100% N/A 

Q 1, 2 52 52 100% N/A N/A N/A 

R 3 233 N/A N/A 110 47% N/A 

S 3 136 N/A N/A 8 6% N/A 

T 3 262 N/A N/A 73 28% 16 

Notes: 

1. This designation refers to land within the Leech Lake Reservation Proclamation Boundary

2. This designation refers to land within the CNF boundary. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

292 

3.10 Land Use 

Route Alternatives 1 and 2 are comparable in acreage, 8,375 and 8,147 acres, respectively, as 

would be expected given the similar length of these Route Alternatives. Route Alternative 4 

contains 7, 749 acres, which is slightly less than the total acreage of Route Alternatives 1 and 

2. Although the length of Route Alternative 4 is comparable to Route Alternatives 1 and 2, 

the route width is less than 1,000 feet in certain areas where the Applicants have committed 

to avoiding identified resources. Route Alternative 3 encompasses the greatest amount of land 

(approximately 14,120 acres). Route Alternatives 1 and 2 also include the most land within the 

LLR, approximately 5,291 and 5,232 acres, respectively, which represents 63 to 64 percent of 

the total route acreage. Route Alternative 3 includes the most CNF lands (7,351 acres or 52 

percent of the total Route Alternative) and the least amount of land located within the LLR 

(only 36 acres). Route Alternative 4 contains the least amount of state land, approximately 

800 acres, compared to the other Route Alternatives, which contain approximately 1,200 to 

1,400 acres of state lands. Route Alternatives 1 and 2 and the associated Segment Alternatives 

include more than 5,000 acres of land on the LLR, with Segment Alternative B affecting the most 

land on the LLR (1,270 acres). Segment F, which contains 179 acres within the LLR, is 

incorporated into Route Alternative 4. Segment Alternatives A, B, C, D, E, K, and T all contain 

portions of State-owned lands. 

3.10.1.2. Zoning and Land Use 

The following evaluation provides a description of the zoning requirements for this Project, 

which are based on the Power Plant Siting Act. It also provides a description of the land use 

within each of the four counties, through which the Route Alternatives cross. 

Zoning is used as a means of regulating permitted land uses in the State of Minnesota. 

Minnesota Statutes provide for this authority to promote the health, safety, morals, and general 

welfare of a community within the State. As indicated in Section 1, this Project is considered a 

Large Energy Facility under Minnesota Statute 216B.2421 and requires both a Certificate of 

Need and a Route Permit from the Public Utilities Commission. 

Under the Power Plant Siting Act, Minnesota Statute 216E.10, the Route Permit issued for high 

voltage transmission line purposes “...shall be the sole site or route approval required by the 

state to be obtained by the utility. Such permit shall supersede and preempt all zoning, 

building, or land use rules, regulations, or ordinances promulgated by regional, county, local, 

and special purpose government.” (Minn. Stat. § 216E.10). However, the permit does not 

supersede federal or tribal regulations or permitting. Additional discussion about route 

permitting and local approval requirements and processes is provided in Section 1. 

While local approvals are not required for the construction and operation of the transmission 

line, as aforementioned, existing zoning regulations govern how land is used. In the following 

discussion, current land use is presented for the areas in which the Route Alternatives pass per 

county. 

The Study Area within Beltrami County is primarily low-density residential and commercial 

development, although it is classified as medium and high-density near and in the city of 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

293 

3.10 Land Use 

Bemidji. Outside of the Bemidji urban growth area, land use is primarily rural (Beltrami 

County, 2002). Land Use in the Study Area is depicted in Figure 3.10-1. 

Land in the northern part of Hubbard County, the only portion within the Study Area, consists 

primarily of three classifications: low-density area, rural growth area, and public ownership 

use. County land use policy favors preserving the rural character of the rural growth area by 

encouraging existing agricultural uses, maintaining open spaces, and encouraging the 

development of size-appropriate residential and related developments (in the range of 2.5 to 3 

acres). Land use policy recognizes publicly-owned land for its recreational and economic 

potential (Hubbard County, 2005 and Otter Tail Power et al., 2008b). 

As part of the Cass County Comprehensive Plan, two land use plans have been adopted, one for 

private uses and one for public uses. The private land use plan cites the following difficulties 

with existing conditions: 

• Demand continues to increase for commercial and residential development necessary for 

normal (local) growth that places more pressure on rural areas, small lakes, wetlands, 

and agricultural lands; 

• As the makeup and density of land ownership increases, so do the expectations for 

services; and 

• Physical limitations on remaining undeveloped property create environmental and 

logistical challenges (Cass County, 2002). 

The primary objective for public land planning in Cass County is to retain the northwoods, 

lakes, and pristine rural environment of the County. As part of the strategy to maintain these 

resources, the County would like to acquire and maintain access to all county administered 

lands, which include existing rights-of-way (ROWs) (Cass County, 2002). The Study Area 

within Cass County primarily includes lands of a rural and forested nature. Over 50 percent of 

Cass County is forested, with approximately 35 percent covered by deciduous forest (LMIC, 

1999c). 

As part of the land use planning program for Itasca County, goals were set for a 20-year period 

extending to 2020. The goals included a provision for balancing land and water resources to 

enhance the natural beauty and resources of the county. In addition, the county established a 

goal to protect the unique settlement characteristics by maximizing the use of existing 

infrastructure and offering a diversity of development patterns. At the same time, the county 

seeks to encourage agriculture in areas that were farmed in the past. The county also intends to 

create a diverse economy, an integrated system of green space and recreational outlets, and a 

transportation system that meets the needs of its community members (Itasca County, 2007). In 

addition to its broad land use goals, the Itasca County Comprehensive Land Use Plan 

specifically addresses the need to investigate how to minimize the visual impacts of power lines 

along scenic roads. The Itasca County Study Area primarily includes lands of relatively rural 

nature, except for urban areas within the cities of Ball Club and Deer River. (LMIC, 1999c). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

294 

3.10 Land Use 

Leech Lake Reservation 

LLDRM is responsible for the administration and management of all tribal, band, and allotted 

lands as they relate to surface and subsurface leasing, permitting, ROWs, land acquisition and 

disposal, and implementation of land use ordinances. LLDRM maintains a Land Use plan. One 

of the LLR priorities is to increase the Reservation trust’s land base through land acquisition by 

purchase or by exchange (LLDRM, 2009c). 

All of the Route Alternatives pass through portions of the LLR. Route Alternatives 1, 2, and 4

cross through the middle of the LLR, while Route Alternative 3 avoids the LLR for the great 

majority of its length. Segment Alternatives B, C, D, E, F, L, M, N, O, P, and Q are located either 

entirely or largely within the LLR. As previously indicated, Segment Alternative F is 

incorporated into Route Alternative 4. 

Chippewa National Forest 

The USFS has adopted a forest management plan to direct initiatives and development of 

resources within the CNF. The Forest Plan (2004) has the following goals related to overall land 

use: 

• Promote ecosystem health and conservation using a collaborative approach to sustain 

the nation’s forests and watersheds; 

• Provide for a variety of life by managing biologically diverse ecosystems; 

• Provide for sustained forest product uses in an environmentally acceptable manner; 

• Provide forest settings and natural resources that enhance social and economic benefits 

at local, regional, and national levels; 

• Provide management direction that enhances social and economic benefits for 

individuals and communities; 

• Emphasize scenic quality in areas of high interest to people; and 

• Emphasize a variety of forest settings that provide for a spectrum of social opportunities 

and benefits for people (CNF, 2004). 

All of the Route Alternatives, as well as Segment Alternatives B, C, D, E, F, N, O, P, R, S, and T

contain portions of land managed by the Chippewa National Forest. Route Alternatives 1, 2, 

and 4 cross through the middle of the CNF, while Route Alternative 3 avoids the center portion 

of the CNF but crosses the greatest amount of CNF land overall. Alternative Segment B was 

developed by the Applicants to avoid the Pike Bay Experimental Forest of the CNF. 

3.10.1.3. Land Cover 

The Geographic Analysis Program (GAP) was used to classify the primary land cover types 

within the Study Area (Table 3.10-2). The Geographic Analysis Program maps land cover types 

from satellite imagery; land-based surveys are used to supplement data as needed. Types of 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

295 

3.10 Land Use 

land cover analyzed included: forest, shrubland, cropland/grassland, aquatic environment, 

urban area, and transportation. 

GAP data is divided into levels providing a greater amount of detail with each progressive 

level. Level 1 provides basic vegetation cover data, while Level 4 gives detailed cover 

information ranging from vegetation types to urban density (Otter Tail Power et al., 2008a). 

For this GAP analysis, impacts to forest cover were determined by quantifying the areas 

classified by Level 1 GAP data as deciduous, coniferous, or mixed forests. For each alternative 

and its ROW, acres of affected shrubland, cropland/grassland, and aquatic environment were 

determined by comparing Level 2 GAP data for each alternative and its representative ROW. 

Urban areas were determined by identifying the areas classified by Level 4 GAP data as highdensity urban, low-density urban, and mixed development. Impacts to transportation also 

were determined using Level 4 GAP data (Otter Tail Power et al., 2008a). 

As shown in Tables 3.10-2, forested areas comprise the greatest area of land cover along the 

Route Alternatives, ranging from 3,710 acres (48 percent) for Route Alternative 4, to 7,600 acres 

(54 percent) for Route Alternative 3. While patches of forested area are scattered throughout all 

of the alternatives, the area between the city of Cass Lake and the city of Deer River (which 

consists primarily of state-owned and CNF lands) is a nearly continuous forested area. This is 

reflected in the data provided for the CNF properties and LLR. 

In comparison with Route Alternatives 2 and 4, Route Alternatives 1 and 3 are composed of 

lesser areas of shrub land and greater areas of cropland/grassland. Route Alternatives 2 and 4 

are composed of between 19 and 22 percent of shrubland, while Route Alternatives 1 and 3 

are composed of 15 percent shrubland. Route Alternative 3 has the highest percentage and 

acreage of cropland/grassland at 25 percent of the route. Route Alternative 3 has a lower 

percentage of aquatic environments (including surface water bodies and wetlands) as compared 

to the other three alternatives and the Segment Alternatives. Route Alternative 4 has the 

highest percentage of aquatic environments due to the Route Alternative having been 

developed to avoid populous residential and commercial areas. All of the Route Alternatives 

have a low percentage of urban and transportation uses. The higher percentage of

transportation and urban land uses within Route Alternative 2 is due to the proximity of U.S. 

Highway 2 and the cities of Bemidji, Cass Lake, and Bena to this alternative. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

296 

3.10 Land Use 

Table 3.10-2: GAP Land Cover Types within Route Alternatives 

(Total, CNF, and LLR Jurisdictions) 

Route Alternative 1 

 

Route Alternative 2 

 

Route Alternative 3 Route Alternative 4 

Land Cover 

Types Acres Percentage Acres Percentage Acres Percentage Acres Percentage 

Entire Route

Forest 4,879 58% 3,844 47% 7,600 54% 3,710 48% 

Shrubland 1,283 15% 1,833 22% 2,150 15% 1,482 19% 

Cropland/Grassland 1,556 19% 1,142 14% 3,481 25% 1,592 21% 

Aquatic 

Environment 

584 7% 568 7% 494 3% 776 10% 

Urban 38 0% 450 6% 143 1% 96 1% 

Transportation 35 0% 310 4% 252 2% 93 1% 

Total 8,375 100% 8,147 100% 14,120 100% 7,749 100% 

Leach Lake Reservation

Forest 3,613 72% 2,885 55% 28 77% 2,448 56% 

Shrubland 911 14% 1,328 25% 8 23% 1,045 24% 

Cropland/Grassland 402 8% 384 7% 0.3 0% 297 7% 

Aquatic 

Environment 

359 7% 362 7% 0 0% 455 11% 

Urban 1 0% 159 3% 0 0% 58 1% 

Transportation 5 0% 114 2% 0 0% 43 1% 

Total 5,291 100% 5,232 100% 36 100% 4,347 100% 

Chippewa National Forest*

Forest 3,152 73% 2,365 59% 5,095 69% 2,102 59% 

Shrubland 789 18% 1,088 27% 1,177 16% 875 24% 

Cropland/Grassland 130 3% 142 4% 731 10% 140 4% 

Aquatic 

Environment 

267 6% 307 8% 269 4% 410 11% 

Urban 1 0% 13 0% 0 0% 14 1% 

Transportation 0 0% 84 2% 79 1% 40 1% 

Total 4,339 100% 3,999 100% 7,351 100% 3,580 100% 

Source: MnDNR, 2008e 

Notes: *Includes all lands within the administrative boundary of the CNF. 

As shown in Table 3.10-3, land cover along the Segment Alternatives is generally similar to land 

cover within the larger Study Area. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

297 

3.10 Land Use 

Table 3.10-3: GAP Land Cover Types within Segment Alternatives 

(Total, CNF, and LLR Jurisdictions) 

Land Cover Segment Alternatives 

Types A B C D E F G H I J K L M N O P Q 

Entire Route 

Forest 1,037 1,060 457 215 636 93 70 34 8 0 302 151 207 414 312 40 3 

Shrubland 197 99 46 77 181 13 8 8 4 1 176 17 29 27 7 3 0 

Cropland/ 

Grassland 595 50 0 278 444 23 97 33 29 41 198 114 29 0 0 9 2 

Aquatic 

Environment 61 61 22 22 34 4 5 6 2 0 54 15 31 0 4 0 0 

Urban 1 0 0 0 0 45 18 40 15 11 1 0 0 0 0 12 0 

Transportation 10 1 0 0 4 1 2 0 0 0 4 1 0 0 2 0 0 

Total 1,901 1,271 525 591 1,299 179 199 121 59 53 735 298 296 441 325 64 5 

Leach Lake Reservation

Forest N/A 1,060 439 196 570 93 N/A N/A N/A N/A 92 110 207 414 312 40 3 

Shrubland N/A 99 36 74 171 13 N/A N/A N/A N/A 77 15 29 27 7 3 0 

Cropland/ 

Grassland N/A 50 0 242 384 23 N/A N/A N/A N/A 62 65 29 0 0 9 2 

Aquatic 

Environment N/A 61 6 19 34 4 N/A N/A N/A N/A 50 15 31 0 4 0 0 

Urban N/A 0 0 0 0 45 N/A N/A N/A N/A 1 0 0 0 0 12 0 

Transportation N/A 1 0 4 2 1 N/A N/A N/A N/A 3 1 0 0 2 0 0 

Total N/A 1,270 482 536 1161 179 N/A N/A N/A N/A 285 206 296 441 325 64 5 

Chippewa National Forest 

Forest N/A 575 104 19 563 93 N/A N/A N/A N/A N/A N/A N/A 414 312 40 N/A 

Shrubland N/A 25 18 0 166 13 N/A N/A N/A N/A N/A N/A N/A 27 7 3 N/A 

Cropland/ 

Grassland N/A 9 0 0 398 23 N/A N/A N/A N/A N/A N/A N/A 0 0 9 N/A 

Aquatic 

Environment N/A 9 3 0 34 4 N/A N/A N/A N/A N/A N/A N/A 0 4 0 N/A 

Urban N/A 0 0 0 0 45 N/A N/A N/A N/A N/A N/A N/A 0 0 12 N/A 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

298 

3.10 Land Use 

Transportation N/A 0 0 0 2 1 N/A N/A N/A N/A N/A N/A N/A 0 2 0 N/A 

Total N/A 619 125 19 1,163 179 N/A N/A N/A N/A N/A N/A N/A 441 325 64 N/A 

Source: MnDNR, 2008e 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

299 

3.10 Land Use 

3.10.2. Direct/Indirect Effects 

This section provides a discussion of potential land use impacts from the Project. 

Potential direct impacts include the following: 

• Incompatibility with local land use and zoning 

• Incompatibility with planned development 

• Loss of use to landowners from building restrictions and use restrictions in the 

ROWs 

Potential indirect impacts (i.e. occurrences that are not typically associated with a 

particular land use) to nearby land uses could include the following: 

• Noise, addressed in Section 3.21 

• Dust, addressed in Section 3.2 

• Additional traffic, addressed in Section 3.19 

• Increased trespassing and unauthorized uses 

A brief discussion also is provided for impacts to locations in which multiple easements 

are required. 

Direct and indirect effects of the Project are addressed for the No-Build Alternative, 

Alternatives 1 through 4 and their Segment Alternatives, the LLR, and the CNF. 

3.10.2.1. No-Build Alternative 

The No-Build Alternative would not impact existing land uses directly or indirectly. 

This alternative would be compatible with local land uses and zoning, because it would 

allow for the existing conditions and proposed future land uses to remain as it currently 

is. Planned development would continue as proposed. No loss to individual 

landowners would result because land would not be utilized for the transmission line 

under the No-Build Alternative. Furthermore, government landowners would not be 

impacted, because no public lands would be utilized. 

3.10.2.2. Route Alternatives 1, 2, 3, and 4 

This discussion provides a description of the anticipated direct and indirect impacts 

upon local land use and zoning, planned development, loss of use to landowners, 

properties in which multiple easements are required, and easements on public lands 

from the Project. The analysis includes the expansion of the Boswell Substation, 

expansion or construction of a substation in the Cass Lake area and a feasible 125-foot 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

300 

3.10 Land Use 

ROW for the Route Alternatives and Segment Alternatives. Actual impacts may vary 

depending upon the final location and width of the ROW. 

As previously noted, this Project is not regulated by local zoning ordinances and land 

use policies. Minn. Stat. § 216E.10 provides for the preemption of local zoning for the 

purposes of a large energy facility in which a Route Permit is prepared and reviewed. 

However, consideration for the direct and indirect impacts of the alternatives is 

presented as part of the analysis of this Project. 

Local Land Use and Zoning 

With regard to local land use plans, the Project alternatives are consistent and 

compatible with the overall goals set forth by the various communities. Development of 

new resources is recognized in each county land use plan alongside consideration for 

natural resources, economic activities, and the health and well-being of the residents and 

visitors. In particular, as noted in the Beltrami County and Cass County goals for land 

use, residents expect services to be maintained and to be consistent with the amount of 

growth within a community. This Project addresses the need for additional sources of 

energy in this region of Minnesota. 

Although the creation of easements would limit land use within the easement/ROW, the 

overall use of the parcel, and hence the land use designation, would not typically be 

altered. 

Planned Development 

The alternatives would not impact planned development directly. Within the four 

counties, planned development typically is most intense in the cities. Intensive 

development within Beltrami County, for instance, is most extensive within the city of 

Bemidji (Beltrami County, 2002). Similar patterns of development are present in the 

other three counties (i.e., close to cities). The alternatives typically are routed outside of 

the municipalities within the four counties. 

Planned development might be impacted to the extent that communities would benefit 

from a continued supply or reliable electric power, thus indirectly supporting additional 

development. 

Loss of Use 

Landowners may experience both a temporary and long-term loss of use in areas where 

new ROW would be acquired for the Project. The temporary loss of use for landowners 

would occur during construction. During this time, machinery would be placed on 

individual property owners’ lands to allow for the placement of poles and wires. The 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

301 

3.10 Land Use 

overall land use outside of the ROW, however, would not be altered during 

construction. 

Indirect effects may include noise, dust, and additional traffic not typically associated 

with the existing land use, especially in rural or forested areas. As discussed in Section 

3.21, Noise, the transmission conductors and transformers could produce audible noise 

levels depending upon weather conditions and their designs. Dust also may be stirred 

from the ground as machinery is used to raise the poles and to string the conductors. 

Impacts to recreation use from dust generation are expected to be minor and temporary. 

Additional traffic may be generated by the machinery used for construction. This type 

of traffic would not typically be present within certain land use types, such as forest 

lands. 

A long-term loss of use of the ROW acquired for the Project would impact landowners 

where the Project is constructed. Acquisition of easements for the Project is described in 

Section 2. The landowner would maintain ownership of the property, and continue to 

pay taxes on the property, but the utility would acquire an easement allowing them to 

use the ROW in exchange for a monetary payment to the land owner. The easement 

agreement between the landowner and the Utility would outline any use restrictions 

applying to the easement. Although the landowner still has use of the land under 

easement, the easement agreement would prohibit structures and certain types of 

vegetation within the ROW. Several cities and townships in the Study Area have 

minimum lot sizes for residential development. In Bemidji Township and other areas 

where zoning is administered by the Greater Bemidji Area Joint Planning Board, 

minimum lot sizes vary from 6,000 square feet to five acres, depending on the zoning 

classification. The minimum lot sizes are exclusive of easements for roadways and 

major utilities (Greater Bemidji Area Zoning and Subdivision Regulations, Article IV, 

Section 401). 

The easement may impact the ability to locate future utility lines, such as sewer or 

water. Limits to the development of new utilities may be affected by the placement of 

utility poles. 

Depending upon local zoning regulations and the precise alignment of the Project 

within individual parcels, the Project may limit the ability of individual landowners 

to subdivide or otherwise develop their property. 

Creation of the Project ROW and construction access roads may increase public access to 

private lands, creating the potential for increased trespassing and unauthorized use of 

such lands. Enforcement of private land use and trespassing laws would be the 

responsibility of local law enforcement. A description of community services in the 

Study Area, including local police departments and county sheriff’s offices, is included 

in Section 3.17, Community Services. 

As discussed in Section 3.18, Utility Systems, Route Alternatives 1 through 4 and 

Segment Alternatives A, G, H, I, K, L, and M follow existing pipeline or transmission 

easements for a significant portion of their total length. As a result, in many cases the 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

302 

3.10 Land Use 

ROW required for the Project would be adjacent to existing utility easements. The total 

ROW occupied by Enbridge pipelines in the Study Area (including existing pipelines 

and permitted lines under construction) would be 200 feet wide. If the Project were 

located adjacent to the Enbridge ROWs, total combined ROW for the Project and 

pipelines could be up to 325 feet. The total width and potential effects of co-locating 

easements are discussed in Section 3.18, Utility Systems. 

In non-urban and non-forested settings, long-term impacts to land use are primarily the 

result of structure placement and maintenance and access roads. 

For other land uses such as agriculture and shrub or grassland, current uses would be 

maintained for most of the ROW. For the purposes of this analysis, long-term impacts to 

these land uses were determined by quantifying the percent of each alternative with a 

specific affected cover type, calculated using the following equation: 

Alternative length (miles) multiplied by the number of structures per mile 

multiplied by 300 square feet per structure multiplied by the percent cover in 

alternative, converted to acres. 

Long-term impacts were calculated using a geographic information system (GIS). All 

forestlands within the feasible 125-foot-wide ROW evaluated were identified as longterm impacts. Temporary impacts were assumed to occur for all land cover types except 

cropland/grassland in all areas within the 125-foot-wide ROW that were not long-term 

impacts. Temporary impacts were determined by subtracting the long-term impacts 

from the total area of these cover types within the ROW. Temporary impacts for 

cropland/grassland areas were calculated assuming a 30-foot-wide impact area rather 

than the full 125-foot ROW (Otter Tail Power et al., 2008a, modified). 

Impacts for the LLR and CNF were calculated in the same way as described above. The 

CNF impacts are only for that portion of the alternatives that would be located on 

federally-owned parcels (Otter Tail Power et al., 2008a). 

For shrub lands, croplands, grasslands, aquatic environments, urban lands, and 

transportation corridors, construction of the Project and associated clearing of the 

ROW would result in temporary disruptions to current land use, including 

agricultural production, hunting and gathering, transportation, and recreational 

activities, either through temporary loss of the resource or limits to access. For shrub 

lands, croplands, and grasslands, the cleared ROW would mostly be revegetated 

following construction and land within the ROW could return to its prior use. The 

Project has been designed to span water bodies and existing roadways, such that longterm impacts are not anticipated. Similarly, the ROW for each Route Alternative 

could be sited to avoid impacts to existing structures, such that long-term impacts to 

urban lands are avoided. Forested lands cleared within the feasible ROW would not 

return to their original land use, due to the potential for interference from tall tress 

and branches with the Project during operation. As such, loss of forested land 

represents a long-term impact of the Project. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

303 

3.10 Land Use 

Table 3.10-4 provides a summary of the potential temporary and long-term land use 

impacts for the anticipated ROWs within each alternative. With two exceptions, the 

alternatives are not expected to result in major long-term impacts to the land uses within 

the affected ROW. These exceptions include forested lands, which would need to be 

cleared within the ROW to maintain an adequate clear zone along the transmission line, 

and urban lands, for which building would be restricted within the ROW. 

Table 3.10-4: Acres of Land Affected within a Feasible 125-foot Right-of-Way 

Route Alternative 1 Route Alternative 2 Route Alternative 3 Route Alternative 4 

Type LongTerm 

Impacts 

Temporary 

Impacts 

LongTerm 

Impacts 

Temporary 

Impacts 

LongTerm 

Impacts 

Temporary 

Impacts 

LongTerm 

Impacts 

Temporary 

Impacts 

Forest 580 0 432 0 812 0 575 0 

Shrub Land 1 174 1 278 1 320 1 172 

Cropland/Grassland 1 52 <1 30 1 119 <1 49 

Aquatic 

Environment <1 65 <1 70 <1 68 <1 89 

Urban 0 3 <1 68 <1 7 <1 16 

Transportation 0 5 0 42 <1 50 0 5 

Total 583 299 434 488 814 564 576 331 

Total Temporary & 

Long-Term Impacts 

w/in ROW 

882 922 1,378 907 

Total ROW 1,048 1,018 1,759 1,064 

 Source: MnDNR, 2008e 

Long-term impacts to forest land would range from 432 acres for Route Alternative 2 to 

812 acres for Route Alternative 3. Approximately 1.6 million acres of land are within 

the boundaries of the CNF, approximately 660,000 acres of which are National Forest 

System lands. Approximately 680,000 acres of land are located within the boundaries 

of the Leech Lake Reservation (Indian Affairs Council, 2010; LLBO, 2010). Shrub land 

impacts were generally identified as temporary, because shrubs would naturally reestablish once construction was completed. Discussion of impacts to wetlands, 

agriculture, and transportation and traffic are provided in Sections 3.6, 3.14, and 3.19, 

respectively. 

All Route Alternatives would include the addition of equipment to the Wilton and 

Boswell substations. Improvements to the Wilton Substation (discussed in Section 2.4.1) 

would occur within the existing fenced area of the substation, and would not result in 

any changes to land use. The Boswell Substation would be expanded by approximately 

1.3 acres to accommodate new equipment. There would be no change in the land use 

from the Boswell Substation expansion, as it would remain essentially industrial, in 

keeping with its location on the Boswell generating plant site. 

It is likely that long-term impacts to land use would also occur as a result of the 

proposed substation configurations in the Cass Lake area. In Route Alternative 1, a new 

substation would be constructed in Section 30 of Pike Bay Township (T145 N, R 31 E), 

requiring the conversion of approximately 4 acres of forested land. In Route 

Alternatives 2 and 4, the existing Cass Lake Substation, located in Section 17 of Pike Bay 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

304 

3.10 Land Use 

Township (T145 N, R31W) would be expanded by approximately 2.2 acres to 

accommodate new 230 kV equipment. Route Alternative 3 does not include any 

substation construction or improvements. 

3.10.2.3. Leech Lake Reservation 

As noted in Section 3.10.2.2, long-term impacts were calculated for each of the Route 

Alternatives located within the Leech Lake Reservation (LLR) using the same model as 

that used for the alternatives: 

• For forest and urban lands, long-term impacts were assumed to equal the acreage 

of the 125-foot-wide ROW. 

• For other land uses, the alternative length (in miles) was multiplied by the 

number of structures per mile and by 300 square feet per structure and by the 

percent cover in the alternative, converted to acres. 

Table 3.10-5 summarizes the potential land use/cover impacts to the ROW within the 

LLR for each Route Alternative. 

Table 3.10-5: Acres of Land Affected within a Feasible 125-foot Right-of-Way within the LLR 

Route Alternative 

1 

Route Alternative 

2 

Route Alternative 

3 

Route Alternative 

4 

Land Cover Type 

LongTerm 

Impacts 

Temporary 

Impacts 

LongTerm 

Impacts 

Temporary 

Impacts 

LongTerm 

Impacts 

Temporary 

Impacts 

Longterm 

Impacts 

Temporary 

Impacts 

Forest 433 0 338 0 1 0 420 0 

Shrub Land <1 133 <1 201 <1 3 1 128 

Cropland/Grassland <1 13 <1 8 0 0 <1 11 

Aquatic 

Environment 

<1 39 <1 39 0 0 <1 65 

Urban 0 0 <1 26 0 0 <1 12 

Transportation 0 1 0 21 0 0 0 0 

Total 434 186 339 295 1 3 422 216 

Total Temporary & 

Long-Term Impacts 

w/in ROW 

620 634 4 638 

Total ROW 664 656 4 672 

Source: MnDNR, 2008e 

Construction of the Project within the LLR would result in impacts similar to those 

identified for the entire length of the Route Alternatives. The greatest impact would be 

to forested lands, which would be converted. Long-term impacts to the forest within the 

LLR range from approximately 1 acre for Route Alternative 3 to 434 acres for Route 

Alternative 1. Route Alternative 3 is located primarily outside of the LLR, while Route 

Alternatives 1, 2, and 4 travel through a large portion of the LLR. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

305 

3.10 Land Use 

3.10.2.4. Chippewa National Forest 

According to the 2004 Management Plan, the CNF is located at the crossroads of three 

major ecosystems including the aspen, birch, spruce-fir and pines of the boreal forest 

and the maple-basswood hardwood forests. 

A land use change from timber production to special use (i.e., utility ROW) would result 

in a long-term direct impact to CNF lands. As noted in Section 3.10.2.2, temporary and 

long-term impacts to the CNF were calculated using the same model as that used for the 

Route Alternatives and LLR. Table 3.10-6 summarizes the potential land use/cover 

impacts of the ROW for each Route Alternative within the CNF. Temporary impacts 

would include indirect effects as a result of construction activities, such as dust, noise, 

and increased traffic. 

Table 3.10-6: Acres of Land Affected within a Feasible 125-foot Right-of-Way within the CNF* 

Route Alternative 

1 

Route Alternative 

2 

Route Alternative 

3 

Route Alternative 

4 

Land Cover Type 

LongTerm 

Impacts 

Temporary 

Impacts 

LongTerm 

Impacts 

Temporary 

Impacts 

LongTerm 

Impacts 

Temporary 

Impacts 

Longterm 

Impacts 

Temporary 

Impacts 

Forest 389 0 275 0 581 0 383 0 

Shrub Land <1 114 <1 160 1 168 1 100 

Cropland/Grassland 0 3 0 2 <1 25 0 4 

Aquatic 

Environment 

<1 26 <1 33 <1 43 <1 48 

Urban 0 0 0 0 0 0 0 3 

Transportation 0 <1 0 17 <1 19 0 0 

Total 389 143 275 212 585 255 384 155 

Total Temporary & 

Long-Term Impacts 

w/in ROW 

532 487 840 539 

Total ROW 543 495 918 552 

Source: MnDNR, 2008e 

Notes: * Includes all lands within the administrative boundary of the CNF. 

Long-term impacts to the forest within the CNF range from 275 acres for Route 

Alternative 2 to 585 acres for Route Alternative 3. 

3.10.3. Mitigation 

A variety of mitigation measures could be implemented to reduce the potential land use 

impacts from construction and operation of the Project. Through the route-development 

process for the Project, the Applicants have attempted to minimize potential impacts by 

avoiding urban/residential areas to the extent possible, and by co-locating the 

alternatives along existing ROWs, such as highways, railways, existing transmission 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

306 

3.10 Land Use 

lines, and pipelines. The requested 1,000-foot-wide route would provide additional 

opportunities to avoid sensitive areas when locating a ROW of up to 125 feet. 

Route Alternatives 1, 2, 3, and 4 would all require clearing of trees, resulting in a longterm change in land cover. The HVTL route permit could require the Applicants to 

minimize tree removal, taking into account clearance requirements, and the large 

amount of tree cover in the Project area. 

The following mitigation measures, which may be incorporated into the HVTL permit, 

are applicable to all of the Route Alternatives evaluated: 

 

• The Applicants could work with the MnDNR, LLDRM, and the CNF to minimize 

and to avoid impacts to sensitive forested areas within the state and national 

forests. Areas disturbed in state and national forest land would be reseeded with 

a seed mix recommended by the appropriate agency’s management. Seed mix 

will be developed in conjunction with appropriate resource agencies taking into 

consideration culturally important species; 

• The Applicants could limit construction staging and lay-down areas to 

previously disturbed areas; 

• The exact location of structure sites, ROWs, and other disturbed areas could be 

determined with landowners’ or agencies’ input; 

• Conductor spans could be adjusted such that transmission line structures, where 

practicable, would avoid sensitive land uses. Likewise, construction and 

maintenance access roads would be located to avoid sensitive conditions; 

• Construction activities could be limited to the ROW, unless access permission is 

obtained from adjacent landowners; and 

• Fences, gates, and similar improvements that are removed or damaged during 

Project construction could be promptly repaired or replaced. 

The following license conditions may be imposed by the MnDNR for licenses to cross 

state land and public waters: 

• Adherence to MnDNR invasive species standards; 

• Use of native species for re-vegetation and clean weed free straw for mulch; 

• Restriction of certain pesticide use on certified forest lands; and 

• Creation of access to state land if it became isolated as a result of the Project. 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

307 

3.11 Socioeconomics 

3.11. Socioeconomics 

This discussion includes a description of the affected environment, direct and indirect 

impacts, and mitigation. It provides a discussion of the socioeconomic patterns within 

the four county area in which the Route Alternatives pass. 

Methodology and Sources of Information 

Information from the United States Census Bureau (USCB) and the Minnesota 

Department of Administration (MDA) was analyzed to determine the existing 

conditions within the four-county area. 

Data for the Study Area primarily was obtained from the U.S. Census Bureau’s 2000 

decennial census; 2000 census data is collected in 2000, but represents the demographic 

characteristics as of December 31, 1999. When available, U.S. Census Bureau estimates 

(USCB, 2008) also were obtained for the year 2008 from the American Community 

Survey (ACS). These estimates are based upon data collected in a single calendar year 

and describe the social, economic, demographic, and housing characteristics. 

At the more local level (i.e., for jurisdictions with populations less than 65,000), 

population estimates were obtained from the MDA. No income characteristics or ethnic 

origins statistical data is available at the local or county levels for 2008. 

The Route Alternatives cut across the boundaries of the Leech Lake Reservation (LLR) 

and the Chippewa National Forest (CNF). Available information for the LLR is limited 

to U.S. Census Bureau data using geographic based tables for the State of Minnesota and 

from the January 2007, Indians, Indian Tribes, and State Governments report created by the 

Research Department of the Minnesota House of Representatives (USCB, 2000p – 

2000gg). Data from the 2007 American Community Survey is not available for this 

geographic location. 

The CNF, however, is not discussed as a separate geographic location, because census 

information is not available for this area. Instead, these population groups are 

considered as part of the county in which they reside. 

3.11.1. Affected Environment 

The affected environment consists of the Study Area, which includes Beltrami, Cass, 

Hubbard, and Itasca counties and the Leech Lake Reservation (LLR). In addition to 

these counties, seven incorporated cities are located wholly or partially within at least 

one of the Route Alternatives, including: 

• Bemidji (pop. 13,143); 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

308 

3.11 Socioeconomics 

• Blackduck (pop. 718); 

• Cass Lake (pop. 813); 

• Bena (pop. 104); 

• Deer River (pop. 926); 

• Zemple (pop. 72); and 

• Cohasset (pop. 2,587) (MDA, 2008a). 

Additional details about county and city population, housing, employment, and income 

characteristics of these jurisdictions are provided in the following subsections. 

3.11.1.1. Population Characteristics 

A summary of population characteristics in the Study Area is shown in Table 3.11-1. 

The following discussion provides an overview of the counties and the LLR contained 

within the Study Area. 

Demographic characteristics for minority populations are contained in Section 3.12, 

Environmental Justice. Table 3.12-3 provides a listing of the specific U.S. Census block 

groups that the Route Alternatives cross. Population and economic data are analyzed at 

the census block group level, the most detailed level for which economic data is 

available. 

The population within the LLR and four counties that comprise the Study Area is 

estimated as follows for 2008 (USCB, 2008): 

• Leech Lake Reservation – 10,205 

• Itasca County – 44,379 

• Beltrami County - 43,861 

• Cass County – 28,654 

• Hubbard County – 18,823 

Overall, these counties are largely rural and sparsely populated, with an average of 16 

persons per square mile, compared to the state average of 62 persons per square mile 

(USCB, 2000p – 2000ff). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

309 

3.11 Socioeconomics 

Table 3.11-1: Population Characteristics by County and Township 

COUNTY/ 

MCD 

1990 

Census 

2000 

Census 

2008 

Estimate 

% 

Change 

(1990 - 

2000) 

% 

Change 

(2000 - 

2007) 

2020 

Estimates 

2008 

Household 

Size 

Minnesota 4,375,099 4,919,479 5,287,976 12.40% 7.50% 5,943,240 2.4 

Leech Lake Reservation (LLR) 8,669 10,205 N/A 17.7% N/A N/A N/A 

Beltrami County 34,384 39,650 43,861 15.30% 10.6% 52,370 2.5 

Bemidji city 11,165 11,917 13,413 6.7% 12.6% 14,173 2.1 

Bemidji township 2,660 2,934 3,047 10.3% 3.9% 3,670 2.7 

Black Duck 718 696 721 -3.1% 3.5% 734 2.0 

Frohn township 1,151 1,408 1,544 22.3% 9.7% 1,943 2.7 

Grant Valley township 1,040 1,450 1,776 39.4% 22.5% 2,390 2.6 

Hines township 556 674 722 21.2% 7.1% 868 2.6 

Sugar Bush township 113 193 226 70.8% 17.1% 319 2.7 

Summit township 237 259 252 9.3% -2.7% 277 2.3 

Taylor township 133 108 116 -18.8% 7.4% 104 2.3 

Turtle River township 799 1098 1,200 37.4% 9.3% 1597 2.6 

Cass County 21,791 27,150 28,654 24.6% 5.5% 34,510 2.3 

Bena city 147 110 95 -25.2% 12.6% 88 1.9 

Cass Lake city 923 860 825 -6.8% 3.9% 764 2.5 

Otter Tail Peninsula township 40 43 51 7.5% 9.7% 59 1.8 

Pike Bay township 1,420 1,643 1,610 15.7% 22.5% 1,794 3.0 

Wahnena township* 187 d/u d/u d/u d/u d/u 

Wilkinson township 207 270 251 30.4% 17.1% 294 2.3 

Hubbard County 14,939 18,376 18,823 23.0% 2.4% 20,850 2.3 

Farden township 769 994 997 29.3% 0.30% 1,138 2.7 

Guthrie township 386 436 478 13.0% 9.6% 497 2.6 

Hart Lake township 343 466 483 35.9% 3.6% 552 2.7 

Helga township 950 1109 1,247 16.7% 12.4% 1,396 2.7 

Itasca County 40,863 43,992 44,379 7.7% 0.90% 47,600 2.2 

Alvwood township 57 74 73 29.8% 0.3% 87 2.0 

Bowstring township 217 242 215 11.5% 9.6% 213 2.0 

Cohasset city 1,970 2,481 2,612 25.9% 3.6% 3,106 2.4 

Deer River city 838 903 925 7.8% 12.4% 1,000 2.0 

Deer River township 621 691 684 11.3% 0.30% 755 2.6 

Kinghurst township 121 131 104 8.3% 9.6% 95 1.9 

Lake Jessie township 252 335 340 32.9% 3.60% 415 2.4 

Liberty township 66 91 89 37.9% 12.4% 107 2.2 

Moose Park township 83 80 88 -3.6% 0.3% 85 2.5 

Morse township 573 605 636 5.60% 9.60% 675 2.9 

Oteneagen township 218 246 255 12.80% 3.60% 295 2.5 

Stokes township 209 259 242 23.90% 12.40% 280 2.2 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

310 

3.11 Socioeconomics 

Wirt township 84 94 108 11.90% 14.90% 121 2.5 

Zemple city 63 75 72 19.00% -4.00% 82 2.5 

Note: * Wahnena Township was unincorporated in 1995 and data were not available at the township level beyond 

1990 

Source: MDA, 2008a; MDA, 2008b; MDA, 2008c; Minnesota House Research, 2007; USCB, 2000gg; USCB, 1990 

As shown in Table 3.11-1, Beltrami County continues to experience a greater rate of 

population growth than Minnesota as a whole. Both Cass and Hubbard Counties grew 

at a faster rate than the State of Minnesota through the 1990s, although the rate of 

growth has slowed since 2000. Some of the greatest rates of growth are shown in the 

townships, particularly those near Bemidji and Deer River, and Itasca County 

experienced the least increase with 0.1 percent annually. By the year 2020, Beltrami 

County is expected to continue to have the greatest increase in population to 52,370, 

which represents an average annual increase of 1.6 percent from 1999, and Itasca County 

is projected to continue to have the smallest increase with an average annual rate of 0.4 

percent (MDA, 2008b and 2008c). 

Also, as indicated in Table 3.11-1, in 2008 Beltrami County had the greatest average 

household size of 2.5 people and Itasca County had the smallest with an average of 2.2 

people per household. During this same year, the State had an average of 2.4 people per 

household (MDA, 2008b). 

 

Among the major cities within the Study Area, in 2008, the population ranged from a 

low of 718 in the city of Blackduck to a high of 13,143 in the city of Bemidji. The average 

annual population change ranged from a decrease of 0.7 percent in the city of Cass Lake 

to an increase of 1.9 percent in the city of Grand Rapids (MDA, 2008a). Population 

estimates for 2020 show increases for all areas, mostly modest in size. 

Leech Lake Reservation 

Route Alternatives 1, 2, and 4 bisect the LLR. This area has a total population of 10,205 

(USCB, 2000bb). Of the total population, 4,850 are American Indian alone (Minnesota 

House Research, 2007). The LLR encompasses 1,309.91 square miles, of which 337.39 are 

covered by water. Consequently, the population density is 10.5 people per square mile 

(USCB, 2000bb). 

As previously indicated, data is not available for 2007 for the reservation from the U.S. 

Census Bureau or from the Minnesota House Research Department. 

3.11.1.2. Housing Characteristics 

The total number of housing units, ownership levels, and housing occupancy/vacancy 

levels for 2000 are presented in Table 3.11-2 (USCB, 2000p-z, 2000ff, and 2000gg). The 

Census Bureau generally does not provide 2007 estimates for jurisdictions with less than 

65,000 people, as is the case in this Study Area. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

311 

3.11 Socioeconomics 

Seasonal/Recreational or Occasional Use housing units make up approximately 12 to 45 

percent of the total housing units in the four counties in the Study Area, compared to 

approximately 5 percent for Minnesota as a whole. Most of these unoccupied units are 

considered seasonal or recreational units. 

The proportion of owner-occupied units, ranging from approximately 75 percent in 

Beltrami County to 86 percent in Cass County is the same or greater than for Minnesota 

generally, which is approximately 75 percent. 

Leech Lake Reservation 

In the 2000 U.S. Census, a total of 6,828 housing units were identified within the LLR. 

Based upon the available acreage, the housing unit density for this area is 7.0 units per 

square mile (USCB, 2000bb). In 2000, the percentage of occupied units was 53.5 percent 

(USCB, 2000gg). 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

312 

3.11 Socioeconomics 

Table 3.11-2: Housing Characteristics of the Study Area 

Beltrami County Cass County Itasca County Hubbard County 

Leech Lake 

Reservation 

 Housing Characteristic Number Percent Number Percent Number Percent Number Percent Number PercTotal Housing Units 16,989 100.0% 21,286 100.0% 24,528 100.0% 12,229 100.0% 6,828 100.Total Occupied Units 14,337 84.4% 10,893 51.2% 17,789 72.5% 7,435 60.8% 3,653 53.5

Owner-Occupied 10,684 74.5% 9,358 85.9% 14,768 83.0% 6,195 83.3% 2,948 80.7

Renter-Occupied 3,653 25.5% 1,535 14.1% 3,021 17.0% 1,240 16.7% 705 19.3

Total Unoccupied Units 2,652 15.6% 10,393 48.8% 6,739 27.5% 4,794 39.2% 3,175 46.5

Year-Round Units 678 4.0% 811 3.8% 992 4.1% 416 3.4% 282 4.1Seasonal/ recreational/, occasional use units 1,974 11.6% 9,582 45.0% 5,747 23.4% 4,378 35.8% 2,893 42.4

Sources: USCB, 2000p-z, 2000ff, and 2000gg
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

313 

3.11 Socioeconomics 

3.11.1.3. Employment Characteristics 

Table 3.11-3 provides a summary of employment and unemployment data for 2008. As 

shown in the table, unemployment varied significantly by county: 

Beltrami County – 1,629 and 4.8 percent 

Cass County – 872 and 3.7 percent 

Itasca County – 1,493 and 4.1 percent 

Hubbard County – 563 and 3.9 percent (data from 2000) 

Thus, the Study Area had a total of 4,557 unemployed residents in 2008. One of the four 

counties had a greater unemployment rate than the State’s 4.6 percent (MnDEED, 2009). 

Table 3.11-3 provides a summary of 2008 and 2000 employment information for the 

population aged 16-years old and above (2008 information was unavailable for Hubbard 

County). The table provides background information about the total civilian labor force, 

the number of employed civilians, the number of unemployed civilians, and the rate of 

unemployment. 

Table 3.11-4 provides information about 2000 and 2008 employment by industry for 

those residing within the Study Area, as well as for the State of Minnesota. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

314 

3.11 Socioeconomics 

Table 3.11-3: Study Area Employment Information 2000 and 2008 

Beltrami County Cass County Itasca County Hubbard County 

Leech Lake 

Labor Reservation 

Force 2000 2008 2000 2008 2000 2008 2000 2008 2000 2008 

Labor Force 

19,554 

(65.9%) 

21,658 

(64.4%) 

12,523 

(59.0%) 

14,124 

(60.4%) 

20,606 

(59.2%) 

22,293 

(61.1%) 

8,573 

(59.3%) d/u 

4,341 

(60.0%) d/u 

Employed 

18,085 

(61.0%) 

19,991 

(59.5%) 

11,658 

(54.1%) 

13,211 

(56.5%) 

19,222 

(55.2%) 

20,795 

(57.0%) 

8,004 

(55.4%) d/u 

3,878 

(53.6%) d/u 

Unemployed 1,465 (4.9%) 1,629 (4.8%) 853 (4.0%) 872 (3.7%) 1,380 (4.0%) 1,493 (4.1%) 563 (3.9%) d/u 463 (6.4%) d/u Note: du – data unavailable Source: U.S. Census Bureau, 2006-2008 American Community Survey and USCB, 2000gg 
Bemidji – Grand Rapids Transmission Line Septem

Final EIS 

315 

3.11 Socioeconomics 

Table 3.11-4: Employment by Industry 2000 and 2008 

Beltrami County Cass County Itasca County 

Hubbard 

County 

Leech Lake 

Reservation State o

Industry Sector and Class of 

Worker 2000 2008 2000 2008 2000 2008 2000 2008 2000 2008 2000 

Total employed, all sectors 

18,085 

(61%) 

19,995 

(59.4%) 

11,658 

(54.9) 

13,211 

(56.5%) 

19,222 

(55.2%) 

20,795 

(57.0%) 

8,004 

(55.4%) d/u 

3,878 

(53.6%) d/u 

2,580,04

(68.2) 

Agriculture, forestry, fishing and hunting, and mining 

689 

(3.8%) 

527 

(2.6%) 

488 

(4.2%) 

364 

(2.8%) 

876 

(4.6%) 

1,073 

(5.2%) 

398 

(5.0%) d/u 

114 

(2.9%) d/u 67,883 (2.6

Construction 

1,244 

(6.9%) 

1,191 

(6.0%) 

1,135 

(9.7%) 

1,431 

(10.8%) 

1,491 

(7.8%) 

2,081 

(10.0%) 

750 

(9.4%) d/u 

367 

(9.5%) d/u 

15,3267 

(5.9%) 

Manufacturing 

1,717 

(9.5%) 

1,231 

(6.2%) 

(1,120 

(9.6%) 

1,071 

(8.1%) 

2,608 

(13.6%) 

2,113 

(10.2%) 

980 

(12.2%) d/u 

273 

(7.0) d/u 

419,271 

(16.3%) 

Wholesale trade 

406 

(2.2%) 

460 

(2.3%) 

308 

(2.6%) 

229 

(1.7%) 

509 

(2.6%) 

695 

(3.3%) 

192 

(2.4%) d/u 

70 

(1.8%) d/u 92,854 (3.6

Retail trade 

2,248 

(12.4%) 

2,902 

(14.5%) 

1,600 

(13.7%) 

1,527 

(11.6%) 

2,412 

(12.5%) 

2,841 

(13.7%) 

1,044 

(13.0%) d/u 

380 

(9.8%) d/u 

307,714 

(11.9%) 

Transportation and warehousing, and utilities 

677 

(3.7%) 

681 

(3.4%) 

463 

(4.0%) 

418 

(3.2%) 

1,251 

(6.6%) 

912 

(4.4%) 

288 

(3.6%) d/u 

162 

(4.2%) d/u 

131,683 

(5.1%) 

Information 

388 

(2.1) 

328 

(1.6%) 

251 

(2.2%) 

175 

(1.3%) 

278 

(1.4%) 

198 

(1.0%) 

126 

(1.6%) d/u 

36 

(0.9%) d/u 65,460 (2.5
Bemidji – Grand Rapids Transmission Line Septem

Final EIS 

316 

3.11 Socioeconomics 

Beltrami County Cass County Itasca County 

Hubbard 

County 

Leech Lake 

Reservation State o

Industry Sector and Class of 

Worker 2000 2008 2000 2008 2000 2008 2000 2008 2000 2008 2000 

Finance and insurance, and real estate and rental and leasing 

724 

(4.0%) 

1,011 

(5.1%) 

611 

(5.2%) 

581 

(4.4%) 

743 

(3.9%) 

889 

(4.3%) 

398 

(5.0%) d/u 

171 

(4.4%) d/u 

184,874 

(7.2%) 

Professional, scientific, and management, and administrative and waste management services 

836 

(4.6%) 

1,109 

(5.5%) 

581 

(5.0%) 

832 

(6.3%) 

1,215 

(6.3%) 

1,192 

(5.7) 

407 

(5.1%) d/u 

160 

(4.1%) d/u 

227,064 

(8.8%) 

Educational services, and health care and social assistance 

5,151 

(28.5%) 

6,325 

(31.6%) 

2,258 

(19.4%) 

2798 

(21.2%) 

4,265 

(22.2%) 

5,034 

(24.2%) 

1,891 

(23.6%) d/u 

834 

(21.5%) d/u 

539,111 

(20.9%) 

Arts, entertainment, and recreation, and accommodation, and food services 

2,039 

(11.3%) 

2,360 

(11.8%) 

1,554 

(13.3%) 

2074 

(15.7%) 

1,731 

(9.0%) 

2,101 

(10.1%) 

724 

(9.0%) d/u 

831 

(21.4%) d/u 

186,001 

(7.2%) 

Other services, except public administration 

896 

(5.0%) 

757 

(3.8%) 

590 

(5.1%) 

957 

(7.2%) 

986 

(5.1%) 

718 

(3.5%) 

423 

(5.3%) d/u 

145 

(3.7%) d/u 

118,322 

(4.6%) 

Public administration 

1,070 

(5.9%) 

1,109 

(5.5%) 

699 

(6.0%) 

754 

(5.7%) 

857 

(4.5%) 

948 

(4.6%) 

383 

(4.8%) d/u 

335 

(8.6%) d/u 86,542 (3.4
Bemidji – Grand Rapids Transmission Line Septem

Final EIS 

317 

3.11 Socioeconomics 

Beltrami County Cass County Itasca County 

Hubbard 

County 

Leech Lake 

Reservation State o

Industry Sector and Class of 

Worker 2000 2008 2000 2008 2000 2008 2000 2008 2000 2008 2000 

Class of Worker Private wage and salary workers 

11,989 

(66.3%) 

13,693 

(68.5%) 

7,738 

(66.4%) 

9,225 

(69.8%) 

14,437 

(75.1%) 

15,904 

(76.5%) 

5,489 

(68.6%) d/u 

2,292 

(59.1%) d/u 

2,074,43

(80.4%) 

Government workers 

4,482 

(24.8%) 

4,809 

(24.8%) 

2,307 

(19.8%) 

2,502 

(18.9%) 

3,169 

(16.5%) 

3,303 

(15.9%) 

1,471 

(18.4%) d/u 

1,196 

(30.8%) d/u 

318,932 

(12.4%) 

Self-employed workers in own not incorporated business 

1,522 

(8.4%) 

 1,414 

(7.1%) 

1,553 

(13.3%) 

1,423 

(10.8%) 

1,533 

(8.0%) 

1,547 

(7.4%) 

1,015 

(12.7%) d/u 

384 

(9.9%) d/u 

178,586 

(6.9%) 

Unpaid family workers 

92 

(0.5%) 

75 

(0.4%) 

60 

(0.5%) 

61 

(0.5%) 

83 

(0.4%) 

41 

(0.2%) 

29 

(0.4%) d/u 

6 

(0.2%) d/u 8,096 (0.3

Note: du – data unavailable Source: U.S. Census Bureau, 2006-2008 American Community Survey and USCB, 2000gg
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

318 

3.11 Socioeconomics 

As shown in the table, the top three employment industries in each of the counties in the 

Study Area in 2008 were: 

• Beltrami County – educational, health care, and social assistance (31.6 percent); 

retail trade (14.5 percent); and arts, entertainment, recreation, accommodation, 

and food services (11.8 percent) 

• Cass County – educational, health care, and social assistance (21.2 percent); arts, 

entertainment, recreation, accommodation, and food services (15.7 percent); and 

retail trade (11.6 percent) 

• Itasca County – educational, health care, and social assistance (24.2 percent); 

retail trade (13.7 percent); and arts, entertainment, recreation, accommodation, 

and food services (10.1 percent) 

• Hubbard County (for 2000) – educational, health care, and social assistance (23.6 

percent); retail trade (13.0 percent); and manufacturing (12.2 percent) (MnDEED, 

2009). 

The top three employment sectors for the State included educational services, health 

care and social assistance; manufacturing; and retail trade. 

Many people derive economic benefit from the natural resources of the Study Area. For 

some people the primary employment is in natural resource based industries, as shown 

in Table 3.11-4. Table 3.11-4 also shows a higher percentage of the population on the 

LLR and in the counties comprising the Study Area to be self-employed workers. 

Mammals, waterfowl, fish, boughs, berries, and wild rice, fishing are present within the 

Study Area, and are used by residents and visitors to the Study Area for cultural, 

recreational, and economic purposes. Recreational use of these resources is discussed in 

Section 4.13, traditional and cultural use of these resources is discussed in Sections 4.9 

and 4.12. 

Leech Lake Reservation 

Within the LLR, 60.0 percent of the total population, aged 16 years and older, is within 

the labor force. Of the population within the labor force, 56.7 percent are female. While 

the overall unemployment rate on LLR is 6.4 percent, 10.7 percent of the civilian labor 

force within the LLR was unemployed (USCB, 2000cc). 

Within the LLR, 27.1 percent of the population 16 years old and older worked within a 

management/professional occupation, while 23.2 percent worked within service 

occupations and 22.8 percent of the population worked within sales and office 

occupations. In addition, 13.1 percent worked in construction; 12.2 percent worked 

within production, transportation, and material moving occupations; and 1.5 percent 

worked in farming, fishing, and forestry (USCB, 2000dd). These numbers represent 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

319 

3.11 Socioeconomics 

aggregates of the various employment industries. Additional information is presented 

in Table 3.11-4. 

3.11.1.4. Income Characteristics 

Table 3.11-5 provides 2000 income information for the Study Area counties and for 

selected cities in the Study Area; 2008 income information is also provided for counties, 

but is not available at the city level. 

As shown in Table 3.11-5, the 2008 per capita personal income ranged from a total of 

$29,633 in Beltrami County to $33,664 in Cass County. The per capita personal income 

in all four counties was less than the State of Minnesota per capita personal income of 

$42,953 (MnOSD, 2009). 

Leech Lake Reservation 

Based upon available information, the 2000 median household income in the LLR was 

$28,137, median family income was $31,275, and per capita income was $13,103 (USCB, 

2000ee). The median household income level was less than half that of the state level of 

$47,111 (USCB, 2000z). Information for the year 2008 was not available. 

In addition to the reported income for LLR households, members of the LLBO 

participate in subsistence activities and rely on the harvests of a variety of subsistence 

resources to supplement their diet and resources throughout the year. Subsistence is not 

only a source of food to these rural residents, it also holds cultural and historic 

significance for LLBO members who retain treaty rights for hunting and gathering 

activities on the LLR. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

320 

3.11 Socioeconomics 

Table 3.11-5: Select Income Characteristics within the Project Area, 2000 and (2008) 

Beltrami County Cass County Itasca County 

Income Characteristics Bemidji 

City 

Blackduck 

City 

Beltrami 

County Cass Lake City Cass County Deer River City Cohasset City Itasca County Hubbard Count

Percent of Individuals Below the Poverty Level 

13.2% 

(du) 

16.9% 

(du) 

17.6% 

(16.2%) 

29.0% 

(du) 

13.6% 

(12.7%) 

17.3% 

(du) 

5.6% 

(du) 

10.6% 

(11.5%) 

9.7% 

(du) 

Median Household Income 

$28,072 

(du) 

$21,848 

(du) 

$33,392 

($45,597) 

$20,583 

(du) 

$34,332 

($41,204) 

$21,900 

(du) 

$44,054 

(du) 

$36,234 

($43,965) 

$35,321 

($42,231) 

Per Capita Income 

$15,264 

(du) 

$12,536 

(du) 

$15,497 

($29,633) 

$9,569 

(du) 

$17,189 

($33,664) 

$13,078 

(du) 

$21,071 

(du) 

$17,717 

($30,656) 

$18,115 

($31,784) 

Mean Household Income 

$34,798 

(du) 

$28,664 

(du) 

$40,897 

($57,004) 

$26,213 

(du) 

$41,609 

($55, 310) 

$34,176 

(du) 

$52,075 

(du) 

$43,770 

($53, 393) 

$42,253 

(du) 

 Note: (du) = data unavailable for 2008. Per capita income figures for 2008 are provided as Per Capita Personal Income (MnOSD, 2010). This figu income received by residents of a state. These income estimates are part of the National Income and Product Accounts prepared by the Bure

 and are derived from a wide range of administrative records (MnOSD, 2010). Sources: U.S. Census Bureau, 2000 and MnOSD, 2009 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

321 

3.11 Socioeconomics 

3.11.2. Direct/Indirect Effects 

This section provides a discussion about the potential direct and indirect impacts to the NoBuild Alternative, the four Route Alternatives, the LLR, and the CNF on socioeconomic 

resources. 

Potential direct and indirect impacts to socio-economic resources include the following: 

• Loss of natural resources or access to them, including timber and water access 

• Changes to subsistence-based economies including impacts created by construction and 

operation (both direct and indirect due to changes in habitat acreage and quality) 

• Changes to local and regional economies, including impacts created by construction 

personnel (direct) and improved electric reliability (indirect) 

• Impacts to the local tax base 

• Impacts to property values 

• Impacts to homes 

This evaluation first addresses the direct and indirect impacts general to all of the Route 

Alternatives. Many of the potential socioeconomic impacts are not specific to any one Route 

Alternative, as both short- and long-term effects would be felt by the all of the populations 

located along the Project Route Alternatives. However, as Route Alternative 3 incorporates an 

overall larger route, some impacts may be more noticeable and severe due to the number of 

properties involved in its development. For example, Route Alternative 3 impacts more acreage 

of forested lands than the other Route Alternatives. 

In general, socioeconomic analyses focus on changes to demographics, including population, 

housing, and income; changes to local and regional economies; and changes to the aesthetic 

quality of communities. Where information is available, specific details are provided for 

individual Route Alternatives. Consequently, the discussion of the general impacts is followed 

by an evaluation of each route alternative, impacts within the CNF, and effects within the LLR. 

Natural Resource-Based Economies 

One of the primary activities affected by the construction of the Route Alternatives would be 

timber harvesting. This would be a result of the permanent removal of forest land. As 

indicated in Section 3.15, Forestry, the Project would require clearing of some forest land, 

approximately 432 to 812 acres depending on the Route Alternative selected (Table 3.15-3, 

Forest Impacts within the 125-foot right-of-way (ROW)). As expected, Route Alternative 3 

impacts the greatest amount of forested land, in part due to its overall length. 

Regardless of ownership (i.e., public and private), the opportunity to harvest timber likely exists 

within most forestlands in the Route Alternatives. Timber removed within the ROW would be 

offered to the landowner, made available for local residents, or removed (Otter Tail Power et al., 

2008a). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

322 

3.11 Socioeconomics 

Indirect impacts associated with the loss of timber production may include a minimal loss or 

gain of work for those employed in the timber industry due to the amount of timber being 

processed. For example, additional jobs may be created in the forest products industry due to 

the removal of forestland for timber in the short-term, while jobs may be lost in the long-term if 

these resources are removed. Impacts to forestland and the estimated revenues from timber 

production are discussed in detail in Section 3.15, Forestry. 

In addition to subsistence uses discussed in the following subsection, members of the Leech 

Lake Band of Ojibwe (LLBO) also participate in other commercial activities associated with the 

procurement of natural resources. These activities include timber harvesting, commercial rough 

fish and bait harvesting, commercial gill netting, wild rice harvesting, hunting, and bough 

harvesting (LLBO, 2009c). The potential to impact these catchment areas varies per Route 

Alternative. 

As shown in Section 3.15, Forestry, based on the evaluation of a feasible 125-foot ROW within 

each Route Alternative, Route Alternative 1 would impact 580 total acres of forested area; Route 

Alternative 2 would impact 432 acres; Route Alternative 3 would impact 812 acres; and Route 

Alternative 4 would impact 575 acres. The direct loss of forested lands would involve the 

removal of trees on a permanent basis, as the land would not be returned to a forested setting. 

Therefore, the loss of forest land may impact hunting and bough harvesting activities. Indirect 

impacts associated with the loss of these areas may include both a minimal gain and loss of 

work for members of the LLBO participating in these activities. There may be an initial increase 

in sales resulting from the removal of the resources, while in the long-term if trees are not 

replanted, a loss of resources would be experienced. 

With regard to water resources, Route Alternative 3 crosses 27 water courses, as compared to 

six for Route Alternative 1, seven for Route Alternative 2, and 10 for Route Alternative 4. In 

addition, Route Alternative 3 crosses nine water basins, while Route Alternative 1 crosses only 

four, Route Alternative 4 crosses five, and Route Alternative 2 only two. As discussed in 

Section 3.4.2, the Project has been designed to span surface water bodies to avoid placement of 

structures within these water bodies. Impacts to the procurement of fish may occur if water 

access points are blocked, either temporarily during construction, or long-term during 

operation of the Project. These crossings may impact the procurement of fish for commercial 

industries. Similar to the impacts resulting from the removal of forest, indirect impacts 

associated with access to a water resource may include a minimal loss of work for members of 

the LLBO participating in these activities. If impacts to water access points are not avoided, 

impacts associated with Route Alternative 3 may be more substantial than Route Alternatives 1, 

2, and 4 since more water courses and basins would be impacted by the construction of this 

Route Alternative. 

Impacts to subsistence activities, such as hunting and gathering, are discussed in detail in 

Section 3.12, Environmental Justice. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

323 

3.11 Socioeconomics 

Subsistence-Based Economies 

This section considers the effects of the alternatives on subsistence uses in the study area. 

Subsistence activities include hunting and trapping, fishing, and the gathering of vegetation 

and berries primarily as a source of food, for medicinal purposes, for ceremonial activities, and 

for personal sale as an additional source of income, rather than as a recreational activity. 

Natural resources help ensure that people are able to heat their homes, to buy food, and to 

purchase other goods for their families. Within the LLR, approximately 10.7 percent of the 

population 16 years and over were unemployed (USCB, 2000ee). As such, natural resource 

procurement assists the LLR population. To the extent that this information was readily 

available from the Leech Lake Band and publicly-available sources, it is described below. 

LLBO members participate in subsistence activities and rely on the harvests of a variety of 

subsistence resources to supplement their diet and resources throughout the year. Subsistence 

is not only a source of food to LLBO members but replaces in part necessities otherwise 

requiring additional cash income to acquire. In addition, the subsistence activities hold cultural 

and historic significance for LLBO members. 

Negative impacts to subsistence-based economies may occur from the construction, operation, 

and maintenance of the Project as a result of loss of acreage for subsistence activities, 

fragmentation of habitat, and introduction/spread of invasive species due to increased 

disturbance/new corridors. These impacts would primarily be limited to projects located on 

the LLR where LLBO tribal members have hunting and gathering rights. The area of the 

current Leech Lake Reservation was established in 1855 as the homeland for the LLBO. The Ten 

Section Area was established within this reservation under the Morris Act (1902) to protect the 

few remaining old growth red and white pines. Given the ever increasing pressure on limited 

natural resources experienced within the study area within the last 100 years, it is likely that this 

reserve is perhaps even more important to the LLBO today than when it was first established. 

According to the CNF, “the old-growth forests of the Ten Section Area and the nearby northern 

hardwood forests of the Guthrie Till Plain/Cuba Hill Area include some of the most culturally important 

areas on the reservation for LLBO members to practice their traditional activities.”(NPS, 2000) The 

aforementioned Ten Section Area and Guthrie Till Plain/Cuba Hill Area are crossed by Route 

Alternatives 1, 2, and 4; however, Route Alternatives 2 and 4 cross the areas at less LLBO 

valued locations for subsistence activities. 

The potential impacts to subsistence uses vary per Route Alternative. The aforementioned Ten 

Section Area and Guthrie Till Plain/Cuba Hill Area are crossed by Route Alternatives 1, 2, and 

4. Route Alternatives 1, 2, and 4 would affect part of the Ten Section Area, located in the 

Pike Bay area. Route Alternative 1 would cross through the Ten Section area along the south 

side of Pike Bay, while Route Alternative 2 and 4 would cross through the northern portion 

of the Ten Section area along the north side of Pike Bay. The northern portion of the Ten 

Section Area is less valued by LLBO for subsistence activities. Route Alternative 3 does not 

cross the Ten Section MA. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

324 

3.11 Socioeconomics 

 The greatest impacts to subsistence activities are associated with Route Alternative 1, a lesser 

impact associated with Route Alternatives 2 and 4, and minimal effect associated with Route 

Alternative 3 (LLBO, 2010). 

Impacts to subsistence activities are also addressed in Section 3.12, Environmental Justice. 

Impacts to Local and Regional Economies 

The construction of transmission lines can generate a significant economic contribution to the 

economy in the regions where the lines are constructed. Projects of this nature create and 

support jobs, generate significant tax revenue, and produce total economic impacts well in 

excess of the costs used for constructing the transmission lines (NorthStar, Inc., 2009). 

Impacts to local and regional economies can be assessed using a variety of economic modeling 

programs. A common approach is to utilize a set of multipliers, consisting of labor, income, and 

total output. The use of multipliers is a standard way to identify the potential effects of a major 

change in a region’s economy. These measures estimate the changes in labor, income, and 

output resulting from an initial change in spending (Coughlin and Mandelbaum, 1991). 

A labor multiplier is used to understand the number of regional jobs a particular economic 

change is expected to generate or eliminate. Most employment multipliers are estimated in 

terms of jobs rather than “full-time equivalent” employees (Coughlin and Mandelbaum, 1991). 

Employment multipliers can vary depending on the type of industry involved. 

The second type of multiplier is an income multiplier. Income multipliers translate the effects 

of changes in final demand into changes in household income (Coughlin and Mandelbaum, 

1991). Based on an article by Robert O. Coppedge (2003), an economic development specialist, 

acceptable income multipliers should not exceed 2. For the most part, at the state level, income 

multiplier estimates should fall between 1 and 2 (Coppedge, 2003). 

The final type of multiplier is an output multiplier, which for a given sector is the total value of 

sales by all sectors of the regional economy necessary to satisfy a dollar’s worth of final demand 

for that sector’s output (Coughlin and Mandelbaum, 1991). 

In order to determine the appropriate multipliers for this evaluation, a literature review was 

conducted. This review provided a set of case studies for transmission lines and generating 

facilities throughout the country in which labor, income, and output multipliers were used. The 

results of this review are summarized as follows: 

• Femrite-Sprecher Line in Dane County, Wisconsin - In a case study of the FemriteSprecher Line in Dane County, Wisconsin, a weighted overall multiplier of 1.525824 was 

used to determine the overall economic impact of a transmission line. This means that 

approximately 52.6 cents was generated indirectly for every dollar directly spent 

(NorthStar, Inc., 2009). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

325 

3.11 Socioeconomics 

• Arrowhead-Weston Line located in Minnesota and Wisconsin - The weighted overall 

multiplier was 1.415912, which resulted in approximately 41.6 cents in indirect and 

inducted economic benefits for every dollar directly spent (NorthStar, Inc., 2009). 

• Mesaba Energy Project located in Minnesota - For the Mesaba Energy Project, which 

includes the counties of Aitkin, Carlton, Cook, Itasca, Koochiching, Lake, and St. Louis, 

the IMPLAN model was utilized to generate the secondary (indirect and induced) 

economic and job multiplier benefits of the Mesaba Project for both the Arrowhead 

Region and the State of Minnesota. Income multipliers were not utilized for this 

evaluation. The construction regional output multiplier of approximately 1.5 was used. 

The operation regional output multiplier was 1.2. These multipliers accounted for direct 

impacts associated with the Mesaba Energy Project. The multiplier was calculated using 

the total output generated, which included direct, indirect, and induced costs, divided 

by the direct costs associated with the Project (Excelsior Energy Inc., 2006). Using the 

same logic shown to determine the overall multiplier for labor as for output, the 

construction regional labor multiplier of approximately 1.6 was used for the years 2007 

through 2010. In the last year of construction, the multiplier was reduced to 1.1. The 

operation regional labor multiplier was 3.7 for a typical year of the operation. If the 

induced jobs were removed from consideration during operation, the multiplier would 

be reduced to 1.5. 

• San Francisco Electric Reliability Project Power Plant Licensing Case - For the socioeconomic evaluation of the San Francisco Project, indirect and induced economic 

impacts from construction and operation were evaluated. The multipliers were derived 

from the Type Social Accounting Matrix (SAM) model. The employment multiplier 

associated with the construction phase of the project was 1.4. The construction phase 

income multiplier was estimated at 1.2. For operations, the employment multiplier was 

1.4, and the income multiplier was 2.0 (CEC, 2006). Output multipliers were not utilized 

for this analysis. 

The multipliers from each of these case studies are summarized in Table 3.11-6, Case Study 

Multipliers. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

326 

3.11 Socioeconomics 

Table 3.11-6: Case Study Multipliers 

Construction Operation 

Case Study Labor1 Income2 Output3 Labor4 Income5 Output6

Femrite-Sprecher Line - - 1.525824 - - - 

Arrowhead-Weston Line - - 1.415912 - - - 

Mesaba Energy Project 1.6 - 1.5 3.7 - 1.2 

San Francisco Electric Reliability Project Power Plant 1.4 1.2 - 1.4 2.0 - 

Multiplier to be Used for this Analysis 1.5 1.2 1.5 2.6 2.0 1,2 

Notes: 

1. The multiplier to be used for this analysis was derived by taking the midpoint between the two multipliers provided 

in the case studies. 

2. The multiplier to be used for this analysis was derived from the only available multiplier found within the research 

of the case studies. 

3. The multiplier to be used for this analysis was derived from the mode of the available multipliers. 

4. The multiplier to be used for this analysis was derived by taking the midpoint between the two multipliers provided 

in the case studies. 

5. The multiplier to be used for this analysis was derived from the only available multiplier found within the research 

of the case studies. 

6. The multiplier to be used for this analysis was derived from the only available multiplier found within the research 

of the case studies. 

 

As indicated in Section 2.4, Construction and Workforce, the Project would require 

approximately 75 temporary full-time employees to construct the transmission line and 

additional workers would be required for the substation modifications (see Table 3.11-7). In the 

event of unanticipated delays prior to commencement of construction, additional construction 

personnel may be required to meet an accelerated schedule to get the Project online by the end 

of 2011. These construction jobs generally would not create new long-term jobs in the Study 

Area due to the small size of the labor force. Opportunities for part-time personnel also may be 

available during the construction of the Project, including jobs associated both directly and 

indirectly with the Project. As shown in Table 3.11-7, indirect jobs generated from the Project 

would include approximately 112.5 jobs for each of the Route Alternatives. The overall impact 

of these jobs would be minimal within the four county region incorporated by the overall 

Project. 

To the extent that local contractors are used for portions of the construction, total direct wages 

and salaries paid to contractors and workers in surrounding counties would contribute to the 

total personal income of the region. These construction jobs would provide a short-term influx 

of income to the area. As indicated in Table 3.11-7, approximately $3.8 million dollars would be 

generated by the construction of the Route Alternatives. This amount would create minimal 

socio-economic impacts to the overall region consisting of the four counties. 

Construction expenditures made for equipment, energy, fuel, operating supplies, and other 

products and services would benefit businesses in the local communities. Additional personal 

income would be generated for residents in the region and the State by circulation and 

recirculation of dollars paid out by the Applicants as business expenditures and State and local 

taxes. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

327 

3.11 Socioeconomics 

Short-term indirect positive economic impacts would result from these construction activities. 

Revenue likely would increase for some local businesses, such as hotels, restaurants, gas 

stations, and grocery stores, due to increased spending from workers associated with 

construction of the Project. The revenue generated would vary between $81.6 and $86.85 

million for construction. This amount would create minimal socio-economic impacts to the 

overall region consisting of the four counties over the construction and operation of the 

transmission lines. 

Table 3.11-7: Construction and Operation Workers and Expenditures 

Activity Number of Workers, Income, or Cost Multiplier Total 

Construction of Route Alternative 1

Employment 75 1.5 112.5 

Income1 $3,144,825 1.2 $3,773,790 

Total Output2 $65,400,000 1.5 $98,100,000 

Construction of Route Alternative 2

Employment 75 1.5 112.5 

Income1 $3,144,825 1.2 $3,773,790 

Total Output2 $60,500,000 1.5 $90,750,000 

Construction of Route Alternative 3

Employment 75 1.5 112.5 

Income1 $3,144,825 1.2 $3,773,790 

Total Output2 $94,100,000 1.5 $141,150,000 

Construction of Route Alternative 4

Employment 75 1.5 112.5 

Income1 $3,144,825 1.2 $3,773,790 

Total Output2 $63,500,000 1.5 $95,250,000 

Operation of Route Alternative 1

Employment N/A 2.6 N/A 

Income N/A 2.0 N/A 

Total Output2 $30,000 1.2 $36,000 

Operation of Route Alternative 2

Employment N/A 2.6 N/A 

Income N/A 2.0 N/A 

Total Output2 $30,000 1.2 $36,000 

Operation of Route Alternative 3

Employment N/A 2.6 N/A 

Income N/A 2.0 N/A 

Total Output2 $30,000 1.2 $36,000 

Operation of Route Alternative 4

Employment N/A 2.6 N/A 

Income N/A 2.0 N/A 

Total Output2 $30,000 1.2 $36,000 

 Notes: N/A = Not available. 

1. Income was determined by taking the midpoint of the mean household incomes for each of the four counties 

($41,931) and multiplied by the total number of workers (i.e., 75). 

2. Total output was based on the value of the construction or the annual maintenance cost as described in Section 

2.2 (construction cost) or the Route Permit Application (Otter Tail Power et al., 2008). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

328 

3.11 Socioeconomics 

 

In general, increasing transmission capacity and reliability would be an economic benefit to the 

surrounding communities and businesses. Additional capacity would not only provide 

electricity for economic growth from new or enlarged industry and businesses, it would help to 

assure that income was not lost as a result of a potential brownout or temporary blackout of 

power from severe weather events. This could have a long-term positive economic impact to 

the Study Area. The availability of reliable power also could have a positive effect on the 

quality of services provided to the public. An additional benefit would include an increase to 

the each county’s tax base, resulting in an incremental increase in revenue from utility property 

taxes. 

The Project would not directly impact any businesses and is not expected to have negative 

economic impacts. The operation and maintenance of the transmission line would not 

negatively impact the socioeconomic resources related to industry in the four-county area. As 

shown in Table 3.11-7, while minimal, the operation of the facility would generate some 

revenue ($36,000) to the local areas contained within the Route Alternatives. Impacts associated 

with labor and income were not evaluated. 

Impacts to community resources (hospitals, public safety, etc.) are discussed in Section 3.17, 

Community Services. 

Impacts to Local Taxes 

Within the State of Minnesota, each county calculates its assessed property taxes based on the 

various rates set for the applicable year, the assessed values received from the State of 

Minnesota, and the assessor’s office of each county. For example, the property taxes billed in 

2009 were based on assessed values of property owned as of January 1, 2008 (Lindholm, 2010). 

The Minnesota property tax formula varies depending on classification of property. In general, 

the formula is as follows: 

 

Assessed Property Tax = Market Value X State Class Rate = Tax Capacity Value X Tax Capacity Rates 

 Plus 

 Tax Capacity Value X State General Tax Levy (if applicable) 

 Plus 

 Market Value X School Market Value Rate 

 Plus 

 Special Assessments (Lindholm, 2010) 

Within this formula, the market value consists of the assessed market value for utility 

machinery, structures and other personal property, which is determined by the Minnesota 

Department of Revenue pursuant to Minnesota Rule 8100. The assessed market value for land 

and locally assessed structures is determined by county assessors (Lindholm, 2010). 

The State of Minnesota sets the State Class Rate for the various classes of property and notifies 

the counties. In addition, tax capacity rates and school market value rates are determined 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

329 

3.11 Socioeconomics 

annually by each individual taxing district (i.e., county, city or township, school district, and 

special taxing districts). These rates can fluctuate from year to year depending upon the taxing 

district’s needs and the market value available for taxation. The tax capacity rates are used to 

calculate the portion of the taxes that are for each taxing district. A state general tax levy 

(Business Tax Rate) set by the State also is applied to applicable property and is included in the 

total tax due on the individual statements (Lindholm, 2010). 

The total tax amount on each individual statement, including special assessments, is paid to the 

county. The county then allocates the tax amount paid to the state, county, city or township, 

schools, and the special taxing districts based on the rates billed and any special assessment 

applied. Certain transmission and distribution lines are subject to taxation at a countywide 

average rate. Taxes collected by the county based on the countywide average rate are allocated 

50 percent to the county general fund and 50 percent to the general school fund (Lindholm, 

2010). 

The estimated property taxes for the transmission line, based on construction costs as detailed 

in Section 2.2, and using a tax capacity rate averaged over the four counties in the Study Area, 

are shown in Table 3.11-8, Estimated Property Tax. 

Table 3.11-8: Estimated Property Tax as of January 2010 

Variable Route 

Alternative 

1 

Route 

Alternative 

2 

Route 

Alternative 

3 

Route 

Alternative 

4 

Market Value A 65,400,000 60,500,000 94,100,000 63,500,000 

State Assessment Rate – 

Pay 2009 

B 

Tax Capacity Value C = A X B 1,308,000 1,210,000 1,882,000 1,270,000 

State Business Tax Rate – 

Pay 2009 (45.535 %) 

D 

Estimated State Taxes E = C X D $595,598 $550,974 $856,969 $578,295 

 

County Tax Capacity Rate – 

Pay 2009 (76.3%)1

F 

Estimated County Taxes G =CxF $998,004 $923,230 $1,435,966 $969,010 

 

Total Estimated Property 

Taxes 

H = E + G $1,593,602 $1,474,204 $2,292,935 $1,547,305 

Estimated Property Taxes 

as a Percentage of Original 

Installation Cost (OIC) 

I = H/A 2.44 % 2.44 % 2.44% 2.44 % 

Note: 1 Represents an average tax capacity rate of the four counties in the study area: Beltrami (101.923 %), Cass (53.503 %), 

Hubbard (64.127 %), and Itasca (85.65 %) (Lindholm, 2010) 

The value and location of assets is needed to estimate the local impact. Due to the limited 

information available at this time, the estimated impact to the various local taxing districts is 

not determinable. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

330 

3.11 Socioeconomics 

Total estimated property taxes would range from approximately $1.6 million for Route 

Alternative 1, $1.5 million for Route Alternatives 2 and 4, and $2.3 million for Route Alternative 

3. This amount would have a minimal, although positive, impact on the overall four county 

area in which the transmission line would be located. 

Impacts to Property Values 

One concern of residents living near existing or proposed transmission lines is how proximity to 

the line could affect the value of their property. Research on this issue does not identify a clear 

cause and effect relationship between the two variables. Instead, the presence of a transmission 

line becomes one of several factors that interact to affect the value of a particular property. The 

impacts on residential property values do not appear to be significantly different within various 

land use types (i.e., agricultural versus suburban or urban) – or at least any difference is too 

subtle for current research to detect. Therefore, property value impacts appear to be similar for 

any of Route Alternatives or Segment Alternatives evaluated in this document. A discussion of 

property values is provided below. 

Property Value Concerns 

In general there are three primary concerns raised regarding the potential impact of a nearby 

high-voltage transmission line on property value: 

• Concern or fear of possible health effects from electric or magnetic fields: While no 

conclusive evidence of the effects of EMF on health exists, it is recognized that people’s 

concerns about this issue can influence their decisions related to purchase of property. 

EMF effects are addressed in Section 3.20, Safety and Health, in this document. 

• The potential noise and visual unattractiveness of the transmission line: The visual 

profile of transmission line structures and wires may decrease the perceived aesthetic 

quality of property. The transmission facility would not generate noise above the state 

noise standards, and is not considered an issue. 

• Potential interference with farming operations or foreclosure of present or future land 

uses: On properties that are farmed, installation of a transmission line can remove land 

from production, interfere with operation of equipment, create safety hazards, and 

foreclose the opportunity to consolidate farmlands or develop the land for another use. 

Property Value Research 

The relationship between transmission lines and property values is complicated by a variety of 

factors including variability over time and across different areas of the world, variability due to 

different land uses, and limited sale data for similar properties before and after installation of a 

transmission line. Because of these complexities, real estate appraisers, utility consultants, and 

academic researchers have studied the issue of how to assess the impacts of transmission lines 

on property values since the 1950s. A summary of these study types is provided in Table 3.11-9. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

331 

3.11 Socioeconomics 

Table 3.11-9: Property Value Study Types 

Study Type Description Pros Cons 

Attitudinal 

Studies 

Surveys to assess 

perceptions about property 

value impacts. 

One of the first techniques used to 

study property value impacts from 

transmission lines. 

Substantial differences may exist 

between people’s perceptions about 

how they would behave and their actual 

behavior when confronted with the 

purchase of property. 

Valuation 

Studies 

Comparison of sales prices 

for properties that are 

similar, except for proximity 

to a power line. 

Avoids uncertainties related to 

personal perception of value. 

Value judgment involved in choosing 

similar pairs; limitations in the number of 

adequately similar property pairs. 

Statistical 

Analysis 

Evaluation of large sample 

sizes and a high number of 

variables using multiple 

regression analysis. 

Better ability to account for 

numerous variables that affect sales. 

Provide the best information to date 

on the effects of transmission lines 

on property values. 

Applicability of study results to specific 

properties and specific areas depends 

on the characteristics of the sample 

Potential impacts related to the marketability of a property include factors such as sale price, the 

amount of time required to sell, and the debt carried over this time. The types of studies done 

to assess changes in sale price of property containing a transmission line have evolved over 

time. 

For example, between 1978 and 1982, Jensen and Weber and the Jensen Management Company 

conducted three studies in west-central Minnesota. The studies in 1978 and 1982 are of 

particular interest because they consider effects to agricultural land. The 1978 study found that 

the landowners cited an inconvenience from the presence of the line, but had not paid less for 

their land. The 1982 study, however, found that there was a broad range of effect, from no 

effect to a 20 percent reduction, which depended on the amount of disruption to farm 

operations (Kroll and Priestly, 1992). 

In the mid-1990s, Northern States Power hired a real estate appraisal group to collect marketsubstantiated information about the impact attributable to the imposition of transmission line 

easements on residential property values in suburban and undeveloped areas near Eau Claire 

and La Crosse, Wisconsin. The Solum Group examined 200 residential property transactions 

adjacent to or in close proximity to high voltage electric transmission lines in urban, suburban, 

and rural areas of western Wisconsin. The selection process used in his study concentrated 

primarily on upper-price-level residences and vacant lots ready for construction on the 

assumption that these properties would be most sensitive to potential negative influences. The 

report asserted that the very minor positive and negative impact results observed indicate that 

there is virtually no impact present that is attributable to the presence of a transmission line 

encumbrance on residential properties (Solum, 1985). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

332 

3.11 Socioeconomics 

In 1996, a separate study of the impact of overhead high voltage transmission lines on 

residential property values in Seattle and Vancouver found little impact (Cowger et al., 1996). 

The literature review completed for that study also indicated the following: 

• Overhead transmission lines can reduce the value of residential and agricultural 

property. The impact is usually small (0 through 10 percent) for single-family 

residential properties. 

• Other factors such as location, improvements, and lot size are more likely to be major 

determinants of sale price. 

• Impacts on sales are most likely to occur on property crossed or immediately adjacent to 

the lines. 

• In areas where the ROW has been landscaped or developed for recreational use, positive 

impacts have been measured. 

• Impacts may be greater for small properties than for larger properties. 

• Impacts are more pronounced immediately after construction of a new line and 

diminish over time. 

The Public Service Commission of Wisconsin addressed the issue of changes in property value 

associated with high voltage transmission lines in their Final Environmental Impact Statement 

for the Arrowhead – Weston Electric Transmission Line Project. Their analysis of the 

relationship between property values and transmission lines looked at approximately 30 

papers, articles, and court cases covering the period from 1987 through 1999 (PSCW, 2000). 

The Wisconsin analysis identified two types of property value impacts that property owners 

may experience, which included potential economic impacts associated with the amount paid 

by a utility for a ROW easement and potential economic impacts regarding the future 

marketability of the property. The first type of property value typically refers to the “market 

price of the land with and without the encumbrance of the line” (PSCW, 2000). The second 

refers to sale price, the amount of time required to sell a property, and the debt amount carried 

over that time (PSCW, 2000). 

The Final EIS provides six general observations from the studies evaluated by its authors, 

including the following: 

• A potential reduction in sale price for single family homes may range from 0 to 

14 percent. 

• Adverse effects on the sale price of smaller properties could be greater than 

effects on the sale price of larger properties. 

• Other amenities, such as proximity to schools or jobs, lot size, square footage of a 

house, and neighborhood characteristics, often have a much greater effect on sale 

price than the presence of a power line. 

• Adverse effects created by the presence of a transmission line appear to diminish 

over time. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

333 

3.11 Socioeconomics 

• Effects on the sale price of property most often are observed for property crossed 

by or immediately adjacent to a transmission line. However, effects also have 

been observed for properties that are located farther away from the line. 

• The value of agricultural property is likely to decrease if the transmission line 

poles are placed in an area that inhibits farm operations (PSCW, 2000). 

The EIS reported that in Midwest states, such as Minnesota, Wisconsin, and the Upper 

Peninsula of Michigan, the average decrease appears to be between 4 and 7 percent. The 

authors of that EIS concluded: “It is difficult to make predictions about how a specific 

transmission lie would affect the value of specific properties.” 

Due to the variables required for an analysis of the potential affect of the Project on property 

values, impacts to property values are not evaluated individually by Route Alternative. 

Impacts to Homes and Structures 

Short-term impacts to residents, local business owners, and customers in the Study Area 

primarily would be related to disruption caused by temporary construction activities. 

Transportation impacts related to construction activities are discussed in Section 3.19, Traffic 

and Transportation, and noise impacts are discussed in Section 3.21, Noise. 

Long-term impacts may include displacement of residences or businesses due to location within 

the Project ROW. 

The National Electric Safety Code (NESC) requires certain clearances between transmission line 

facilities and buildings for safe operation of the transmission line. The applicants would 

acquire ROWS for each project sufficient to maintain clearances required to safely operate the 

transmission lines. 

In the event that a structure is located within the ROW required for a new transmission facility, 

that structure may be displaced; meaning the property would need to be purchased by the 

utility and removed from the area if avoidance of the structure through siting of the ROW 

were not possible. Structures cannot be located within the ROW, but may be located at the 

edge of the ROW. As shown in Table 3.11-10, the potential for displacement varies by Route 

Alternative and Segment Alternative. The house counts provided in Table 3.11-10 are provided 

as a way to compare each Route or Segment Alternative’s potential to displace homes; in 

practice the routing of transmission lines in Minnesota rarely results in displacement of 

residences. Route flexibility usually allows for homes, businesses, and other buildings (e.g. 

garages, silos, sheds) to remain in place. 

As indicated in Table 3.11-10, Route Alternative 3 would be located in proximity to more 

residences than Route Alternatives 1, 2, and 4. This most likely is due to the length of this route 

as compared to the other Route Alternatives. As expected, the greatest number of residences 

affected would be located within a distance of 500 -1000 feet. The preferred location of the 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

334 

3.11 Socioeconomics 

transmission lines is away from residential properties, thus as expected, fewer residences would 

be located within 0 to 62.5 feet. 

Federal, state, and local regulations dictate property acquisition requirements. Affected 

landowners would be compensated for their property at fair market value. Additionally, 

Minnesota Statute 216E.12, subd. 4 (sometimes referred to as the “buy the farm” provision) 

allows landowners of certain classes of land (e.g., homestead, agricultural, or seasonal 

residential recreational, as defined in Minnesota Statute 273.13) the option of requiring the 

Applicants to purchase the owner’s entire property if the transmission line crosses a portion of 

the property. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

335 

3.11 Socioeconomics 

Table 3.11-10: Number of Residences – Distances from the Feasible Right-of-Way Center Line 

Entire CNF Owned Lands Lands wit

Distance from Evaluated Feasible Center 

Line 

Distance from Evaluated Feasible Center 

Line

Distance from E

Route and Segment 

Alternatives 0-62.5’ (Feasible 

125' ROW) 

62.5-

200’ 

200-

500’ 

500-

1000’ 

0-62.5’ (Feasible 

125' ROW) 

62.5-

200’ 

200-

500’ 

500-

1000’ 

0-62.5’ (Feasible 

125' ROW) 

Route Alternatives

1 3 23 86 92 0 0 1 0 0 2 15 54 227 269 0 0 2 0 9 3 25 102 357 444 3 24 63 20 0 4 0 15 103 156 0 1 0 2 0 

Segment Alternatives

A 2 13 52 49 N/A N/A N/A N/A N/A B 1 0 0 0 0 0 0 0 1 C 0 0 0 0 0 0 0 0 0 D 0 0 1 0 0 0 0 0 0 

E 2 8 34 23 1 8 25 20 2 

F 0 3 14 33 0 0 3 10 0 

G 0 4 23 29 0 0 0 0 0 

H 1 7 18 11 N/A N/A N/A N/A N/A 

I 1 3 6 4 N/A N/A N/A N/A N/A 

J 0 0 0 2 N/A N/A N/A N/A N/A 

K 0 0 5 6 N/A N/A N/A N/A 0 

L 0 0 1 3 N/A N/A N/A N/A 0 

M 0 0 2 1 N/A N/A N/A N/A 0 

N 0 0 0 0 0 0 0 0 0 

O 0 0 0 0 0 0 0 0 0 

P 1 2 9 20 1 2 9 20 1 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

336 

3.11 Socioeconomics 

Q 0 0 0 0 N/A N/A N/A N/A 0 

R 0 3 4 3 0 1 1 1 N/A 

S 1 0 4 4 0 1 1 0 N/A 

T 0 5 5 3 0 1 2 0 N/A 

Note: N/A = not applicable
Bemidji – Grand Rapids Transmission Line July, 2010 

Final EIS 

337 

3.11 Socioeconomics 

3.11.2.1. No-Build Alternative 

The No-Build Alternative would not directly impact existing socioeconomic conditions 

in the Study Area. This alternative would not result in the displacement of homes and 

businesses, because it would allow the existing conditions to remain as they currently 

are. No loss of land use would result because land would not be utilized for the 

transmission line under the No-Build Alternative. This alternative would not entail any 

compensation to local landowners because no land would be taken for use by the 

Project. Impacts to local economies from construction personnel would not occur within 

the ROC. 

Indirect impacts from this alternative are related to reliability of electric service. As 

discussed in Section 2, this alternative would not provide a long-term remedy to 

regional electric reliability. Therefore, local and regional communities would not benefit 

from the improved electric reliability anticipated from this Project and may experience a 

loss of reliable electric power, either through blackouts or interruptions in power 

quality. 

3.11.2.2. Route Alternative 1 

As indicated in Section 3.11.2, Route Alternative 1 would impact approximately 580

acres of forest land and would cross six water courses and four water basins. The loss of 

natural resources in these areas would have a minimal impact on commercial activities 

associated with the procurement of forest and water products, including, but not limited 

to timber and fish. In the short-term, revenue and jobs may be generated when 

resources are removed from the Route Alternative; while in the long-term, losses may be 

experienced if these resources are not replenished. The gain or loss is anticipated to be 

minimal as compared to the entire Project area. Localized impacts may be more 

substantial and felt at a more individual level. 

As discussed in the Subsistence-Based Economies heading of Section 3.11.2, Route 

Alternative 1 would result in the greatest impacts to subsistence-based economies. 

LLBO members participate in subsistence activities and rely on the harvests of a variety 

of subsistence resources to supplement their diet and resources throughout the year. 

Subsistence is not only a source of food to LLBO members but replaces in part 

necessities otherwise requiring additional cash income to acquire. Route Alternative 1 

crosses highly valued areas of the LLR utilized for traditional gathering and subsistence 

activities. Negative impacts to subsistence-based economies may occur from the 

construction, operation, and maintenance of the Project as a result of loss of acreage for 

subsistence activities, fragmentation of habitat, and introduction/spread of invasive 

species due to increased disturbance/new corridors. These impacts would primarily be 

limited to projects located on the LLR where LLBO tribal members have hunting and 

gathering rights. 
Bemidji – Grand Rapids Transmission Line July, 2010 

Final EIS 

338 

3.11 Socioeconomics 

As shown in Table 3.11-7, impacts to the local economy also are anticipated to be 

minimal. Like the other Route Alternatives, 75 direct jobs would be created by the 

construction of the transmission lines. This potentially could create 112.5 jobs within the 

overall Project area. This amount is minimal in terms of all available jobs within the four 

counties. Likewise, an increase in income is anticipated to yield approximately $3.77 

million dollars. With regard to the entire region, this impact would be minimal. In 

addition, not all of these dollars would be returned to the region, as people potentially 

can spend earnings anywhere within the state of Minnesota or elsewhere. The 

anticipated output is $98.1 million dollars. This is less than that expected from Route 

Alternative 3. However, this amount also is not anticipated to create substantial 

impacts, as the revenue generated from equipment and materials could be spent outside 

the immediate region. Short-term minimal impacts are anticipated to occur, as some 

revenue would be returned to the local areas in which the Route Alternative would pass 

either from construction workers or expenditures associated with the Project. 

With regard to the local tax base, monies would be divided depending on the percentage 

of the transmission line being located within each county. The total estimated property 

taxes would amount to approximately $1.6 million, based on the estimated capital costs. 

In terms of individual properties, impacts to property values were not evaluated 

individually by Route Alternative. 

Route Alternative 1 contains the second lowest number of homes within or near a 

feasible 125-foot ROW evaluated. The majority of these homes (all of the three homes 

within the feasible 125-foot ROW and up to 26 of the homes up to 200 feet either side of 

the feasible ROW evaluated,) occur in a few locations on the western portion of the 

Route Alternative: In Beltrami County, south of 16th Street SW, where the ROW would 

rejoin the Great Lakes Pipeline; in Hubbard County and near County Highway 36 in 

Helga Township, near 309th Avenue in Farden Township, and again near 323rd Avenue 

also in Farden Township. While property values may be impacted by the distance 

between the property and transmission line, the number of homes cannot be used to 

evaluate this type of impact. 

The following segments associated with this Route Alternative also contain homes either 

within the feasible 125-foot ROW evaluated or outside of the ROW evaluated, but within 

200 feet of the evaluated center line: 

• Segment Alternative A, a 15.7-mile segment following an existing 115 kV 

transmission line to the south of Bemidji, contains up to two residences within 

the feasible 125-foot ROW evaluated and has 15 homes within 200 feet of the 

identified feasible center line. 

• Segment Alternative B, a 10.5-mile segment that avoids the Ten Section area and 

Pike Bay Experimental Forest, contains one home within the feasible 125-foot 

ROW evaluated. 

• Segment Alternative P, a 0.4-mile segment connecting Route Alternatives 1 and 2 

near Ball Club, has one home outside of the ROW evaluated, but within 200 feet 

of the identified feasible center line. 
Bemidji – Grand Rapids Transmission Line July, 2010 

Final EIS 

339 

3.11 Socioeconomics 

All build alternatives would improve electric power reliability in the Study Area. In 

addition, Route Alternatives 1, 2, and 4 would improve the transmission infrastructure 

in the Cass Lake area because those Route Alternatives would include construction of a 

new substation or modification of an existing substation near the city of Cass Lake. 

 

3.11.2.3. Route Alternative 2 

As indicated in Section 3.15, Forestry, Route Alternative 2 would impact the least 

amount of forested land, approximately 432 acres, as compared to the other three Route 

Alternatives. In addition, this Route Alternative would cross seven water courses and 

two water basins. 

Similar to Route Alternative 1, the loss of natural resources in these areas would have a 

minimal impact on commercial activities associated with the procurement of forest and 

water products, including, but not limited to timber and fish. In the short-term, revenue 

and jobs may be generated when resources are removed from the Route Alternative; 

while in the long-term, losses may be experienced if these resources are not replenished. 

The gain or loss is anticipated to be minimal as compared to the entire Project area. 

Localized impacts may be more substantial and felt at a more individual level. 

As discussed in Section 1.1.2 Subsistence Based Economies, Route Alternative 2 would 

result in negative impacts to subsistence-based economies. LLBO members participate 

in subsistence activities and rely on the harvests of a variety of subsistence resources to 

supplement their diet and resources throughout the year. Subsistence is not only a 

source of food to LLBO members but replaces in part necessities otherwise requiring 

additional cash income to acquire. Route Alternative 2 crosses some highly valued areas 

of the LLR utilized for traditional gathering and subsistence activities. Negative impacts 

to subsistence-based economies may occur from the construction, operation, and 

maintenance of the Project as a result of loss of acreage for subsistence activities, 

fragmentation of habitat, and introduction/spread of invasive species due to increased 

disturbance/new corridors. These impacts would primarily be limited to projects 

located on the LLR where LLBO tribal members have hunting and gathering rights. 

As shown in Table 3.11-7, impacts to the local economy also are anticipated to be 

minimal. Like the other three Route Alternatives, 75 direct jobs would be created by the 

construction of the transmission lines. This potentially could create 112.5 jobs within the 

overall Project area. This amount is minimal in terms of all available jobs within the four 

counties. Likewise, an increase in income is anticipated to yield approximately $3.77 

million dollars. With regard to the entire region, this impact would be minimal. In 

addition to jobs and income, the anticipated overall economic output is $90.75 million 

dollars. As previously shown, this amount is not anticipated to create substantial 

impacts, as the revenue generated from equipment and materials could be spent outside 

the immediate region and therefore, not returned to the local economy. Short-term 

minimal impacts are anticipated to occur, as some revenue would be returned to the 
Bemidji – Grand Rapids Transmission Line July, 2010 

Final EIS 

340 

3.11 Socioeconomics 

local areas in which Route Alternative 2 would pass either from workers or expenditures 

associated with the Project. 

With regard to the local tax base, monies would be divided depending on the percentage 

of the transmission line being located within each county. The total estimated property 

taxes would amount to approximately $1.5 million, based on the estimated capital costs. 

In terms of individual properties, impacts to property values were not evaluated 

individually by Route Alternative. 

 

Route Alternative 2 contains more homes within or near the feasible 125-foot ROW 

evaluated than Route Alternatives 1 and 4 and half as many as Route Alternative 3. The 

majority of homes, all of the 15 within the feasible 125-foot ROW evaluated and 63 of the 

69 of the homes up to 200 feet either side of the feasible ROW evaluated) occur within 

six locations, including the following: in the Midge Lake area; in Bemidji near Division 

Street; in Bemidji near Carr Lake Road and Madison Avenue Southwest; near West 

Winnie Road NE in Bena; in Ball Club; and in Deer River. 

The following segments associated with this Route Alternative also contain homes either 

within the feasible 125-foot ROW evaluated or outside of the ROW evaluated, but within 

200 feet of the evaluated center line: 

• Segment Alternative F, a 1.3-mile segment that would skirt the City of Cass Lake 

to the south has three homes outside of the ROW evaluated, but within 200 feet 

of the identified feasible center line. These homes appear to be in the area where 

the segment crosses MN Highway 371 near Golf Course Road. 

• Segment Alternative H, a 1-mile segment which follows an existing 115 kV line 

has one homes within the feasible 125-foot ROW evaluated, and eight homes 

within 200 feet of the identified feasible center line. 

• Segment Alternative I, a 0.5-mile segment which follows the Enbridge pipeline 

has one home within the feasible 125-foot ROW evaluated, and four homes 

within 200 feet of the identified feasible center line. 

• Segment Alternative P, a 0.4-mile segment connecting Route Alternatives 1 and 2 

near Ball Club to the south has one home outside of the ROW evaluated, but 

within 200 feet of the identified feasible center line. 

All build alternatives would improve electric power reliability in the Study Area. In 

addition, Route Alternatives 1, 2, and 4 would improve the transmission infrastructure 

in the Cass Lake area because those Route Alternatives would include construction of a 

new substation or modification of an existing substation near the city of Cass Lake. 

3.11.2.4. Route Alternative 3 

As shown throughout this analysis, Route Alternative 3 may have more impacts on the 

local socio-economic conditions to its overall length as compared to the other three

Route Alternatives. For example, Route Alternative 3 would impact approximately 812
Bemidji – Grand Rapids Transmission Line July, 2010 

Final EIS 

341 

3.11 Socioeconomics 

acres of forest land and cross 27 water courses and nine water basins. While the loss of 

natural resources in these areas would have a minimal impact on commercial activities 

associated with the procurement of forest and water products, these impacts would be 

greater than that associated with Route Alternatives 1, 2, and 4. In the short-term, 

revenue and jobs may be generated when resources are removed. However, in the longterm, losses may be experienced if these resources are not replenished. As with the 

other Route Alternatives, localized impacts may be more substantial and felt at a more 

individual level. 

With the construction of Route Alternative 3, 75 direct jobs would be created. This 

potentially could create 112.5 jobs within the overall Project area, as shown in Table 3.11-

7. This amount is minimal in terms of all available jobs within the four counties. 

Likewise, an increase in income is anticipated to yield approximately $3.77 million 

dollars. With regard to the entire region, this impact would be minimal. In addition, 

not all of these dollars would be returned to the region, as people potentially can spend 

earnings anywhere within the state of Minnesota or elsewhere. The total economic 

output for Route Alternative 3 is estimated at $141.2 million. 

As discussed in Section 1.1.2 Subsistence Based Economies, Route Alternative 3 would 

result in the least impact to subsistence-based economies. LLBO members participate in 

subsistence activities and rely on the harvests of a variety of subsistence resources to 

supplement their diet and resources throughout the year. Subsistence is not only a 

source of food to LLBO members but replaces in part necessities otherwise requiring 

additional cash income to acquire. Negative impacts to subsistence-based economies 

may occur from the construction, operation, and maintenance of the Project as a result of 

loss of acreage for subsistence activities, fragmentation of habitat, and 

introduction/spread of invasive species due to increased disturbance/new corridors. 

These impacts would primarily be limited to projects located on the LLR where LLBO 

tribal members have hunting and gathering rights. 

With regard to the local tax base, monies would be divided depending on the percentage 

of the transmission line being located within each county. The total estimated property 

taxes would amount to approximately $2.3 million, based on the estimated capital costs. 

In terms of individual properties, impacts to property values were not evaluated 

individually by Route Alternative. 

Route Alternative 3 contains the greatest number of homes within (25) or near (102) the 

feasible 125-foot ROW (Table 3.11-10). The majority of these homes are located along the 

western and northern portions of the route in the following locations: north of 16th

Street SW in Beltrami County where Route Alternative 3 deviates from Route 

Alternative 1 and continuing east to the north of Lake Marquette; along Tyler Avenue 

NE in Beltrami County where Route Alternative 3 travels north to Power Dam Road NE; 

along Power Dam Road NE where Route Alternative 3 would follow an existing 69 kV 

transmission line; along County Roads 30 and 13 on the northern portion of the route; 

and north of the city of Deer River on MN Highway 6 before the route joins Route 

Alternatives 1 and 2 prior to the Boswell Substation. 
Bemidji – Grand Rapids Transmission Line July, 2010 

Final EIS 

342 

3.11 Socioeconomics 

The following segments associated with this Route Alternative also contain homes either 

within the feasible 125-foot ROW evaluated or outside of the ROW evaluated, but within 

200 feet of the evaluated center line: 

• Segment Alternative E, a 10.6-mile segment following MN Highway 6 within the 

boundaries of the LLR, contains up to two residences within the feasible 125-foot 

ROW evaluated and has 10 homes within 200 feet of the identified feasible center 

line. 

• Segment Alternative R, a 1.8-mile segment that, combined with Segment 

Alternative S or T, avoids the city of Blackduck, has three homes outside of the 

ROW evaluated, but within 200 feet of the identified feasible center line. 

• Segment Alternative S, a 1.0-mile segment connecting Segment Alternative R and 

Route Alternative 3 east of Blackduck, contains one residence within the feasible 

125-foot ROW evaluated. 

• Segment Alternative T, a 2.0-mile segment connecting Segment Alternative R and 

Route Alternative 3, has five homes outside of the ROW evaluated, but within 

200 feet of the identified feasible center line. 

All build alternatives would improve electric power reliability in the Study Area. In 

addition, Route Alternatives 1, 2, and 4 would improve the transmission infrastructure 

in the Cass Lake area because those Route Alternatives would include construction of a 

new substation or modification of an existing substation near the city of Cass Lake. 

Route Alternative 3 would not provide this benefit, as there are no new substations or 

substation improvements associated with this Route Alternative. 

3.11.2.5. Route Alternative 4 

As indicated in Section 3.15, Forestry, Route Alternative 4 would impact 575 acres of 

forested land, which is similar to the amount of acreage impacted by Route 

Alternative 1. In addition, this Route Alternative would cross 10 water courses and 

five water basins. 

Similar to Route Alternatives 1 and 2, the loss of natural resources in these areas 

would have a minimal impact on commercial activities associated with the 

procurement of forest and water products, including, but not limited to timber and 

fish. In the short-term, revenue and jobs may be generated when resources are 

removed from the Route Alternative; while in the long-term, losses may be 

experienced if these resources are not replenished. The gain or loss is anticipated to 

be minimal as compared to the entire Project area. Localized impacts may be more 

substantial and felt at a more individual level. 

Similar to Route Alternative 2, Route Alternative 4 would result in some negative 

impacts to subsistence-based economies. For example, LLBO members participate in 

subsistence activities and rely on the harvests of a variety of subsistence resources to 

supplement their diet and resources throughout the year. Subsistence is not only a 
Bemidji – Grand Rapids Transmission Line July, 2010 

Final EIS 

343 

3.11 Socioeconomics 

source of food to LLBO members, but also replaces in part necessities otherwise 

requiring additional cash income to acquire. Negative impacts to subsistence-based 

economies may occur from the construction, operation, and maintenance of the 

Project as a result of loss of acreage for subsistence activities, fragmentation of 

habitat, and introduction/spread of invasive species due to increased disturbance/new 

corridors. These impacts would primarily be limited to projects located on the LLR 

where LLBO tribal members have hunting and gathering rights. 

 

As shown in Table 3.11-7, impacts to the local economy also are anticipated to be 

minimal. Like the other Route Alternatives, 75 direct jobs would be created by the 

construction of the transmission lines. This potentially could create 112.5 jobs within 

the overall Project area. This amount is minimal in terms of all available jobs within 

the four counties. Likewise, an increase in income is anticipated to yield 

approximately $3.77 million dollars. With regard to the entire region, this impact 

would be minimal. In addition to jobs and income, the anticipated overall economic 

output is $95.25 million dollars. As previously shown, this amount is not anticipated 

to create substantial impacts, as the revenue generated from equipment and materials 

could be spent outside the immediate region and therefore, not returned to the local 

economy. Short-term minimal impacts are anticipated to occur, as some revenue 

would be returned to the local areas in which Route Alternative 4 would pass either 

from workers or expenditures associated with the Project. 

With regard to the local tax base, monies would be divided depending on the 

percentage of the transmission line being located within each county. The total 

estimated property taxes would amount to approximately $1.5 million, based on the 

estimated capital costs. In terms of individual properties, impacts to property values 

were not evaluated individually by Route Alternative. 

 

Route Alternative 4 contains no homes within the feasible 125-foot ROW. Fifteen 

homes are located within 200 feet of the center line. 

As previously indicated, all build alternatives would improve electric power 

reliability in the Study Area. In addition, Route Alternatives 1, 2, and 4 would 

improve the transmission infrastructure in the Cass Lake area because those Route 

Alternatives would include construction of a new substation or modification of an 

existing substation near the city of Cass Lake. 

3.11.2.6. Leech Lake Reservation 

Socioeconomic impacts to the LLR would be similar to those discussed for the Route 

Alternatives and Segment Alternatives. Specifically, the Project may provide potential 

short-term employment opportunities for residents of the reservation and would 

increase expenditures to local businesses, including the Palace and Northern Lights 

casinos, and other businesses located on the reservation. 
Bemidji – Grand Rapids Transmission Line July, 2010 

Final EIS 

344 

3.11 Socioeconomics 

As compared to the other three alternatives, Route Alternative 3 would be expected to 

generate fewer socioeconomic impacts to the LLR compared to Route Alternatives 1, 2, 

and 4, because much of this alternative is located to the north of the reservation. 

All of the Route Alternatives would increase electric power reliability in the Study Area, 

including the Leech Lake Reservation. As noted in Section 2.4.2.3, Route Alternatives 1, 

2, and 4 would either construct a new substation in the Cass Lake area or expand the 

existing Cass Lake Substation to improve load-serving capability in the Cass Lake Area, 

which is at the center of the Leech Lake Reservation. Route Alternative 3 would not 

make any improvements to the load-serving capability in the Cass Lake area. 

As discussed above, members of the Leech Lake Band of Ojibwe (LLBO) also participate 

in other commercial activities associated with the procurement of natural resources. 

These activities include commercial rough fish and bait harvesting, commercial gill 

netting, wild rice harvesting, hunting, and bough harvesting (LLBO, 2009c). The 

potential to impact these catchment areas varies per Route Alternative. 

Based on the evaluation of a feasible 125-foot ROW, Route Alternative 1 would impact 

433 total acres of forested area within the LLR; Route Alternative 2 would impact 336 

acres within the LLR; Route Alternative 3 would impact 1 acre within the LLR; and 

Route Alternative 4 would impact 420 acres. The direct loss of forested lands would 

involve the removal of trees on a permanent basis, as the land would not be returned to 

a forested setting. Route Alternative 3 would impact significantly less forested areas 

within the LLR, although members of the LLBO may use forested areas on public lands 

along Route Alternative 3 that are outside the LLR. The loss of forest land may impact 

hunting and bough harvesting activities. Indirect impacts associated with the loss of 

these areas may include both a minimal gain and loss of work for members of the LLBO 

participating in these activities. There may be an initial increase in sales resulting from 

the removal of the resources, while in the long-term if trees are not replanted, a loss of 

resources would be experienced. 

With regard to water resources, Route Alternative 1 crosses five water courses and three 

water course basins within the LLR, as compared to three water courses and one water 

basin for Route Alternative 2. Route Alternative 3 does not cross any water courses or 

water basins within the LLR. Route Alternative 4 crosses four water courses and five 

water basins within the LLR. As discussed in Section 3.4.2, the Project has been 

designed to span surface water bodies to avoid placement of structures within these 

water bodies. Impacts to the procurement of fish may occur if water access points are 

blocked, either temporarily during construction, or long-term during operation of the 

Project. Similar to the impacts resulting from the removal of forest, indirect impacts 

associated with access to a water resource may include a minimal loss of work for 

members of the LLBO participating in these activities. As previously indicated, impacts 

associated with Route Alternatives 1, 2, and 4 would be more substantial, as Route 

Alternative 3 avoids the LLR. 

 
Bemidji – Grand Rapids Transmission Line July, 2010 

Final EIS 

345 

3.11 Socioeconomics 

In addition to the aforementioned socioeconomic impacts, subsistence activities may be 

impacted by the construction of the Route Alternatives. Impacts on these activities are 

discussed for each Route Alternative within Section 3.12, Environmental Justice. 

3.11.2.7. Chippewa National Forest 

Direct short-term positive or negative socioeconomic impacts to the CNF generally are 

considered to be minimal, since a majority of the potential impacts would be more 

regional and realized off of CNF lands. However, the CNF would have the largest 

amount of timber removed from its property as compared to other land owners. As 

shown in Table 3.15-1, the total amount of forested land for the Study Area included 

within the CNF varies from 2,101 acres for Route Alternative 4 to 5,095 acres for Route 

Alternative 3. Approximately 275 to 581 acres are located within the feasible 125-foot 

ROW (Table 3.15-5). The loss of these forest resources would have a direct impact on the 

volume of timber sold for commercial purposes. 

In addition, because some residential properties are located within the CNF, both 

temporary and long-term impacts would result. These impacts primarily would be 

associated with the construction and operation of Route Alternative 3, because this 

alternative incorporates the most acreage of CNF lands when compared to the other 

Route Alternatives. In addition, Route Alternatives 1, 2, and 4, which cross a large area 

of the Leech Lake Reservation, would have long lasting impacts to the Leech Lake trust 

resources within CNF boundaries. The trust responsibility is further discussed in 

Section 3.12, Environmental Justice. 

3.11.3. Mitigation 

A variety of mitigation measures could be implemented to reduce the potential impacts 

to socioeconomic resources from construction and operation of the Project. Mitigation 

measures that are typically included in permits are noted; cases where additional 

mitigation measures may be incorporated as a permit condition are also noted. Any 

CNF forest lands cleared for a special use permit would result in a loss of trust resources 

of the Leech Lake Band of Ojibwe and must be mitigated by the CNF. 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 

3.11.3.1. Natural Resource-Based Economies 

As previously discussed, a loss of natural resources in forested areas and those 

containing water courses and basins may result in the loss of commercial gain from the 

sales of timber, fish, and boughs. Mitigation for the loss of forest resources is provided 
Bemidji – Grand Rapids Transmission Line July, 2010 

Final EIS 

346 

3.11 Socioeconomics 

in Section 3.15.3. Although the ROW would no longer be forested, it could be replanted 

with other low-growing species, such as berries, to continue providing some economic 

use of the ROW. Measures for water resources are provided in Section 3.4.3; 

watercourses would be spanned; the Project could be routed to avoid impacting water 

access points. As previously discussed, the impacts are expected to be positive in the 

short-term, but would result in minimal losses in the long-term if the resources were not 

replenished. 

 

3.11.3.2. Subsistence-Based Economies 

As previously discussed, LLBO members participate in subsistence activities and rely on 

the harvests of a variety of subsistence resources to supplement their diet and resources 

throughout the year. Subsistence activities result not only in a source of food to LLBO 

members but replace in part necessities otherwise requiring additional cash income to 

acquire. Some form of compensation for negative impacts to subsistence-based 

economies due to the construction, operation, and maintenance of the Project may be 

required as the Project may result in the loss of acreage for subsistence activities, 

fragmentation of habitat, and introduction/spread of invasive species due to increased 

disturbance/new corridors. The United States made treaties with the Ojibwe that 

created the reservation and ceded areas of land in northern Minnesota to the federal 

government. The treaties also reserved the right of the Ojibwe bands to hunt, fish, 

and gather within the treaty area. The Forest Service has committed through its Forest 

Plan to facilitate the overall ability of the Ojibwe to exercise these rights in a 

sustainable fashion on NFS lands. 

3.11.3.3. Local and Regional Economies 

Construction of the Project would result in minimal short-term positive economic 

impacts for communities within the Study Area. As shown in Table 3.11-7, additional 

jobs and revenue would be created by the Project. However, within the overall four 

county region, these impacts would be minimal (i.e., the creation of 112.5 jobs, $3.8 

million in income, and $81-86 million in total output). In general, increasing 

transmission capacity and reliability would be an economic benefit to the surrounding 

communities and businesses. For these reasons, the Project is not expected to have 

negative economic impacts on local and regional economies. 

The Applicants could employ, through participating agreements or contract use, 

Leech Lake Band Members to the maximum extent possible on all aspects of the 

project considering the TERO (Tribal Employment Rights Office) ordinance. The 

Applicants could use the LLBO temporary employment program when practical. 
Bemidji – Grand Rapids Transmission Line July, 2010 

Final EIS 

347 

3.11 Socioeconomics 

3.11.3.4. Taxes 

The payments of taxes to the counties in which the transmission line and associated 

infrastructure are located are not anticipated to generate negative impacts. For this 

reason, no mitigation measures are needed. 

3.11.3.5. Property Values 

Easement payments to landowners are required to compensate landowners for loss of 

use of the utility easement on their property. 

3.11.3.6. Homes and Businesses 

Residents and local business owners and customers in the Study Area primarily would 

be affected by temporary construction activities and long-term aesthetic changes. As 

discussed previously in Section 3.1, Aesthetics, the HVTL permit typically requires the 

Applicants to work with landowners to identify aesthetic concerns and attempt to 

minimize visual impacts related to the Project. In addition, land owners may be affected 

by changes in land use for creation of the Project ROW. Specifically, agricultural land 

and prime farmland would be temporarily disrupted during construction. Mitigation 

measures specific to agricultural land use and prime farmland are discussed in Section 

3.14, Agriculture. To minimize impacts to land owners, the Applicants have agreed to 

the following mitigation measures: 

• The exact location of structure sites, the ROW, and other disturbed areas would 

be determined with landowners’ or agencies’ input. 

• The minimum area necessary would be used for transmission line access roads. 

• Construction activities would be limited to the ROW, unless access permission is 

obtained from adjacent landowners. 

Landowner compensation would be established by individual easements. Additionally, 

Minnesota Statute 216E.12, subd. 4 (sometimes referred to as the “buy the farm” 

provision) allows landowners of certain classes of land (e.g., homestead, agricultural, or 

seasonal residential recreational, as defined in Minnesota Statute 273.13) the option of 

requiring the Applicants to purchase the owner’s entire property if the transmission line 

crosses a portion of the property. The Applicants would minimize the number of 

houses to be displaced by the route alignment. Flexibility in the route alignment 

would allow for displacement to be avoided in most, if not all, instances. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

348 

3.12 Environmental Justice 

3.12. Environmental Justice 

Executive Order 12898, which requires Federal Actions to address potential 

environmental justice impacts to minority and low-income populations, was signed by 

President Clinton on February 11, 1994. The responsible official must consider an 

action’s potential for demographic, geographic, economic, and human health risk factors 

when conducting and documenting a National Environmental Policy Act (NEPA) 

related analysis. The directives from this order are addressed in this analysis of the 

direct and indirect impacts of the Route and Segment Alternatives. 

This section provides information about the affected environment, potential direct and 

indirect effects, and mitigation measures. 

Methodology and Sources of Information 

This section describes minority and low-income populations within the Study Area. 

Information from the U.S. Census Bureau and Minnesota state sources was analyzed to 

determine the existing conditions and potential effects on those conditions. The analysis 

identifies whether the Project could have disproportionate impacts to minority and lowincome populations just from potentially being sited in areas where those populations 

predominately reside. This analysis was conducted using census block groups to 

evaluate the percentages of these populations present in 2000. Then, regardless of 

whether the Project would be sited in areas with disproportionate minority and lowincome population levels, the potential impacts to those populations are also evaluated 

based upon their potential displacement from, subsistence, and traditional uses of the 

Study Area. 

3.12.1. Affected Environment 

The discussion about the affected environment provides a description of the region of 

comparison, a demographic overview, the existing minority populations, poverty and 

low-income populations, and groups with a Limited English Proficiency. This 

discussion draws upon information found in the 2000 U.S. Census for census block 

groups, counties, and Minnesota State information. A discussion of subsistence 

activities also is provided. 

3.12.1.1. Regional Definition 

This analysis considers the disproportionate adverse environmental and human health 

impacts to low-income and minority populations. It involves comparing the impacts in 

the area affected by the Project to the impacts in the region in which the Route and 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

349 

3.12 Environmental Justice 

Segment Alternatives are located. The larger region, referred to as the Region of 

Comparison (ROC), includes the four counties through which the alternatives pass - 

Beltrami, Cass, Hubbard, and Itasca counties. The Study Area for the environmental 

justice analysis (see Figures 3.12-1 through 3.12-3) contains 26 census block groups 

within the ROC that could be affected by the Project.1 When relevant information is 

available for the LLR specifically, that information is provided alongside of the countyspecific data. 

3.12.1.2. Demographic Overview 

The demographic overview provides information about the low-income and minority 

populations within the Study Area. The 2000 U.S. Census was used to extract data 

about low-income and minority populations within census block groups through the use 

of the Minnesota DATANET GeoAnalysis Tool (DATANET, 2000). To determine 

whether an individual census block group contained disproportionately greater 

minority or low-income populations, data for each group was compared to similar data 

for the ROC. 

Overall Study Area Minority Populations 

Approximately 17 percent of the Study Area residents were members of a racial 

minority. The largest minority group in the Study Area was American Indian (i.e., 

Native American). Within the LLR, this group comprises approximately 44.7 percent of 

the reservation (USCB, 2000ee). As shown in Table 3.12-1, minorities constituted a 

greater percentage of the population within the Study Area than in the ROC and in the 

State. The white (i.e., Caucasian) population was the largest group within all four 

geographic areas – 83.2 percent in the Study Area, 87.6 percent in the four-county region, 

51.7 percent in the LLR, and 89.4 percent in the State. 

At 13.7 percent, the percentage of Native Americans in the Study Area was somewhat 

greater than in the ROC (10.1 percent) and significantly greater than for the State (1.1 

percent). As expected, the largest concentration of Native American populations was in 

the LLR (44.7 percent). The Asian population in the Study Area was 0.3 percent, while 

the Asian populations measured at the ROC, LLR, and State levels represented 0.4 

percent, 0.2 percent, and 2.9 percent of the total population, respectively. AfricanAmericans comprised 0.2 percent of the ROC and also of the Study Area population; 

while the LLR percentage was 0.1 percent, and the State percentage is 3.5 percent. 

 

1 A census block group is a cluster of census blocks having the same first digit of their four-digit 

identifying numbers within a census tract. For example, block group 3 within a census tract 

includes all blocks numbered from 3000 to 3999. Block groups generally contain between 600 and 

3,000 people, with an optimum size of 1,500 people (USCB, 2001). 

The first two digits reference the state code (i.e., Minnesota is 27); the next three indicate the 

county code; the next four the census tract; and the last three the block group. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

350 

3.12 Environmental Justice 

“Hispanic” is an ethnic classification rather than a racial one in the 2000 U.S. Census and 

is treated as such in this document. Individuals identifying themselves as being “of 

Hispanic origin” accounted for approximately 0.9 percent of the total population in the 

Study Area, 0.8 percent in the ROC, 1.4 percent in the LLR, and 2.9 percent in the State 

(USCB, 2000a-e and ee). 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

351 

3.12 Environmental Justice 

Table 3.12-1: Racial Composition 

Jurisdiction White African- American 

Native 

American 

and 

Alaska 

Native 

Asian 

Native 

Hawaiian 

and Other 

Pacific 

Islander 

Other 

Study Area Number of People 28,940 65 4,767 87 9 77 (includes 26 census blocks with the ROC) 

Percent 83.2 0.2 13.7 0.3 0.03 0.2 

ROC Number of People 113,214 276 13,069 471 25 231 

Percent 87.6 0.2 10.1 0.4 0.0 0.2 

Beltrami Number of People 30,394 142 8,071 225 8 82 County Percent 76.6 0.4 20.4 0.6 0.0 0.2 Cass Number of People 23,490 31 3,110 76 6 38 County Percent 86.5 0.1 11.5 0.3 0.0 0.1 Hubbard Number of People 17,698 32 391 50 1 40 County Percent 96.3 0.2 2.1 0.3 0.0 0.2 Itasca Number of People 41,632 71 1,497 120 10 71 County Percent 94.6 0.2 3.4 0.3 0.0 0.2 Leech Lake Number of People 5,278 9 4,561 16 4 26 Reservation1 Percent 51.7 0.1 44.7 0.2 0.04 0.3 State of Number of People 4,400,282 171,731 54,967 141,968 1,979 65,810 Minnesota Percent 89.4 3.5 1.1 2.9 0.0 1.3 

Note: 1. Includes Off-Reservation Trust Land. Demographic information provided for the LLR is also part of the data for the Study Area, ROSources: DATANET, 2000 and USCB, 2000a-e and ee 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

352 

3.12 Environmental Justice 

Overall Poverty and Low-Income Concentrations 

Based upon the 2000 U.S. Census, approximately 13.4 percent of the Study Area was 

comprised of low-income individuals (Table 3.12-2). In comparison, 13.2 percent of the 

four-county ROC, 21.7 percent of the LLR, and 7.9 percent of the State of Minnesota’s 

population was below the poverty level (USCB, 2001). 

As shown in Table 3.12-2, the median household income for the State was greater than 

each of the four counties and for the LLR. In addition, the median household income 

was significantly greater for the State than for the median value of the Study Area. The 

median household income for the State was $47,111, while the range for the Study Area 

was $22,546 to $52,045 with a median value of $33,661. 

Table 3.12-2: Number of People Living Below the Poverty Level and Median Household Income in 

2000 

Characteristic Study 

Area ROC Leech Lake Reservation 

State of 

Minnesota 

Individuals 

 Number of Persons Below 

Poverty Level 

4,654 16,647 2,168 380,476 

 Percent of Persons Below 

Poverty Level 

13.4 13.2 21.7 7.9 

Households 

 Median Household Income $33,6611 $33,392 

(Beltrami) 

$34,332 (Cass) 

$35,321 

(Hubbard) 

$ 36,234 

(Itasca) 

$28,137 $47,111 

Note: 1. The values of the median household income in each census group ranged from $22,546 to $52,045. The 

figure shown in the table is the median value of this range. 

 Sources: DATANET, 2000 and USCB, 2000k-o 

Census Block Group Minority and Low-Income Populations 

One method for determining whether significant low-income or minority populations 

exist in a Study Area is to collect information for census block groups within the Study 

Area and then determine whether one or both of the following two criteria is met: 

1. The low-income or minority population of the census block group or study area 

exceeds 50 percent overall; or 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

353 

3.12 Environmental Justice 

2. The low-income or minority population percentage of the study area is 

significantly greater (typically at least 20 percentage points) than the low-income 

or minority population percentage in the geographic area chosen for comparative 

analysis (in this case the four-county comparative geographic area). 

Census block groups are shown in Figure 3.12-1. 

Table 3.12-3 provides a summary of the racial composition and poverty status for census 

block groups in the Study Area. As shown in that table, the percentage of the 

populations in the census block groups living below the poverty level in 2000 ranged 

from 3.0 to 28.4 percent. Thus, there do not appear to be disproportionate populations 

of low-income people in the Study Area, based upon the criterion of an overall 50 

percent of people living below the poverty level. Similarly, there are no 

disproportionate populations of low-income people in the Study Area based upon the 20 

percentage point difference criterion, because no census block group had greater than 

33.2 percent of the people living below the poverty level (i.e., the 13.2 percent level in the 

ROC plus 20.0 percentage points). Figures 3.12-2 shows the location of minority 

populations by block group, while Figure 3.12-3 depicts the locations of populations 

below the poverty level. 

For minority populations, three census block groups located in Cass County exceeded 

the 50 percent overall and 20 percentage point (i.e., 32.4 percent; 12.4 percent in the ROC 

plus 20.0 percentage points) criteria: 

• Census Block Group 270219612001 with 68.2 percent, 

• Census Block Group 270219612002 with 51.5 percent, and 

• Census Block Group 270219612004 with 74.2 percent. 

In addition, two census block groups in Itasca County exceeded the 20 percentage point 

criterion only: 

• Census Block Group 270619802002 with 40.4 percent and 

• Census Block Group 270619802003 with 38.6 percent. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

354 

3.12 Environmental Justice 

Table 3.12-3: Minority and Poverty Status by Census Block Group within the Study Area 

County/ 

Boundary 

Census Block Group 

Identification 

Number 

Located within 

Leech Lake 

Reservation 

Total 

Number of 

People 

Total 

Minority 

(%) 

Poverty 

Rate (%) 

Leech Lake 

Reservation 

Entire Reservation Yes 10,205 48.4 21.7 

Beltrami 270079501002 No 1,280 13.4 16.5 

Beltrami 270079501003 No 898 10.9 11.8 

Beltrami 270079501004 No 905 8.8 5.5 

Beltrami 270079501005 No 1,125 9.1 6.9 

Beltrami 270079503003 No 1,093 7.8 6.6 

Beltrami 270079503004 No 927 6.8 7.9 

Beltrami 270079504001 No 1,161 6.4 14.6 

Beltrami 270079504002 No 941 3.7 12.9 

Beltrami 270079507002 No 1,070 10.5 15.1 

Beltrami 270079507003 No 1,843 16.6 14.6 

Beltrami 270079507006 No 2,181 9.9 9.3 

Beltrami 270079509001 No 579 16.3 22.3 

Cass 270219612001 Yes 1,265 68.2 22.6 

Cass 270219612002 Yes 706 51.5 25.9 

Cass 270219612004 Yes 1,198 74.2 28.4 

Hubbard 270579701001 Yes 1,466 12.4 10.0 

Hubbard 270579701002 No 1,476 3.1 7.9 

Itasca 270619801002 No 1,264 2.6 14.7 

Itasca 270619801003 No 842 5.0 11.4 

Itasca 270619802002 Yes 1,276 40.4 16.4 

Itasca 270619802003 No 650 38.6 27.9 

Itasca 270619803001 No 1,315 1.8 8.1 

Itasca 270619803002 Yes 1,229 12.9 19.3 

Itasca 270619803003 No 750 8.8 11.3 

Itasca 270619804001 No 1,046 2.2 3.0 

Itasca 270619807005 Yes 1,279 3.5 5.2 

Source: DATANET, 2000 

Notes: 1. Route Alternatives 1 and 4 include approximately two acres of Census Block Group 

270219601001 within Cass County. This Census Block Group, however, is not included in this analysis 

due to the small percentage of land cover and because no houses are located within the portion of the 

block group that is located within the Study Area. 

Limited English Proficiency 

Limited English Proficiency populations also were identified using census block group 

data from the 2000 Census. For the portion of the population that was five years old and 

older, persons who spoke English “not well” or “not at all” were considered to have 

Limited English Proficiency. 

Table 3.12-4 shows the Limited English Proficiency characteristics of the Study Area, 

ROC, and the State. The State of Minnesota had the greatest percentage of Limited 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

355 

3.12 Environmental Justice 

English Proficiency individuals at 3.6 percent, followed by the LLR with 1.5 percent, the 

ROC with 1.1 percent, and the Study Area with 0.87 percent. 

Table 3.12-4: Limited English Proficiency 

Characteristic Study 

Area ROC Leech Lake Reservation 

State of 

Minnesota 

 Population 5 years and over 32,471 121,682 9,295 4,591,491 

 Limited English Proficiency 

(individuals) 

284 1,352 141 167,511 

 Limited English Proficiency (percent) 0.87 1.1 1.5 3.6 

Sources: DATANET, 2000 and USCB, 2000f-j and ee 

3.12.1.3. Subsistence Activities 

Subsistence activities include hunting and trapping, fishing, and the gathering of 

vegetation and berries primarily as a source of food, for medicinal purposes, for 

ceremonial activities, and for personal sale as an additional source of income, rather than 

as a recreational activity. Natural resources help ensure that people are able to heat their 

homes, to buy food, and to purchase other goods for their families. Within the LLR, 

approximately 10.7 percent of the population 16 years and over were unemployed 

(USCB, 2000ee). As such, natural resource procurement assists the LLR population. To 

the extent that this information was readily available from the Leech Lake Band and 

publicly-available sources, it is described below. 

Hunting and Trapping 

Hunting and trapping activities occur throughout the ROC. Species commonly 

harvested include white-tailed deer, small game, and waterfowl. Small game species 

include the following: 

• Mammals – deer, cottontail rabbit, porcupines, snowshoe hare, fox, and gray 

squirrels; and 

• Non-migratory birds - ruffed grouse. 

Waterfowl include the following: 

• A variety of ducks – mallard (the most common), black duck, gadwall, wood 

duck, pintail, hooded merganser, scaup, ringneck, redhead, coots, and others; 

and 

• Canada, snow, and other geese. 

Bear is another big game species that is hunted, but to a much lesser extent. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

356 

3.12 Environmental Justice 

Hunting areas typically are concentrated in the Minnesota game refugees and state and 

federal forests. A state-issued license is required for all persons hunting in these areas, 

including members of the Leech Lake Band hunting outside of the reservation 

boundary. A tribal-issued license is required for members of the Leech Lake Band 

engaged in hunting within the reservation. All public land in state-owned Wildlife 

Management Areas (WMAs) is open to the hunting of all species of protected wild 

animals and trapping of mammals during established seasons (MnDNR, 2009k). Local 

game harvest information was not readily available. 

Trapping occurs for the following species of furbearers: 

• Raccoon, 

• Red fox, 

• Gray fox, 

• Badger, 

• Bobcat, 

• Fisher, 

• Pine Marten, 

• Mink, 

• Muskrat, 

• Beaver, and 

• River Otter. 

Fishing 

Harvesting of aquatic species occurs using a variety of methods, including angling with 

a rod and reel from the shore and a boat, ice fishing, spear fishing, and personal gill 

netting. Rod and reel is the most common harvesting method. Personal gill netting 

makes up less than 5 percent of the total harvest of game fish on the LLR. Although 

there are hundreds of lakes and rivers throughout the LLR and elsewhere in the Study 

Area, the most popular large lakes include Leech Lake, Lake Winnibigoshish, and Cass 

Lake (LLDRM, 2009a). 

Over 50 species of fish can be found in area lakes and rivers with walleye, northern pike, 

largemouth bass, white fish, lake herring, and panfish (e.g., perch, crappie, sunfish, and 

bluegills) being the most popular for sport fisheries. Less popular species that also are 

harvested include muskellunge and smallmouth bass. Tribal members also hold the 

lake whitefish, a species only found in some of the larger deeper lakes, in high regard 

(LLDRM, 2009a). 

Gathering 

Within the State of Minnesota, counties in the north and north-central region contain a 

large number of lakes supporting growth of natural wild rice. Among these counties are 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

357 

3.12 Environmental Justice 

Cass County (8,323 estimated acres of wild rice) and Itasca County (8,448 estimated 

acres of wild rice) (MnDNR, 2008d). As aforementioned, these two counties are part of 

the ROC for this analysis. While wild rice concentrations are greatest within Cass and 

Itasca counties, it also is collected to a lesser extent within Beltrami (2,438 estimated 

acres of wild rice) and Hubbard (963 estimated acres of wild rice) counties (MnDNR, 

2008d). 

Wild rice generally requires some moving water, with rivers, flowages, and lakes with 

inlets and outlets being optimal areas for growth. It grows well at water depths of 0.5 to 

3 feet; some plants, however, may be found in deeper waters. These resources can be 

threatened by changes in local hydrology, water quality, water-based recreation, shoreland development, and industrial activities (MnDNR, 2008d). 

Natural wild rice can be hand harvested as a source of food. According to a 2008 report 

by the Minnesota Department of Natural Resources (MnDNR), approximately 4,000 to 

5,000 people participate annually in hand harvesting natural stands of wild rice. In the 

State of Minnesota, the annual yield ranges from 4 to 8 million pounds. A recent study 

by the MnDNR of 2004-2006 state license buyers suggested that the average annual hand 

harvest was approximately 430 pounds per individual (MnDNR, 2008d). 

Within the LLR, all tribal and non-tribal members must have LLR permits to harvest 

wild rice within the boundaries of the LLR (MnDNR, 2009k). Annual permits for 

harvesting within the reservation are issued by the Leech Lake Division of Resource 

Management. 

Wild rice is regulated by the State and requires a license to harvest. The 2008 MnDNR 

Report provides the following information about local legislation: 

Minnesota state statutes provide that ownership of wild rice and other aquatic 

vegetation is vested in the state (MS 84.091). State statutes also establish regulatory 

control over wild rice removal and harvest (MS 84.10, 84.15, 84.027, 84.28). 

Exceptions to state harvest regulations apply in geographic locations that are 

described by treaties and subsequent agreements, statutes, and rules (MS 84.10, MR 

6284.0600 and 6284.0700). State and tribal enforcement officers often operate under 

temporary agreements until formal agreements are finalized (MnDNR, 2008d). 

According to the 2008 MnDNR Report, members of the Minnesota Chippewa Tribe 

(MCT) can harvest wild rice on specified lakes within some Minnesota counties with a 

tribal identification card issued under the sovereign authority of their respective tribal 

governments and current Minnesota statute (MS 84.10). Furthermore, Minnesota Statute 

84.10 allows “persons of Indian blood, or residents of the reservation upon which (the) 

wild rice grain is taken” to gather wild rice from any of the waters within the original 

boundaries of the Leech Lake Reservation (MS 84.10). 

As shown by this legislation, tribal governments have sovereignty over the harvest of 

wild rice within the boundaries of their reservations. In addition, some tribal 

governments also have the authority to regulate the wild rice harvest by tribal members 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

358 

3.12 Environmental Justice 

within certain ceded lands, while other tribal rights exist for specific off-reservation 

waters. The state of Minnesota has jurisdiction over non-tribal harvesters within ceded 

territories and over all off-reservation wild rice harvests outside of the ceded lands 

(MnDNR, 2008d). In this regard, the 2009 Minnesota Statute 84.091 only provides an 

exception from licenses for children under the age of 18, who accompany adult 

gatherers. 

It is much more difficult to find and gather traditional and medicinal plants within the 

LLR, compared to historic periods, because of heavy browsing by white-tailed deer and 

an increased presence of human activity. Heavy browsing has occurred as a result of the 

significant increase in white-tailed deer populations, itself the result of timber harvesting 

and human development that has increased the amount of habitat favorable to the deer 

(LLDRM, 2009b). Tribal members collect a variety of berries as a source of food from the 

spring through the fall, including wild strawberries, juneberries, raspberries, 

blueberries, blackberries, choke cherries, and wild grapes (CNF, 2009a). 

Birch bark is a very important material for Native Americans; it historically was used to 

make baskets, cradle boards, canoes, and in covering wigwams. Today, Leech Lake 

tribal members retain the knowledge and skills to create birch baskets, and birch 

gathering remains a traditional activity (CNF, 2009a). 

Native Americans also have used sweet grass for making baskets and for burning as 

incense. Both practices are associated with the Leech Lake Band of Ojibwe, although 

both activities are more common in other regions of the United States. Sweet grass is 

found in wetland and riparian environments. Sweet grass is considered by the Leech 

Lake Band of Ojibwe to be a sensitive species and is discussed in Section 3.8. According 

to the USDA, wild harvests should be restricted to salvage sites due to declining 

populations of the wild plants (USDA and NRCS, 2007). 

Chippewa National Forest 

Approximately 286 privately owned recreational residence lake lots in the CNF are 

currently under special use permit; no new special use permits are issued. There is no 

indication as to whether these residences are owned by low-income or minority 

residents, who may participate in subsistence activities to supplement their food sources 

or to provide for medicinal purposes and ceremonial activities. Lots are appraised every 

20 years to determine the annual fees to be paid for the long-term land leases. These 

residences also are taxed by the State of Minnesota for the value of improvements and 

the value of the long-term lease rights. Private owners may sell their structures through 

the local real estate market, and new owners may assume the responsibility for the land 

use permit and annual fees (CNF, 2009b). No additional information is available to 

determine the financial or minority status of the individuals who own these lots. 

Hunting is allowed on the CNF, and the high quality habitat provides excellent grouse 

and deer hunting opportunities. Species that can be harvested are the same as those 

described above for the surrounding ROC (CNF, 2009c). In addition, fishing also occurs 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

359 

3.12 Environmental Justice 

in the CNF. Once again, the species that are harvested are similar to those in the 

surrounding lakes and rivers, including muskellunge, northern pike, walleye, 

largemouth and smallmouth bass, panfish (e.g., perch, crappie, and bluegill), and trout 

(CNF, 2009d). Gathering activities occurring in the CNF are similar to those occurring in 

the surrounding ROC, as described above (CNF, 2009a). 

3.12.2. Direct/Indirect Effects 

This section provides a description of the potential impacts that the Project may have on 

low-income and/or minority populations from the No-Build Alternative and the Route 

Alternatives. Impacts to the Leech Lake Reservation (LLR) and the Chippewa National 

Forest (CNF) also are evaluated. These discussions are followed by a comparison of the 

Route Alternatives. In Route Alternative tables presented in the following analyses, the 

number and listing of census block groups vary by alternative because each one 

traverses and, thus, potentially affects different block groups. The comparison of the 

alternatives provides a discussion of temporary and long-term impacts on minority and 

low-income populations within the Study Area and ROC. Potential direct impacts 

include the following: 

• Displacement of homes and businesses 

• Loss of scenic resources 

• Employment effects 

• Impacts to natural resources utilized through subsistence activities 

Limited English Proficiency is not discussed with regard to the individual Route 

Alternatives, because less than 1.1 percent of the population over the age of five years 

old does not speak English at a level of “very well” or above. Impacts to subsistence 

activities are incorporated into the overall comparison of the Route Alternatives. 

Table 3.12-5 summarizes and compares the overall percentages of minority, low-income, 

and LEP populations affected by each of the Route Alternatives. As shown by this table, 

all of the Route Alternatives have the potential to impact minority and low-income 

populations. Route Alternative 2 has the potential to affect slightly more individuals 

that are minority populations or that are living below the poverty level. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

360 

3.12 Environmental Justice 

Table 3.12-5: Summary of Affected Environmental Justice Communities 

Route Alternative Minority Population (%) Low-Income 

Population (%) 

LEP Population 

(%) 

1 21.1 13.5 0.32 

2 26.2 15.4 0.46 

3 9.6 11.8 0.15 

4 24.0 14.1 0.89 

LLR 48.3 21.7 1.5 

ROC 12.4 13.2 1.1 

Sources: DATANET, 2000 and USCB, 2000a-j 

In the event that a structure, such as a home or outbuilding, is located within the rightof-way (ROW) required for the Project, that structure would be displaced; meaning the 

property would need to be purchased by the utility and removed from the area. An 

analysis of a feasible 125-foot ROW within all of the Route Alternatives shows that 

Route Alternative 3 has the greatest number of homes located within the ROW 

evaluated (Table 3.11-10). As discussed in Section 3.11.2, because neither the precise 

width nor the exact placement of the ROW has been established, it is unknown at this 

time whether the Project would cause the displacement of any individuals from their 

homes or businesses, which may include low-income and minority individuals. Federal, 

state, and local regulations dictate property acquisition requirements and that affected 

landowners would be compensated for their property at fair market value. The impacts 

associated with this acquisition would not be different for members of a low-income or 

minority group; therefore, no adverse impacts would result. 

Aesthetics and Quality of Life 

Residents in the vicinity of the Project primarily would be affected by temporary 

construction and long-term aesthetic changes, such as a loss of scenic resources. This 

loss could alter the experience of conducting traditional tribal ceremonial or 

hunting/gathering activities in areas where they have historically occurred. The Leech 

Lake Band of Ojibwe has indicated that certain areas located along Route Alternative 1 

and to a lesser extent Route Alternatives 2 and 4, including the Ten Section area and 

Guthrie Till Plain, have cultural significance for tribal members. Tribal members who 

use these areas for hunting, gathering, or cultural practices would be disproportionately 

affected by the placement of the ROW through these areas, since their experience would 

be altered by the visual intrusion of the ROW and overhead transmission line. 

 

Minority populations living within the LLR, regardless of whether they engage in 

cultural practices or hunting/gathering activities, would experience a visual intrusion 

from the Project in areas where they live, work, and travel within the LLR. The Leech 

Lake Band of Ojibwe has indicated that tribal members living in the LLR have a greater 

interest and affinity for maintaining natural resources in the LLR due to the historical 

and traditional significant of the area. The majority of Route Alternatives 1, 2, and 4
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

361 

3.12 Environmental Justice 

would be located within the boundaries of the LLR; thus, the visual intrusion of the 

Project across the LLR would disproportionately affect the population of the LLR. 

Neither construction nor operation is considered to result in a disproportionate adverse 

impact to minority or low-income people occasionally traveling through the area 

because and the Project would affect everyone travelling through the area regardless of 

financial or minority status. 

Economic and Employment Effects 

All of the Project Route Alternatives could provide increased opportunities for firewood 

gathering or employment. During construction, the proposed Project likely would 

provide an opportunity for temporary employment for members of the minority and 

low-income communities in the area. 

As noted in further detail in Section 3.11 Socioeconomics, the Project would not directly 

impact any businesses and is not expected to have negative economic impacts. The 

operation and maintenance of the transmission line would not negatively impact the 

socioeconomic resources related to industry in the four-county area; therefore no 

minority or low-income businesses would be impacted. 

Subsistence 

The Route Alternatives would impact food resources used by those conducting 

subsistence hunting, fishing, and gathering activities. This alteration could include 

some species moving out of an area and others moving into that area (e.g., such as might 

occur if trees were cut down and thus a greater prevalence of deer might occur), or 

changes in harvest success and levels. While access and use of traditional hunting and 

gathering areas would not be restricted by the Route Alternatives on a long-term basis, 

some temporary and long-term impact to the uses of those areas would result. 

Vegetation within the transmission line route would be removed during construction. 

This would impact any gathering activities that occurred in these areas prior to 

construction, as well as impact the location of some species, which prefer closed areas as 

opposed to those free of vegetation. The potential introduction and spread of invasive 

species could result in long-term impacts to the ROW and adjacent areas. 

During construction, some animal species also would be affected. For example, some 

mortality could occur to less motile or burrowing species, and abandonment of a nest 

site and the loss of eggs and/or young in avian species. Animal communities also may 

be temporarily disturbed during construction due to the movement of equipment, noise, 

and dust. Animal communities could be displaced long-term where the opening of a 

forest canopy is converted to a non-compatible cover type. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

362 

3.12 Environmental Justice 

In addition, some temporary disruptions may occur if access is limited, for safety 

purposes, to areas typically used for hunting and gathering. 

Once in operation, the primary impact to vegetation would be the long-term conversion 

of existing vegetation communities to managed grassland or shrubland within the 

transmission line ROW. Low-growing vegetation, such as blueberries or raspberries, 

would be allowed to grow within the Project’s ROW after re-establishment. Trees 

would not be allowed to re-establish within the Project’s ROW. 

With regard to wild rice, direct impacts to the wild rice plants are expected to be 

minimal. As indicated in Section 3.4.2, no temporary or long-term direct impacts to 

surface water resources would likely occur to public water inventory (PWI) basins or 

watercourses, in part because the Applicants have located Project Route and Segment 

Alternatives to avoid surface water features to the extent practicable. In addition, the 

Applicants anticipate that surface water features would be avoided by spanning the 

transmission line over the water bodies or redirecting the ROW to avoid these areas 

entirely. Long-term indirect impacts may be felt by existing, local gatherers because 

their views would be altered along waterways where rice gathering may occur. The 

gathering of wild rice and other products is discussed in Section 3.9, Cultural Resources 

and Values. 

Health 

The Project Route and Segment Alternatives would not have negative effects on public 

health. None of the alternatives would produce hazardous waste or conditions that 

might adversely affect local populations, provided there are no spills or leaks from 

construction equipment. These issues are discussed in greater detail in Section 3.20, 

Safety and Health. 

3.12.2.1. No-Build Alternative 

The No-Build Alternative would not impact minority and low-income populations 

directly or indirectly. This alternative would not result in the displacement of homes 

and businesses, because it would not change the existing conditions. No loss of scenic or 

economic resources would result because land would not be utilized for the 

transmission line under the No-Build Alternative. Furthermore, impacts to subsistence 

food resources of those populations for would not occur because existing hunting and 

gathering lands would not be utilized for this alternative. 

3.12.2.2. Route Alternative 1 

Route Alternative 1 crosses through 10 census block groups within all four counties of 

the ROC. The total population of the census block groups is 12,276. All of the Segment 

Alternatives associated with this Route Alternative are contained within the census 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

363 

3.12 Environmental Justice 

block groups evaluated for Route Alternative 1. The discussion that follows includes a 

description of the minority concentrations and low-income groups contained within 

these census block groups. 

All but one of the census block groups through which Route Alternative 1 passes are 

also crossed by Route Alternative 2. 

Minority Concentrations 

Table 3.12-6 shows the percentage of minority persons in each census block group in the 

Study Area for Route Alternative 1. Of the 10 census block groups that intersect with 

the alignment of Route Alternative 1, two of the block groups in Cass County have 

minority populations that exceed 50 percent. These block groups occur in the area 

surrounding Cass Lake. In addition, two other census block groups have minority 

populations that are greater than the ROC, one in Beltrami County and one in Itasca 

County. 

Table 3.12-6: Route Alternative 1 - Minority Persons by Census Block Group 

Jurisdiction 

Region or Census Block 

Group Identification 

Number 

Located within Leech 

Lake Reservation 

Percent 

Minority 

Greater than 

ROC? 

(Yes or No) 

Minnesota ----- ----- 10.6 No 

Leech Lake 

Reservation 

----- ----- 48.3 Yes 

ROC ----- ----- 12.4 ----- 

Beltrami County 270079501003 No 10.9 No 

Beltrami County 270079501004 No 8.8 No 

Beltrami County 270079507003 No 16.6 Yes 

Cass County 270219612001 Yes 68.2 Yes 

Cass County 270219612002 Yes 51.5 Yes 

Hubbard County 270579701001 Yes 12.4 No 

Hubbard County 270579701002 No 3.1 No 

Itasca County 270619802002 Yes 40.4 Yes 

Itasca County 270619803002 Yes 12.9 No 

Itasca County 270619807005 Yes 3.5 No 

Sources: DATANET, 2000 and USCB, 2000e 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

364 

3.12 Environmental Justice 

Poverty and Low-Income Concentrations 

Five census block groups intersected by Route Alternative 1 have a greater percentage of 

low-income residents than the ROC (Table 3.12-7). Four of these census block groups 

also have greater than average minority populations. 

Table 3.12-7: Route Alternative 1 - Poverty Level by Census Block Group 

Jurisdiction 

Region or Census 

Block Group 

Identification Number 

Located within 

Leech Lake 

Reservation 

Percent Below 

Poverty Level 

Greater than 

ROC? 

(Yes or No) 

Minnesota ----- ----- 7.9 No 

Leech Lake 

Reservation 

----- ----- 21.7 Yes 

ROC ----- ----- 13.2 ----- 

Beltrami County 270079501003 No 11.8 No 

Beltrami County 270079501004 No 5.5 No 

Beltrami County 270079507003 No 14.6 Yes 

Cass County 270219612001 Yes 22.6 Yes 

Cass County 270219612002 Yes 25.9 Yes 

Hubbard County 270579701001 Yes 10.0 No 

Hubbard County 270579701002 No 7.9 No 

Itasca County 270619802002 Yes 16.4 Yes 

Itasca County 270619803002 Yes 19.3 Yes 

Itasca County 270619807005 Yes 5.2 No 

Sources: DATANET, 2000 and USCB, 2000o 

Subsistence 

Route Alternative 1 would impact the LLBO trust resources and subsistence way of life 

because of the loss of forest lands within the Cuba Hill and Ten Section areas. 

Construction of Route Alternative 1 would convert an estimated 579 acres of forested 

area. To the extent that these forested areas are used to conduct traditional ceremonial 

or hunting/gathering activities, the experience of conducting these activities would be 

altered and the potential harvest levels could also be altered as a result of shifting or lost 

species. 

3.12.2.3. Route Alternative 2 

Route Alternative 2 crosses 13 census block groups. The total population is 26,408. As 

with Route Alternative 1, Route Alternative 2 crosses census block groups contained 

within all four counties of the ROC. Segment Alternatives associated with this Route 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

365 

3.12 Environmental Justice 

Alternative are contained within the census block groups evaluated for Route 

Alternative 2. Many are also crossed by Route Alternative 1. 

Minority Concentrations 

Of the 13 census block groups that intersect the alignment for Route Alternative 2, three 

have minority populations that exceed 50 percent. These three block groups are located 

in Cass County, in the area surrounding Cass Lake. Additionally, four other census 

block groups have minority populations that are greater than the ROC (Table 3.12-8). 

Two of these groups are in Beltrami County in the Bemidji area and two are in Itasca 

County in the greater Grand Rapids area near Deer River. 

Table 3.12-8: Route Alternative 2 - Minority Persons by Census Block Group 

Jurisdiction 

Region or Census Block 

Group Identification 

Number 

Located within 

Leech Lake 

Reservation 

Percent 

Minority 

Greater than 

ROC? 

(Yes or No) 

Minnesota ----- ----- 10.6 No 

Leech Lake 

Reservation 

----- ----- 48.3 Yes 

ROC ----- ----- 12.4 ----- 

Beltrami 

County 

270079501002 No 13.4 Yes 

Beltrami 

County 

270079501003 No 10.9 No 

Beltrami 

County 

270079501004 No 8.8 No 

Beltrami 

County 

270079507002 No 10.5 No 

Beltrami 

County 

270079507003 No 16.6 Yes 

Cass County 270219612001 Yes 68.2 Yes 

Cass County 270219612002 Yes 51.5 Yes 

Cass County 270219612004 Yes 74.2 Yes 

Hubbard 

County 

270579701001 Yes 12.4 No 

Itasca County 270619802002 Yes 40.4 Yes 

Itasca County 270619803001 No 1.8 No 

Itasca County 270619803002 Yes 12.9 Yes 

Itasca County 270619807005 Yes 3.5 No 

Sources: DATANET, 2000 and USCB, 2000e 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

366 

3.12 Environmental Justice 

Poverty and Low-Income Concentrations 

Eight census block groups intersected by Route Alternative 2 have a greater percentage 

of low-income residents than the ROC, as shown in Table 3.12-9. Three of these groups 

are in Beltrami County, three are in Cass County, and two are in Itasca County. Seven 

out of eight of these census block groups also have greater than average minority 

populations. 

Table 3.12-9: Route Alternative 2 – Poverty Level by Census Block Group 

Jurisdiction 

Region or Census 

Block Group 

Identification Number 

Located within 

Leech Lake 

Reservation 

Percent Below 

Poverty Level 

Greater than 

ROC? 

(Yes or No) 

Minnesota ----- ----- 7.9 No 

Leech Lake 

Reservation ----- ----- 21.7 Yes 

ROC ----- ----- 13.2 ----- 

Beltrami County 270079501002 No 16.5 Yes 

Beltrami County 270079501003 No 11.8 No 

Beltrami County 270079501004 No 5.5 No 

Beltrami County 270079507002 No 15.1 Yes 

Beltrami County 270079507003 No 14.6 Yes 

Cass County 270219612001 Yes 22.6 Yes 

Cass County 270219612002 Yes 25.9 Yes 

Cass County 270219612004 Yes 28.4 Yes 

Hubbard County 270579701001 Yes 10.0 No 

Itasca County 270619802002 Yes 16.4 Yes 

Itasca County 270619803001 No 8.1 No 

Itasca County 270619803002 Yes 19.3 Yes 

Itasca County 270619807005 Yes 5.2 No 

Sources: DATANET, 2000 and USCB, 2000o. 

Subsistence 

Route Alternative 2 would convert an estimated 439 acres of forested area, the least of 

the Route Alternatives evaluated. To the extent that these forested areas are used to 

conduct traditional ceremonial or hunting/gathering activities, the experience of 

conducting these activities would be altered and the potential harvest levels could also 

be altered as a result of shifting or lost species. Route Alternative 2 also contains the 

only documented occurrences of sweet grass in the Study Area. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

367 

3.12 Environmental Justice 

3.12.2.4. Route Alternative 3 

Route Alternative 3 crosses census block groups that are located within three counties of 

the ROC. Because Route Alternative 3 is considerably longer than Route Alternatives 1 

2, and 4, at 116 miles compared to between 68 and 70 miles, this alternative passes 

through more census block groups than the other three Route Alternatives. The total 

population within these census blocks group is 31,854. This Route Alternative, however, 

does not pass through as much of the LLR as the other alternatives within the Study 

Area. 

Minority Concentrations 

Table 3.12-10 lists the percentage of minority persons in each census block group in the 

Study Area for Route Alternative 3. None of the 19 census block groups that intersect 

the alignment of Route Alternative 3 have minority populations that exceed 50 percent. 

However, five census block groups have minority populations that are greater than the 

ROC, including two in Beltrami County and three in Itasca County. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

368 

3.12 Environmental Justice 

Table 3.12-10: Route Alternative 3 – Minority Persons by Census Block Group 

Jurisdiction 

Region or 

Census Block 

Group 

Identification 

Number 

Located within 

Leech Lake 

Reservation 

Percent Minority Greater than ROC? 

(Yes or No) 

Minnesota ----- ----- 10.6 No 

Leech Lake 

Reservation 

----- ----- 48.3 Yes 

ROC ----- ----- 12.4 ----- 

Beltrami County 270079501003 No 10.9 No 

Beltrami County 270079501004 No 8.8 No 

Beltrami County 270079501005 No 9.1 No 

Beltrami County 270079503003 No 7.8 No 

Beltrami County 270079503004 No 6.8 No 

Beltrami County 270079504001 No 6.4 No 

Beltrami County 270079504002 No 3.7 No 

Beltrami County 270079507003 No 16.6 Yes 

Beltrami County 270079507006 No 9.9 No 

Beltrami County 270079509001 No 16.3 Yes 

Hubbard County 270579701002 No 3.1 No 

Itasca County 270619801002 No 2.6 No 

Itasca County 270619801003 No 5.0 No 

Itasca County 270619802002 Yes 40.2 Yes 

Itasca County 270619802003 No 38.6 Yes 

Itasca County 270619803002 Yes 12.9 Yes 

Itasca County 270619803003 No 8.8 No 

Itasca County 270619804001 No 2.2 No 

Itasca County 270619807005 Yes 3.5 No 

Sources: DATANET, 2000 and USCB, 2000e 

Poverty and Low-Income Concentrations 

Eight census block groups intersected by Route Alternative 3 have a greater percentage 

of low-income residents than the ROC, as shown in Table 3.12-11. Four of these blocks 

are in Beltrami County and four are in Itasca County. Of these eight census block 

groups, five also have a greater minority population. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

369 

3.12 Environmental Justice 

Table 3.12-11: Route Alternative 3 - Poverty Level by Census Block Group 

Jurisdiction 

Region or Census 

Block Group 

Identification Number 

Located within 

Leech Lake 

Reservation 

Percent Below 

Poverty Level 

Greater than 

ROC? 

(Yes or No) 

Minnesota ----- ----- 10.6 No 

Leech Lake 

Reservation 

----- ----- 21.7 Yes 

ROC ----- ----- 12.4 ----- 

Beltrami County 270079501003 No 11.8 No 

Beltrami County 270079501004 No 5.5 No 

Beltrami County 270079501005 No 6.9 No 

Beltrami County 270079503003 No 6.6 No 

Beltrami County 270079503004 No 7.9 No 

Beltrami County 270079504001 No 14.6 Yes 

Beltrami County 270079504002 No 12.9 Yes 

Beltrami County 270079507003 No 14.6 Yes 

Beltrami County 270079507006 No 9.3 No 

Beltrami County 270079509001 No 22.3 Yes 

Hubbard County 270579701002 No 7.9 No 

Itasca County 270619801002 No 14.7 Yes 

Itasca County 270619801003 No 11.4 No 

Itasca County 270619802002 Yes 16.4 Yes 

Itasca County 270619802003 No 27.9 Yes 

Itasca County 270619803002 Yes 19.3 Yes 

Itasca County 270619803003 No 11.3 No 

Itasca County 270619804001 No 3.0 No 

Itasca County 270619807005 Yes 5.2 No 

Sources: DATANET, 2000 and USCB, 2000o 

Subsistence 

Route Alternative 3 would convert approximately 813 acres of forested area, the most of 

the Route Alternatives reviewed; however, Route Alternative 3 has the smallest impact 

to resources within LLR. To the extent that these forested areas are used to conduct 

traditional ceremonial or hunting/gathering activities, the experience of conducting 

these activities would be altered and the potential harvest levels could also be altered as 

a result of shifting or lost species. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

370 

3.12 Environmental Justice 

3.12.2.5. Route Alternative 4 

Route Alternative 4 crosses census block groups that are located within all four 

counties of the ROC. Twelve census block groups are included within this route 

alignment. The total population within these census blocks group is 14,856. 

Minority Concentrations 

Table 3.12-12 lists the percentage of minority persons in each census block group in 

the Study Area for Route Alternative 4. Three of the 12 census block groups that 

intersect the alignment of Route Alternative 4 have minority populations that exceed 

50 percent. Six of the census block groups have minority populations that are greater 

than the ROC, one in Beltrami County, three in Cass County, and two in Itasca 

County. 

Table 3.12-12: Route Alternative 4 – Minority Persons by Census Block Group 

Jurisdiction 

Region or 

Census Block 

Group 

Identification 

Number 

Located within 

Leech Lake 

Reservation 

Percent Minority Greater than ROC? 

(Yes or No) 

Minnesota ----- ----- 10.6 No 

Leech Lake 

Reservation 

----- ----- 48.3 Yes 

ROC ----- ----- 12.4 ----- 

Beltrami County 270079501003 No 9.2 No 

Beltrami County 270079501004 No 6.5 No 

Beltrami County 270079507003 No 15.7 Yes 

Cass County 270219612001 Yes 68.8 Yes 

Cass County 270219612002 Yes 54.0 Yes 

Cass County 270219612004 Yes 75.1 Yes 

Hubbard County 270579701001 Yes 11.5 Yes 

Hubbard County 270579701002 No 3.6 No 

Itasca County 270619802002 No 40.9 Yes 

Itasca County 270619803001 No 1.9 No 

Itasca County 270619803002 Yes 13.5 Yes 

Itasca County 270619807005 Yes 3.7 No 

Sources: DATANET, 2000 and USCB, 2000e 

Poverty and Low-Income Concentrations 

As shown in Table 3.12-13, six census block groups intersected by Route Alternative 4 

have a greater percentage of low-income residents than the ROC. One of these census 

block groups is in Beltrami County, three are in Cass County, and two are in Itasca
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

371 

3.12 Environmental Justice 

County. These same census block groups also have a higher minority percentage than 

the ROC. 

Table 3.12-13: Route Alternative 4 - Poverty Level by Census Block Group 

Jurisdiction 

Region or 

Census Block 

Group 

Identification 

Number 

Located within 

Leech Lake 

Reservation 

Percent Below 

Poverty Level 

Greater than ROC?

(Yes or No) 

Minnesota ----- ----- 10.6 No 

Leech Lake 

Reservation 

----- ----- 21.7 Yes 

ROC ----- ----- 12.4 ----- 

Beltrami County 270079501003 No 11.8 No 

Beltrami County 270079501004 No 5.5 No 

Beltrami County 270079507003 No 15.1 Yes 

Cass County 270219612001 Yes 22.6 Yes 

Cass County 270219612002 Yes 25.9 Yes 

Cass County 270219612004 Yes 28.4 Yes 

Hubbard County 270579701001 Yes 10.0 No 

Hubbard County 270579701002 No 7.9 No 

Itasca County 270619802002 No 16.4 Yes 

Itasca County 270619803001 No 8.1 No 

Itasca County 270619803002 Yes 19.3 Yes 

Itasca County 270619807005 Yes 5.2 No 

Sources: DATANET, 2000 and USCB, 2000o 

Subsistence 

Route Alternative 4 would convert approximately 575 acres of forested land. It would 

impact the LLR in a similar manner as Route Alternative 2. To the extent that these 

forested areas are used to conduct traditional ceremonial or hunting/gathering 

activities, the experience of conducting these activities would be altered and the 

potential harvest levels could also be altered as a result of shifting or lost species. 

3.12.2.6. Leech Lake Reservation 

As previously mentioned, the Project area includes portions of the LLR. Route 

Alternatives 1, 2, and 4 cross the entire length of the LLR. As shown in Section 3.10, 

Land Use, Route Alternative 1 crosses approximately 5,291 acres within a 1,000-footwide route; Route Alternative 2 crosses approximately 5,232 acres; and Route 

Alternative 4 crosses approximately 4,347 acres. Route Alternative 3 crosses the least 

amount, at 36 acres. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

372 

3.12 Environmental Justice 

The minority population in the vicinity of the Project area is predominately Anishinabe 

Indian. Communities within this area that include noticeable percentages of Native 

Americans include Cass Lake, Bena, Ball Club, and Deer River. 

Impacts for environmental justice would be similar to those that are discussed for the 

three Route Alternatives in Section 3.12.2.7. Route Alternative 3 would have fewer 

impacts to the LLR than the other route alternatives, because much of this alternative is 

located outside of the reservation. As previously indicated, only 36 acres of the LLR are 

crossed by the 1,000-foot-wide Route Alternative 3. 

3.12.2.7. Chippewa National Forest 

All four Route Alternatives cross portions of CNF land. Impacts for environmental 

justice would be similar to those that are discussed for the four Route Alternatives in 

Sections 3.12.2.2-4. 

The CNF has the responsibility to mitigate the impacts to their trust responsibility to the 

Leech Lake Band of Ojibwe (LLBO). 

3.12.3. Mitigation 

The Project would result in both temporary and long-term impacts to aesthetics and 

subsistence uses for minority or low-income populations in the Study Area. The 

following sections summarize the mitigation measures that could be implemented to 

reduce the potential impacts from construction equipment and activities. Mitigation 

measures that are typically included in permits are noted; cases where additional 

mitigation measures may be incorporated as a permit condition are also noted. 

As previously indicated, any CNF forest lands cleared for a special use permit would 

result in a loss of trust resources of the LLBO and must be mitigated by the CNF. 

Aesthetics 

Residents in the vicinity of the Project primarily would be affected by temporary 

construction and long-term aesthetic changes, such as a loss of scenic resources. As 

discussed previously in Section 3.1, Aesthetics, the HVTL permit could require the 

Applicants to work with landowners to identify aesthetic concerns and to attempt to 

minimize visual impacts related to the Project. Specific mitigation measures for aesthetic 

impacts are addressed in Section 3.1. 

The Leech Lake Band of Ojibwe has indicated that certain areas located along Route 

Alternative 1, including the Ten Section area and Guthrie Till Plain, have cultural 

significance for tribal members. Tribal members who use these areas for hunting, 

gathering, or cultural practices would be disproportionately affected by the Project, 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

373 

3.12 Environmental Justice 

since their experience would be altered by the visual intrusion of the ROW and 

overhead transmission line. These impacts could be mitigated by siting the Project 

outside the areas identified for use in hunting/gathering or cultural practices. The 

Applicants have developed Segment Alternatives to avoid areas of tribal significant. 

Segment Alternative B would provide a variation to Route Alternative 1 that would 

largely avoid the Ten Section area. 

Economic and Employment 

The Project is not expected to result in an economic hardship to minority or low-income 

populations, so no mitigation measures are suggested. 

Subsistence 

Temporary and long-term disruption to hunting and gathering may occur during Project 

construction. To minimize long-term disruption to resources, the HVTL permit could 

require restoration of the ROWs, temporary work spaces, access roads, and other lands 

affected by constructions. Required restoration activities may include re-vegetation of 

plants used for gathering in the ROWs. The HVTL permit could require the Applicants 

to work with the MnDNR, LLB, CNF, landowners, and local wildlife management 

programs to restore and maintain the ROWs to provide a useful and functional habitat 

for plants, nesting birds, small animals, and migrating animals to minimize habitat 

fragmentation. Section 3.7, Biological Resources, provides mitigation measures for 

addressing vegetation and fauna. After time, animals and vegetation also would adapt 

to the new conditions, which would include the infrastructure for the transmission lines. 

The Applicants would work to provide opportunities, including but not limited to, 

contracts-for-service to the LLDRM Plant Resources Department to conduct long-term 

monitoring and management of the HVTL ROW on the LLR to reduce non-native, 

invasive species and enhance native, traditionally important species. 

Direct impacts to wild rice plants are expected to be minimal. To minimize temporary 

impacts to wild rice, Project construction in wetland areas, when such areas cannot be 

avoided, would take place in the winter. Wooden or composite mats could be used to 

protect wetland vegetation. To reduce long-term impacts, the Project would span 

wetlands, floodplains, and water resources where possible to reduce the number of pole 

structures placed in wetlands, floodplains, and water resources. 

The Applicants would work with the LLDRM and LLBO members to allow them to 

collect and transplant (in whole or in part) traditionally important plants from the 

entire ROW before construction. A communication plan would be developed that 

would provide LLBO members clear and timely information as to when ROW (on 

CNF-owned land) would not be available for gathering activities (which may include 

transplanting plants of concern) because of construction. Information would be 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

374 

3.12 Environmental Justice 

presented to LLDRM to provide at LIC meetings, in the local newspaper, on the LLBO 

website, etc. 

The United States made treaties with the Ojibwe that created the reservation and 

ceded areas of land in northern Minnesota to the federal government. The treaties 

also reserved the right of the Ojibwe bands to hunt, fish, and gather within the treaty 

area. The Forest Service has committed through its Forest Plan to facilitate the overall 

ability of the Ojibwe to exercise these rights in a sustainable fashion on NFS lands. 

Health 

The Project would not have negative effects on public health, so no mitigation measures 

are suggested. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

375 

3.13 Recreation and Tourism 

3.13. Recreation and Tourism 

This section describes the recreational and tourism resources within the Study Area, 

defined as the 1,000-foot-wide routes for each Route and Segment Alternative. 

Methodology and Sources of Information 

Federal and state recreational areas, lakes, water access points, and trails are identified 

using data from the Minnesota Department of Natural Resource’s (MnDNR) Recreation 

Compass and the Chippewa National Forest’s (CNF) resources. Hunting and fishing 

information was also obtained through the MnDNR, which was supplemented with 

local recreation and tourism estimates from various cities and counties located within 

and near the Study Area. This information was analyzed to determine the Study Area 

existing conditions and potential effects upon those conditions. 

3.13.1. Affected Environment 

The Study Area is viewed as a recreational destination within Minnesota because of the 

presence of numerous trails, rivers, lakes, national forest lands, and state lands. 

Recreational activities and tourism are important components of the local economy 

(Cass County, 2002). Popular activities at these locations include camping, fishing, 

hunting, wild rice harvesting, bird watching, canoeing, boating, swimming, biking, 

hiking, riding all-terrain vehicles (ATVs) and snowmobiles, driving for pleasure, and 

nature observation. In particular, the MnDNR Wildlife Management Areas (WMAs) 

and Scientific and Natural Areas (SNAs), and the CNF provide opportunities for 

viewing wildlife and ecosystems. 

Federal, State and county managed lands compromise much of the ownership within 

the Study Area. These lands are highly interconnected, with many common boundaries 

and little to no visible definition of ownership on the ground. In addition, the four 

counties through which the Route Alternatives and Segment Alternatives cross rely on 

revenue generated from recreational activities (i.e., from tourism and seasonal 

residents), particularly Cass County. For these reasons, recreation effects are discussed 

with regard to the Route Alternatives and Segment Alternatives. 

This section describes the recreational resources included within federal and state lands 

and local areas. The discussion incorporates both dispersed and developed recreational 

and tourism activities. Table 3.13-1 provides a summary of these resources. 
Bemidji – Grand Rapids Transmission Line Sept

Final EIS 

376 

3.13 Recreation and Tourism 

Table 3.13-1: Recreational Resources for each Alternative 

Location Resource Route Alternatives Segment Alternatives 

1 2 3 4 A B C D E F G H I J K L M N 

Federal (CNF)

Chippewa National Forest X X X X - X X - X X - - - - - - - X Ladyslipper NF Scenic Byway - X - X - - - - - - - - - - - - - - Great River Road Scenic Byway X X X X - - - - - - - - - - - - - - Mi-Ge-Zi Trail X - - - - X - - - - - - - - - - - - Norway Beach Interpretive Trail - X - X - - - - - - - - - - - - - - Pipeline Snowmobile Trail X - - - - - - - - - - - - - - - - - Soo Line Trail (ATV and snowmobile) 

X X - X - - - - - - - - - - - - - - 

Winnie Snowmobile Trail X - - - - - - - - - - - - - - - - - 

State

North Country Trail (GIA) X X X X X - - - - - - - - - - - - - Blue Ox Snowmobile Trail (GIA) - X X - - - - - - - - - - - - - - - Cass County Snowmobile Trail(GIA) 

X X - X - - - - - - - - - - X - - - 

West Bowstring Trail - - X - - - - - X - - - - - - - - - Becida Snowmobile Trail (GIA) - - - - X - - - - - - - - - - X - - Paul Bunyan State Trail X - X X X - - - - - - - - - - - - - Heartland State Trail X X - X - - - X - X - - - - - - - - Soo Line North State Trail (ATV) X X - X - - - - - - - - - - - - - X Marcell Trails - - X - - - - - X - - - - - - - - - Bushwacker Trail - X X - - - - - - - - - - - - - - - Welsh Lake State Forest parcels X X - X - - - - X - - - - - - - - - Bowstring State Forest parcels X X X X - - - - X - - - - - - - - - Ladyslipper MN Scenic Byway - X X X - - - - - - - - - - - - - - Avenue of the Pines Scenic Byway - - X - - - - - - - - - - - - - - - Bemidji Slough WMA X - X X - - - - - - - - - - - - - - Bemidji State Game Refuge X X X X - - - - - - - - - - - - - - Mississippi River (Water Trail) X X X X - - - - - - - - - - - - - - Pike Bay Loop Road Bike Route X - - - - - - - - - - - - - - - - - Moss Lake Road Bike Route X - - - - - - - - - - - - - - - - - 

South Boundary Bike Route X - - - - - - - - - - - - - - - - - 

Local  Sandtrap Golf Course - X - X - - - - - - - - - - - - - 
Bemidji – Grand Rapids Transmission Line Sept

Final EIS 

377 

3.13 Recreation and Tourism 

Bemidji High School Tennis Courts and Soccer Fields 

- X - - - - - - - X X X - - - - - 

Notes: 

X = Resource occurs within the 1,000-foot-wide route - = Resource does not occur within the 1,000-foot-wide route GIA = Grant-in-Aid, trails that have a MnDNR cost-sharing program for their development and maintenance. This is delegated by sta

stickers are required by operators on these trails. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

378 

3.13 Recreation and Tourism 

3.13.1.1. Dispersed Recreational Activities 

Dispersed recreational opportunities are those activities occurring outside of developed 

recreational sites including, but not limited to, activities such exploring the forested 

areas, winter activities, driving for pleasure, hunting, and forest product gathering. This 

discussion is divided into the following sub-sections: Trail Activities, Hunting and 

Gathering, Fishing and Water Recreation, and Auto Tours. Resources managed by the 

CNF are discussed in Section 3.13.1.4. 

Trail Activities 

The administrative boundaries of state and national forests within Minnesota are 

connected through state- and federally-designated trails and county and municipal trail 

systems. For this reason, some of the trails cross numerous jurisdictions. The trails offer 

opportunities for horseback riding, cycling, snowmobiling, cross country skiing, and offroad all-terrain vehicle (ATV) and motorcycle use. The Study Area incorporates land in 

state owned properties, each of the four counties, the Leech Lake Reservation (LLR), and 

the CNF. 

As shown in Table 3.13-1 and Figure 3.13-1, the Route Alternatives and Segment 

Alternatives cross six state-designated trails: 

• West Bowstring Trail: used for snowmobiling; 

• Paul Bunyan State Trail: a multi-use trail providing opportunities for biking, 

hiking, in-line skating, and snowmobiling; 

• Heartland State Trail: a multi-use trail providing opportunities for biking, hiking, 

in-line skating, and snowmobiling; 

• Soo Line North State Trail: a 49-mile trail open to off-road vehicles between 

April and November and groomed for snowmobiles in the winter; 

• Marcell Trail: used for snowmobiling; and 

• Bushwacker Trail: used for snowmobiling. 

The Study Area also includes four Grant-In-Aid (GIA) snowmobile trails, which cross 

numerous jurisdictions and include the following: 

• North Country Trail; 

• Blue Ox Snowmobile Trail; 

• Cass County Snowmobile Trail; and 

• Becida Snowmobile Trail. 

The maintenance of GIA trails is the responsibility of the MnDNR. State-issued 

registration stickers are required by operators on these trails. The GIA trails are utilized 

by off-highway vehicles (OHV), where appropriate, as well as for hiking, biking, and 

snow activities. State statutes, MnDNR regulations, and county ordinances regulate the 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

379 

3.13 Recreation and Tourism 

use of OHVs on these trails and other areas. For example, OHVs are prohibited from 

water bodies and wetlands, designated non-motorized trails, posted areas, and 

restricted areas on public lands. 

In addition to the designated state and GIA trails, the Study Area also contains a number 

of snowmobile trails maintained by Beltrami, Hubbard, Cass, and Itasca counties. 

While the public rights-of-way (ROWs) on roadways are not official trails, OHVs also 

are allowed to operate in these locations with some limitations. For example, OHVs 

cannot operate on the inside slope of the ditch, shoulder, and roadway of state or county 

roads. Class 2 all terrain vehicles (ATV) may be operated on the shoulder or extreme 

right side of county, township, and city roads if not prohibited by the road authority or 

other local laws (MnDNR, 2008b and 2008c). CNF regulates OHV use on national forest 

lands. These regulations are discussed in detail in Section 3.13.1.4. 

Hunting and Gathering 

The Study Area attracts thousands of hunters during deer season, as well as those who 

hunt small game and waterfowl. Route Alternatives 1, 3, 4 and their associate Segment 

Alternatives cross the Bemidji Slough wildlife management area (WMA). The WMA is 

located south of the city of Bemidji, in the northwest quadrant of the intersection of U.S. 

Highway 71 and MN Highway 46. 

The WMA is part of the Bemidji State Game Refuge. The Bemidji State Game Refuge 

encompasses approximately 47,300 acres and includes the city of Bemidji, Lake Bemidji, 

Lake Bemidji State Park, portions of the U.S. Highway 2 corridor, and other transmission 

lines. This area is located near the Schoolcraft and Mississippi Rivers, Lake Marquette, 

Lake Plantagenet, Lake Irving, and Carr Lake. The Bemidji State Game Refuge is an area 

designated by the MnDNR, in which the hunting or trapping of some wild animals is 

prohibited. Hunting in the WMA and Bemidji State Game Refuge is open for small 

game, but not waterfowl. In addition, deer hunting is restricted within the WMA and 

game refuge. 

All Route Alternatives cross portions of the Bowstring State Forest. Route Alternatives 

1, 2, and 4 cross portions of the Welsh Lake State Forest. In addition, all alternatives 

cross portions of the CNF. Hunting is allowed on state- and federally-owned forest 

parcels that are crossed by the Route Alternatives and Segment Alternatives (Otter Tail 

Power et al., 2008a). 

For some people, primarily non-tribal members, the harvesting of wild rice is used as a 

recreational or educational activity. Large wild rice beds are protected and actively 

managed by the MnDNR. Users of this resource must purchase a license to harvest wild 

rice. Non-tribal members are allowed to gather wild rice on the LLR, as well. However, 

a license must be purchased from the LLR in order to participate in this activity on 

reservation lands. Licenses are issued to non-band members if they meet one or more of 

the following conditions: 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

380 

3.13 Recreation and Tourism 

• Have a tribal identification card w/enrollment number; 

• Have a Minnesota Driver’s License with current address; or 

• Must be a resident of the LLR for 90 days (LLBO, 2009c). 

Wild rice also represents an important part of the cultural heritage of the Leech Lake 

Band of Ojibwe (LLBO). As discussed in Sections 3.9 and 3.12, Tribal members of the 

LLBO gather wild rice, berries, boughs, and bark, when they are in season, from publicly 

owned lands within the boundaries of the Reservation. At times, permits are required 

(LLBO, 2009c). In many instances these activities are used to provide food or as an 

important part of their cultural practices and not as recreational activities. Additional 

detailed discussions about hunting and the gathering of wild rice and other foods with 

regard to subsistence uses is presented in Section 3.9, Cultural Resources and Section 

3.12, Environmental Justice. 

Fishing and Water Recreation 

Several large lakes present within the Study Area are used for fishing and recreational 

boating. Section 3.4, Water Resources, outlines additional water resources within the 

Study Area. Additional information about fishing can also be found in Section 3.12, 

Environmental Justice. 

All Route Alternatives run to the south of Lake Irving and Lake Bemidji. Both lakes host 

good fishing resources. Lake Bemidji has public access locations around the lake, 

including fishing piers (MnDNR, 2009j). Route Alternative 3 crosses the Turtle River 

Lake and Long Lake east of U.S. Highway 71. Turtle River Lake has special fishing 

regulations, while the fishing environment (i.e. good stock of fish and easy access) of 

Long Lake is in good condition (MnDNR, 2009j). 

Twin Lake has an access point within Route Alternative 1. This lake is located in Cass 

County (Otter Tail Power et al., 2008a). Twin Lake has a public access point operated by 

the United States Forest Service on the south side of the lake, off of County Road 22. 

This lake is used by anglers and includes an experimental regulation for northern pike 

(MnDNR, 2009j). 

Within Cass County, Pike Bay (South Pike Bay Campground), Lower Sucker Lake (off 

Ketchum Road), and White Oak Lake have access points within 0.25 mile of Route 

Alternative 1. Segment Alternative B is located within 1,800 feet of an access point on 

Thirteen Lake. Route Alternatives 2 and 4 are located within 170 feet of an access point 

to Cass Lake. Some of these lakes have special and/or experimental fishing regulations 

that limit some activities of anglers (MnDNR, 2009j). 

Route Alternatives 1, 2, and 4 are located to the south of Ball Club Lake in Itasca County. 

Access points located on this lake are not crossed by the Route Alternatives. Public 

access is located on the west and south sides of the lake (MnDNR, 2009j). Alternative 

Route Segment C is located within 1,800 feet of an access point to the Mississippi River 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

381 

3.13 Recreation and Tourism 

and within 130 feet of a Leech Lake River access point. These occurrences are near the 

border of Itasca and Cass counties. Route Alternative 3 does not appear to intersect with 

any known water access points in these counties. 

 

The portion of the Mississippi River running through the Study Area is considered a 

water trail by the MnDNR. The MnDNR has divided the river into 10 subsections from 

Lake Itasca to the Iowa/Minnesota border. 

All Route Alternatives cross the Mississippi River just south of the city of Bemidji, 

within the subsection known as Lake Itasca to Cass Lake. Route Alternatives 1, 2, and 4

cross the Mississippi River at a second location located west of Ball Club Lake. 

The Big Fork River is located within Itasca County northeast of Dora Lake. This river 

runs to the north of and outside the Study Area for Route Alternative 3. CNF has 

identified the Big Fork River is an Eligible Scenic River within the Wild and Scenic River 

Federal designation system (USDA, 2004), although there has been no formal 

designation as Wild and Scenic River. This river has also been designated by MnDNR 

as a water trail.

Auto Tours 

Cass County Road 10/39, which crosses Route Alternatives 2 and 4 at U.S. Highway 2, is 

designated by the U.S. Forest Service (USFS) as a National Forest Scenic Byway and by 

the State of Minnesota as a scenic byway named the Ladyslipper Scenic Byway 

(Ladyslipper Scenic Byway, 2009). 

MN Highway 46 between Deer River and Northome is designated as the Avenue of the 

Pines Minnesota Scenic Byway. Route Alternative 3 parallels this byway for 

approximately 0.5 mile between Cass County Highway 10 and Cass County Highway 

29. 

Portions of U.S. Highway 2 near the city of Bena and Ball Club Lake are designated as 

the Great River Road, a National Scenic Byway that runs parallel to the Mississippi 

River. All Route Alternatives cross this Scenic Byway. 

3.13.1.2. Developed Recreational Activities 

Developed recreational activities refer to those activities that are limited to a specific 

facility or area. This subsection is divided into local resources and passive recreational 

values. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

382 

3.13 Recreation and Tourism 

Local Resources 

Bemidji Area 

All of the Route Alternatives begin near the city of Bemidji. Within the city, a number of 

facilities are present that offer recreational opportunities for both visitors and residents. 

For example, the Headwaters Science Center is located in downtown Bemidji, north of 

the western terminus of the Study Area (Otter Tail Power et al., 2008a). 

Bemidji High School has tennis courts and soccer fields that are directly adjacent to 

Route Alternative 2 and Segment Alternative I. The tennis courts and soccer fields are 

open to the public when not in use by the school. Also within the city of Bemidji is the 

Roger Lehmann Park, adjacent to the corridor. This park is located to the south of Lake 

Irving (Otter Tail Power et al., 2008a). 

Paul Bunyan Animal Land is also located within Beltrami County. This facility is 

located adjacent to and north of U.S. Highway 2, north of Plantagenet Road. Route 

Alternative 2 is located near the railroad tracks that follow the boundary of this facility. 

In this location, the railroad tracks are located to the south of U.S. Highway 2. Route 

Alternatives 1 and 4 are located slightly to the southwest of this facility, while Route 

Alternative 3 is located to the west. 

North of the city of Bemidji is the Lake Bemidji State Park. Route Alternative 3 travels to 

the east of this location. The Wolf Lake State Wildlife Management Area (WMA) is 

located approximately 0.5 mile to the north of Route Alternative. 

The Maple Ridge Golf Course is located along the county line between Hubbard and 

Beltrami counties, to the west of Alternative 3. The distance between this alternative 

and the golf course is less than 0.5 mile. 

Cass Lake Area 

To the east of the city of Cass Lake, a number of resources are present, including the 

Norway Beach Recreation Area and Interpretative Trail and the Stony Point Resort. The 

Norway Beach Recreation Area and Interpretative Trail are located in Cass County, 

along the southern shore of Cass Lake. The Mi-Ge-Zi Bike Trail lies within this area and 

is managed by the CNF. Stony Point Resort provides recreational opportunities, 

including lodging, camping, and fishing (Stony Point Resort, 2009). Route Alternatives 2 

and 4 are located in proximity to these resources (Otter Tail Power et al., 2008a). 

The Hole-In-Bog Peatland Scientific and Natural Area (SNA) is located approximately 

600 feet south of Route Alternative 1. Route Alternatives 2 and 4, south of the BNSF 

railway and west of MN Highway 371, cross the Sandtrap Golf Course. This facility is 

located just to the west of Pike Bay and south of Cass Lake on Golf Course Road. A 

historic logging camp is located along Cass Lake as well (Otter Tail Power et al., 2008a). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

383 

3.13 Recreation and Tourism 

Deer River Area 

Route Alternative 3 passes to the west of the Blueberry Hills Golf Course, located to the 

north of Deer River along Golf Course Road. The White Oak Casino is located at the 

intersection of U.S. Highway 2 and MN Highway 46, within 1 mile of Route Alternatives 

1, 2, and 4 and their associated Segment Alternatives. Alternative 3 is located to the 

north of this facility. 

Passive Recreational Values 

Recreational opportunities can be defined by which recreational activities people are 

engaging in and where, along with the related facilities and infrastructure that are 

present in the Study Area. The overall visitor experience also is defined by passive uses, 

perceptions, and sentiments associated with the experience of visiting the region in 

which the Project is located. 

The region of Minnesota represented by Beltrami, Cass, Hubbard, and Itasca counties 

provides a sense of place to its visitors and residents. Sense of place can be defined in 

numerous ways. For instance, people may develop emotional bonds to places, which 

are important to them for providing certain kinds of experiences that they value. “Sense 

of place can play an import role in fostering individual identity, influencing quality of 

life, reinforcing cultural traditions, and shaping attitudes toward the land and how it 

should be managed” (USDA, 2004). 

Due to the numerous forests, lakes, and rural character within the Project area, these 

locations have a specific identity and character that take on multiple meanings for 

different individuals. Mental imagery and perception of place, landscape, and 

experience are important in understanding the connections that people feel between the 

places they visit and their experiences. 

For these types of experiences, the number of visitors or the amount of facilities utilized 

are not the most important statistics to note. Instead, the overall visitor experience 

represents the intangible aspects associated with a recreational visit. 

In addition to the above activities, organized recreational events are held annually 

within the Study Area. These activities are understood as passive activities, because 

people have the option of attending the events and participating at varying levels of 

involvement. The dates of typical annual activities held in 2009 are listed in Table 3.13-2 

(Enbridge Energy, 2009). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

384 

3.13 Recreation and Tourism 

Table 3.13-2: Recreational Events Occurring in or Near the Study Area 

Recreational Event 2009 Date Location 

Goose Season Opener March 1 Cass Lake 

17th Annual Memorial Walk/Run May 21 Cass Lake 

Leech Lake Veteran’s Memorial Day Pow-Wow May 22-24 Cass Lake 

Muskie Fishing Opener June 6 Walker 

Chippewa Triathlon National Get Outdoors Day June 13 Cass Lake 

Moondance Jammin Country Fest June 18-120 Leech Lake area 

Leech Lake 4th of July Pow-Wow July 3-5 Cass Lake 

Lake Winnie National Forest Bald Eagle Day July 18 Cass Lake 

Onigum 11th Annual Pow-Wow July 24-26 Onigum 

 2nd Annual Mi Ge Zi Mountain Bike/Tour Aug 15 Bemidji 

Cha Cha Bahning 25th Annual Pow-Wow Aug 21-23 Inger 

Leech Lake Tribal Member Hunting Season Opener Sep 1 Leech Lake Area 

Bear Hunting Season Opener Sep 1 Leech Lake Area 

Leech Lake Labor Day Contest Pow-Wow Sep 4-6 Cass Lake 

41st Annual Muskie Inc. International Tournament Sep 11-13 Cass Lake and Walker 

Battle Point Pow-Wow Sep 11-13 Sugar Point Community Pow-Wow grounds 

Deer Archery Opener and Small Game Opener Sep 19 Cass Lake 

Grouse Season Opener Sep 19 Cass Lake 

27th Annual North Country Marathon and 10K Sep 19 Leech Lake 

Cystic Fibrosis Walleye Classic Oct 3 Cass Lake 

Pheasant Hunting Opener Oct 10 Leech Lake area 

Paul Harman MN Muskie Tournament Oct 10-11 Cass Lake 

Deer Firearm Opener Nov 7 Leech Lake area 

Deer Muzzleloader Season Opener Nov 28 Cass Lake 

Note: 1 Event dates were gathered through the Cass Lake Chamber of Commerce, Leech Lake Tourism Bureau, 

and Chippewa National Forest websites. Additional information was obtained from Appendix U of the Final 

Environmental Impact Statement for Enbridge Energy (Enbridge Energy, 2009). 

3.13.1.3. Leech Lake Reservation 

The Leech Lake Reservation (LLR) contains a variety of recreational resources. There are 

over 250 named lakes located within the LLR. The Mississippi River also passes through 

the Reservation (LLBO, 2009). 

Trails 

Within the LLR, trails often use roads, trails, and access areas for camping, fishing, 

hunting, hiking, and other recreational purposes; and to access areas for traditional and 

cultural practices and uses (USDA, 2004). The majority of trails and recreation areas 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

385 

3.13 Recreation and Tourism 

located in the Study Area within the LLR are in Cass County, along Route Alternatives 

1, 2, and 4 and their associated Segment Alternatives. Trails within the Chippewa 

National Forest also pass through the LLR. Specific information regarding trails located 

solely within the LLR is not available; information about trails and specific recreational 

areas in Cass County and the Chippewa National Forest are discussed further in the 

sections below. 

Hunting and Gathering 

As previously indicated, another opportunity in the area is the harvesting of wild rice. 

Large wild rice beds are protected and actively managed by the MnDNR. Users of this 

resource must purchase a license to harvest wild rice. Some users consider this activity 

to be recreational in nature, while others harvest rice as part of their subsistence and 

ceremonial activities. 

For example, tribal members of the Leech Lake Reservation are able to gather berries, 

boughs, and bark, when they are in season, from any publicly owned lands within the 

boundaries of the Reservation. At times, permits are required (LLDRM, 2009c). 

Additional detailed discussions about hunting and the gathering of wild rice and other 

foods is presented in Sections 3.9, Cultural Resources, and 3.12, Environmental Justice. 

Fishing and Water Recreation 

The Leech Lake Band of Ojibwe Division of Resource Management (LLDRM) operates 

the fisheries program on the LLR to protect and to enhance the fisheries and other 

aquatic resources on the Reservation for current and future generations of tribal 

members. The LLDRM conducts lake surveys, habitat improvement projects, rough fish 

removal, and operates a fish hatchery (CNF, 2005). There are over 50 species of fish 

found on the Reservation including walleye, northern pike, largemouth bass, and 

panfish. Tribal members hold the lake whitefish, a species found in some of the larger 

deeper lakes, in high regard (LLDRM, 2009a). See Sections 3.4, Water Resource, and 3.7, 

Biological Resources, for additional information about water resources and fish species. 

Route Alternative 1 crosses to the south of a water access point for Pike Bay within the 

LLR boundaries. As it travels to the east, it crosses a second water access point at Twin 

Lake and then is located to the south of a third water access point at the southern end of 

the Sucker Lakes. 

Route Alternatives 2 and 4 travel between two water access points within the LLR near 

the city of Cass Lake. These water access points are for Pike Bay and Cass Lake. These 

Route Alternatives also pass to the north of a water access point near Ryan Village and 

to the south of one for Lake Winnibigoshish. In particular, the LLDRM has indicated 

that Route Alternative 2 contains a number of high value water bodies, including the 

Mississippi River, Upper Sucker Lake, and the Pike Bay Bottle Neck Area. Route 

Alternative 2 is located north of the northern boundary of Upper Sucker Lake, while 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

386 

3.13 Recreation and Tourism 

Route Alternative 4 is positioned farther south of Route Alternative 2 in this area and 

crosses the northern portion of Upper Sucker Lake. These areas are highly visited 

tourist attractions, which are located within the Cass Lake area. These areas are 

utilized in conjunction with existing trails for biking and walking (LLDRM, 2010b). 

Route Alternative 4 also contains these high value water bodies within the Leech 

Lake Reservation. 

Route Alternative 3 does not cross through any water access points within the Leech 

Lake Reservation. 

Developed Recreational Activities 

As shown in Table 3.13-2, a variety of recreational events, including pow-wows, hunting 

and fishing events, and athletic events, are held within the LLR throughout the year. 

For example, the Leech Lake Reservation operates several casinos in proximity to the 

Study Area. The Leech Lake Bingo and Palace Casino is located at Cass Lake, north of 

Route Alternatives 2 and 4. The tribe operates two other facilities, one near Walker and 

one near Deer River (the White Oak Casino) (LLBO, 2009). 

There are a number of community facilities located in various communities throughout 

the LLR, as well; facilities include four municipal tribal community centers along with 

11 other tribal centers (Giese, 1997). The smaller communities often utilize their facilities 

for community events and services, such as medical clinics and programs for elders. In 

addition, the tribe operates four educational facilities, including the Bug O Nay Ge Shig 

School, an early childhood center, a tribal college, and a youth facility located in Cass 

Lake (LLBO, 2009). The Bug O Nay Ge Shig School is located to the south of Lake 

Winnibigoshish and to the northeast of Portage Lake near U.S. Highway 2. Route 

Alternatives 2 and 4 are located to the north of this facility, while Route Alternative 1 is 

located to its south. The tribe also operates a service station, convenience store, and gift 

shop, known as the Che-Wa-Ka-E-Gon, which is located on U.S. Highway 2 (LLBO, 

2009). Route Alternatives 2 and 4 are located near this facility. 

3.13.1.4. Chippewa National Forest 

The CNF has developed a Land and Resource Management Plan (CNF, 2004) that 

provides desired resource conditions, resource management practices, levels of resource 

production and management, and the availability of suitable land for resource 

management. Land management direction through the implementation of recreation 

goals, objectives, standards, and guidelines are incorporated into the CNF Land and 

Resource Management Plan. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

387 

3.13 Recreation and Tourism 

Trails 

As shown in Table 3.13-1, the alternatives cross three CNF non-motorized trails and two 

CNF snowmobile/OHV trails. The CNF manages the MiGeZi Bike Trail, which is a 

designated bike trail. Other non-motorized uses are allowed on this trail, as well. The 

MiGeZi Bike Trail connects the Norway Beach Recreation Area to the city of Cass Lake 

(CNF, 2008a). Route Alternatives 1, 2, and 4 cross this trail complex. 

The Pipeline and Winnie Snowmobile Trails also are managed by the CNF. These trails 

also are designated as Cass County GIA trails and are connected to the GIA snowmobile 

trails network. Many of the snowmobile trails are listed under two designations. For 

example, a trail can be identified as a national forest snowmobile trail and GIA (Otter 

Tail Power et al., 2008a). The Pipeline Trail and Winnie Snowmobile Trail are crossed 

by Route Alternative 1. 

The CNF regulates off-highway vehicle use on National Forest System (NFS) lands 

(CNF, 2010). Under authority of the Act of Congress of June 4, 1897, as amended (16 

USC 551), and pursuant to the Secretary of Agriculture’s Regulations set forth at 36 CFR 

261, Subpart B (36 CFR 261.50(a) and (b)), the following acts or omissions are prohibited 

on National Forest System Lands, National Forest System Roads, and Trails within the 

proclaimed boundaries of the CNF in Minnesota: 

1. It is prohibited to possess or use a motor vehicle off National Forest System 

roads; including road ditches, shoulders, and cross country travel. (36 CFR 

261.56). 

2. It is prohibited to use an Off Road Vehicle, (ORV) or highway-legal vehicle on 

National Forest System roads except where and when designated. (36 CFR 

261.54(a)). 

3. It is prohibited to use snowmobiles on any plowed National Forest System road. 

(36 CFR 261.54(a)). 

4. It is prohibited to use a motor vehicle on a National Forest System road or 

segment thereof, which has a physical barrier in place, such as: a sign, gate, post, 

boulder(s) and/or berm(s) to prevent such use. (36 CFR 261.54(b)). 

5. It is prohibited to use a motor vehicle on a National Forest System Trail except 

where designated. (36 CFR 261.55(b)). 

Pursuant to 36 CFR.50 (e), the following persons are exempt from this order: 

1. Any Federal, Tribal, State, or local officer, or member of any organized rescue of 

fire fighting force in the performance of an official duty. 

2. Persons with a permit specifically authorizing the otherwise prohibited act or 

omission. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

388 

3.13 Recreation and Tourism 

Hunting and Gathering 

As shown in this discussion, hunting is allowed on federally-owned forest parcels that 

are crossed by the Route Alternatives and Segment Alternatives (Otter Tail Power et al., 

2008a). All of the Route Alternatives cross portions of the CNF. 

Fishing and Water Recreation 

The Chippewa National Forest includes Leech Lake, Cass Lake, Lake Winnibigoshish, 

Pike Bay, the Sucker Lakes, Portage Lake, the Twin Lakes, and Ball Club Lake. Launch 

services are available on each of these lakes. 

The MnDNR, the LLDRM, and the Chippewa National Forest are partners in managing 

the fishery resources in the CNF. The MnDNR is the lead agency for surveying, 

stocking, removing rough fish, renovating lakes and streams, and improving lake access 

in Minnesota. Management by the LLDRM includes both game and non-game species. 

The LLDRM also conducts lake surveys, habitat improvement projects, rough fish 

removal, and operates a fish hatchery, which is open to the public in early spring (CNF, 

2005). 

Route Alternative 1 crosses to the south of a water access point near Pike Bay and 

through a water access point at Twin Lakes. It also crosses just to the south of the 

Sucker Lakes. These points are contained within the LLR, as well, as previously noted. 

Water access points to Lake Winnibigoshish are located north of Route Alternatives 1, 2, 

and 4. 

Developed Recreational Activities 

The CNF has an office in Cass Lake that is an information stop for recreational users of 

the national forest. The office is located approximately 400 feet north of Route 

Alternatives 2 and 4. 

Passive Recreational Values 

The CNF is important to many people for a variety of opportunities, benefits, and values 

related to cultural, spiritual, and traditional practices. For example, the CNF as a whole 

is important to members of the Leech Lake Band of Ojibwe (LLBO). Certain areas within 

the CNF support specific vegetation, wildlife, and forest settings that are important to 

the LLBO (USDA, 2004). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

389 

3.13 Recreation and Tourism 

3.13.2. Direct/Indirect Effects 

This section provides a discussion about the potential impacts from the Project 

alternatives on recreation and tourism. Potential effects for the Route and Segment 

Alternatives located within the Leech Lake Reservation (LLR) and CNF are consistent 

with the alternatives’ evaluation and, therefore, are not discussed separately for 

recreation and tourism. 

Potential direct impacts to dispersed and developed recreational and tourism resources 

include the following: 

• Loss of scenic resources 

• Loss of natural areas 

• Impacts to water and forest resources used for recreation 

• Impacts to resources used for recreation including, but not limited, dispersed 

and developed resources 

Potential indirect impacts include: 

• visual impacts to the scenic quality and landscape 

• temporary increases in noise levels 

• encouragement of OHV use by opening a new ROW 

This discussion is divided into a general evaluation of all of the Route Alternatives and 

then is followed by specifics related to each individual alternative. The level of 

dispersed and developed recreational activities and how they could be affected by 

construction and operation of the transmission line are used to focus the evaluation of 

potential direct and indirect effects of each alternative. 

Direct effects involve altering or physically changing recreation resources, conflicting 

with recreation area goals, or affecting accessibility to remote or sensitive areas. Direct 

effects could affect dispersed and developed recreational activities and facilities and 

could occur during construction and operation. Indirect effects include visual impacts 

to the scenic quality and natural appearance of the landscape, as viewed from the 

recreational use area by a recreational user. Section 3.1, Aesthetics, describes the 

potential for visual impacts in more detail. These types of effects also can include 

negative impacts to noise that would affect the recreational experience. 

3.13.2.1. No-Build Alternative 

The No-Build Alternative would not impact existing recreational and tourism resources 

directly or indirectly. This alternative would allow existing resources to be utilized in 

the same manner as they are currently being used. This alternative would not impact 

either dispersed or developed recreational activities. As such, no loss of scenic resources 

or natural areas would result. No impacts would be expected to water and forest 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

390 

3.13 Recreation and Tourism 

resources used for recreation, as well as other types of resources used for recreation, 

such as, but not limited to, golf courses, public parks and their associated facilities, and 

school resources. 

3.13.2.2. Route Alternatives and Segment Alternatives 

This section identifies potential direct and indirect effects of the Route Alternatives and 

Segment Alternatives. 

Direct Effects of All Alternatives 

Constructing a transmission line adjacent to an existing linear utility corridor would not 

significantly change the recreational uses of the area, because the corridor was 

previously disturbed and the existing viewshed includes a linear type feature. 

However, this Project would add a vertical feature to the landscape and would change 

the vegetation within the right-of-way (ROW) in some areas from forest land to shrub 

land or grassland. The widened or new ROW would eliminate approximately 432 to 812

acres of forestland, depending upon the alternative selected (Table 3.15-3). 

The Project transmission line generally would span trails such that a direct impact to the 

individual trail would be minimal. Trails, especially those for OHV use, are often 

located within existing ROWs. Creation of new ROW may attract OHV use, although 

the recreation is prohibited on NFS lands under CNF regulations unless new OHV trails 

are designated. An increase in user-created trails may occur due to increased access to 

CNF lands through the ROW. 

All of the alternatives would temporarily impact hunting and gathering resources, 

because the alternatives would limit access and disrupt the current habitat and 

vegetation within the areas in which the transmission line would be located. As shown 

in Section 3.7, Biological Resources, the primary impact to vegetation would be the 

conversion of existing vegetation communities to managed grassland or shrubland 

within the transmission line ROW. Route Alternative 1 would cross the Ten Section 

area, an old growth forest managed by the CNF and within the boundaries of the LLR, 

which has been identified by the LLBO as an area of cultural significance; whereas 

Route Alternative 2 and 4 would cross through the northern portion of the Ten 

Section area along the north side of Pike Bay. Route Alternative 2 would have greater 

impacts to upland shrub and conifer communities relative to Route Alternatives 1, 3, 

and 4. 

Potential impacts to fauna would include the direct or indirect loss or conversion of 

habitats, increased habitat fragmentation, and the potential risk of avian collisions, 

which could reduce the available hunting options. During construction, some mortality 

could occur to less motile or burrowing species, and abandonment of a nest site and the 

loss of eggs and/or young in avian species. Avian collisions with the transmission line, 

specifically waterfowl, may occur following construction of the Project, particularly in 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

391 

3.13 Recreation and Tourism 

areas where the transmission line is between foraging or breeding areas. Clearing 

vegetation underneath the transmission line during construction and operation would 

alter the wildlife habitat within the immediate vicinity, potentially affecting wildlife 

viewing and hunting opportunities. Interior forest dependent wildlife may move to a 

different area of the forest or utilize other existing habitat. Likewise, shrub- or grassland 

dependent species may become more available for viewing within an opened corridor. 

See Sections 3.7, Biological Resources and 3.8, Species of Concern for additional 

information about the potential impacts to wildlife and vegetation. 

Direct impacts to fishing and water recreation would be minimal, because the 

construction and operation of the transmission line would not prevent access to lakes or 

rivers in the long-term. No public water access points, which include public fishing sites 

and boat launches, would be crossed within Beltrami County and Hubbard County by 

any of the Route Alternatives (see Figure 3.13-1). If a public water access point were 

crossed, such as in Cass County and Itasca County, the Project could potentially 

interfere with its use as a boating dock or fishing site by limiting access. 

During construction, some access may be restricted for safety reasons, while the 

transmission lines are being placed. Where possible, the transmission line route would 

follow existing utility and roadway ROWs, thus limiting additional impacts to these 

resources. Once construction was complete, users would be able to access the water 

resources for fishing, boating, and other recreational activities. 

As indicated in Section 3.4, Water Resources, direct impacts to surface water resources 

are unlikely to occur at PWI basins and watercourses. Route and Segment Alternatives 

have been located to avoid surface water features to the extent practicable. In areas 

where surface water features are present, it is anticipated that ROW alignments could be 

directed to avoid surface water or that water bodies could be spanned. Specific impacts 

to surface waters, such as the Mississippi River, are discussed as they pertain to the 

individual Route Alternatives. 

Developed recreation facilities, such as golf courses and parks and their associated 

structures, would not be impacted directly by the construction and operation of the 

transmission lines. 

While passive recreational resources may be impacted directly, it is difficult to 

determine the extent and location of these impacts, as the experience associated with 

these activities is primarily based on the individual. 

Table 3.13.-3 provides a summary of the recreational resources that could be affected 

directly by each alternative. 

Indirect Effects of All Alternatives 

A visual impact, or indirect effect, would result from the inclusion of the poles and 

conductors, cleared ROW, or widened existing ROW within the viewshed of recreational 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

392 

3.13 Recreation and Tourism 

users, and in particular trail users, during construction and operation. Generally, this 

impact would be brief because the conductors would be perpendicular to trails and, 

therefore, observed for only a short time (Otter Tail Power et al., 2008). In some 

locations, the repetition of the poles may increase the visual impact of the Project. As 

such, an inclusion of a man-made vertical feature may affect the overall recreational 

experience. 

Visual impacts also would result in locations where water trails are crossed. As 

previously noted, these areas are used for canoeing and kayaking, as well as passive 

recreational activities. The inclusion of the poles and conductors, cleared ROW, or 

widened existing ROW would impact water trail users during construction and 

operation. These impacts would be felt particularly in the area of the Mississippi 

River and Bowstring River crossings. The visual impacts would be more apparent to 

existing users and residents than occasional viewers or visitors. Areas of particular 

note are the crossing of the Mississippi River at the Power Dam on Beltrami County 

Road 12; crossings at the Popple and Bowstring Rivers south of Dora Lake; and at the 

headwaters streams of the Big Fork River south of Dora Lake (MnDNR, 2010c). Other 

types of water areas that may be impacted include the Upper Sucker Lake and the 

Pike Bay area (LLDRM, 2010b). 

During construction, increased levels of noise and dust may also occur as machinery is 

moved throughout the overall Project area, resulting in an unsatisfactory visitor 

recreational experience. Worker conversations and movement also would contribute to 

this impact, although the noise associated with these activities would dissipate after the 

completion of construction. During operation, noise levels may increase, as compared to 

the existing conditions. 

Impacts to recreation use from dust generation during construction are expected to be 

minor and temporary. A more detailed discussion is included in Section 3.2, Air Quality 

and Climate. 

Another potential indirect impact would be the availability for a new or expanded ROW 

that people may use for all terrain vehicle traffic. The use of the ROW could be a 

negative impact in sensitive areas located along the transmission line, as OHV use could 

result in illegal trespassing, interference with hunting, and increased noise levels. The 

addition of the new ROW would allow for the possibility of creating more connections 

between existing trails, as well as providing new trails for users outside the CNF. As 

previously discussed, existing ROWs are used for the operation of these types of 

vehicles on state and county lands. 

As shown in this analysis, recreational activities are not always active; and therefore, the 

resources within the paths of the alternatives also hold a passive use value. These 

resources are used as means of recreation through observation. For this Project, these 

areas primarily include forested lands contained within the CNF. As previously 

mentioned, the CNF is important to many people for a variety of opportunities, benefits, 

and values related to cultural, spiritual, and traditional practices (USFS, 2004). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

393 

3.13 Recreation and Tourism 

As noted above, passive recreational use includes attendance at outdoor or forest-related 

events and observation of nature. In these instances, people anticipate an uninterrupted 

view of forest cover or other natural setting. They do not anticipate the presence of 

structures associated with the transmission lines. People, therefore, who prefer this type 

of recreation, are impacted indirectly by the addition of new transmission lines because 

their recreational experience is diminished. 

Frequent and returning recreational users to this area would find their recreational 

experience diminished as a result of changed conditions to areas that they previously 

used or became accustomed to. Future users, who have not visited this area previously, 

would not be impacted to the same extent, because their recreational experiences would 

be informed by the conditions at the time of their visits. In another manner, some 

potential visitors have a “Northwoods” notion of lands north of St. Cloud, Minnesota. If 

this area is developed with new and expanded utility corridors, this pre-conceived 

notion of the pristine “Northwoods” would no longer be valid. 
Bemidji – Grand Rapids Transmission Line Sept

Final EIS 

394 

3.13 Recreation and Tourism 

Table 3.13-3: Potential Direct Effects to Recreation for Route and Segment Alternatives 

Route Alternatives Segment Alternatives Resource 1 2 3 4 A B C D E F G H I J K L M N O P 

# of CNF bike trails crossed 5 2 3 2 - 5 0 2 0 1 - - - - - - - 0 0 0 # of snowmobile trail crossings1 4 9 15 9 2 0 0 0 4 0 0 0 0 0 1 1 1 0 0 0 # of state trails crossed2 3 1 1 1 1 0 0 1 0 1 0 0 0 0 0 0 0 1 1 0 # of scenic byways crossed3 1 2 3 1 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 # of Mississippi River crossings 2 2 2 2 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 # of total PWI water crossings 18 13 46 15 3 0 1 0 2 0 0 0 0 0 2 0 0 0 0 0 Temporary Impacts to Bemidji Slough WMA by right-of-way (acres) 

5 None 4.3 5 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 

Long-Term Impacts to Bemidji Slough WMA (square feet within the right-of-way) 

675 None 561 675 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 

Temporary Impacts to Bemidji State Game Refuge (acres within the right-ofway) 

65 124 111 65 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 

Long-Term Impacts to Bemidji State Game Refuge (acres within the right-ofway) 

0.2 0.3 0.3 0.2 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 

Long-Term and temporary impacts 532 487 840 539 - 95 66 2 104 12 - - - - - - - 57 42 6 
Bemidji – Grand Rapids Transmission Line Sept

Final EIS 

395 

3.13 Recreation and Tourism 

Notes: 

1. Reflects the total number of snowmobile trails crossed by the Alternative, regardless of designation. Some tr

two jurisdictions, but are the same trail and are therefore counted as one trail. Some trails are crossed by an 

than one location, thus the number of crossings was counted regardless of name. This number does not inclcrossings, including the Soo Line North, which are listed separately. 

2. State trails may be used for snowmobiling. 3. Includes state- and federally-designated scenic byways. 4. See the Land Use Section for a classification of long-term and temporary impacts. 

to CNF lands ( acres within the right-of-way)4Long-Term and temporary impacts to LLR lands (acres within the right-of-way) 

620 634 4 638 - 152 60 44 106 28 - - - - 29 19 34 57 42 6 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

396 

3.13 Recreation and Tourism 

Route Alternative 1 

Route Alternative 1 would have minimal direct and indirect effects on dispersed 

recreational activities (i.e., trail activities, hunting and gathering, fishing and water 

recreation, and auto tours) and developed resources including local facilities and passive 

recreational activities. 

Route Alternative 1 crosses the following trails: 

• Paul Bunyan State Trail; 

• Heartland State Trail; 

• Soo Line North State Trail; 

• North Country Trail parallels this Route Alternative for the first 2.5 miles; and 

• Cass County Snowmobile Trail parallels U.S. Highway 2 for much of its length 

and could potentially parallel or cross this Route Alternative in several locations. 

Route Alternative 1 crosses local snowmobile trails to the south of Lake Irving near the 

city of Bemidji (Beltrami County, 2006). Route Alternative 1 crosses a snowmobile trail 

near the Beltrami County and Hubbard County line in Helga Township. 

There are over 20,000 miles of designated state snowmobile trails in Minnesota. Over 

300 miles of non-motorized trails available for hiking and biking are located within 

the boundary of the CNF. Route Alternative 1 would cross five CNF trails, three state 

trails, and four snowmobile trails. 

The Segment Alternatives associated with this Route Alternative interact with the 

following trails: 

• Segment Alternative A crosses the North Country Trail, the Paul Bunyan Trail, 

and the Becida Snowmobile Trail; 

• Segment Alternative D crosses the Heartland State Trail; 

• Segment Alternative L crosses the Becida Snowmobile Trail; 

• Segment Alternative N crosses the Soo Line North State Trail; and 

• Segment Alternative O crosses the Soo Line North State Trail. 

Route Alternative 1 crosses the Bemidji Slough WMA and Bemidji State Game Refuge, 

both are areas used for dispersed recreational activities. This Route Alternative would 

cross approximately 1,800 feet of the Bemidji Slough WMA, thereby affecting 

approximately 675 square feet long-term and 5 acres of temporary impacts. The 

alternatives cross approximately 22,500 feet of the Game Refuge, with long-term impacts 

estimated to affect approximately 0.1 to 0.2 acre and 65 acres of temporary impacts. The 

Game Refuge is approximately 47,300 acres in size. Temporary impacts to the Game 

Refuge during construction would represent a temporary disruption to approximately 

0.14 percent of total lands included in the Game Refuge. Long-term loss of land use 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

397 

3.13 Recreation and Tourism 

within the Game Refuge from the Project would represent a loss of approximately 

0.0004 percent of current Game Refuge lands. 

This Route Alternative is not expected to have extensive direct effects to recreational 

opportunities at either the WMA or the Game Refuge, because the amount of land 

expected to be used is minimal in comparison to the overall area of these resources. 

Recreational trails, including snowmobile trails, would not be closed or altered by the 

construction and/or operation of this alternative. Segment Alternative J would connect 

this Route Alternative to Route Alternative 2, avoiding the WMA. 

Route Alternative 1 may also impact the scenic quality of landscapes viewed by travelers 

along U.S. Highway 2, which the USFS has identified as a highly visible corridor. 

Portions of U.S. Highway 2 are also part of the Great River Road Scenic Byway. The 

State of Minnesota has designated 22 roads as scenic byways, which travel a total of 

2,800 miles in the state. Because the Route Alternative would parallel or double-circuit 

with an existing 69 kV transmission line, the change would be incremental as viewers 

are accustomed to viewing a transmission line along the highway and would now be 

viewing taller structures. 

Route Alternative 1 crosses a water access point at the north end of the Twin Lake. The 

permitting agencies could require that construction of the transmission line in this 

location not interfere with the overall use as an access point. However, the access to the 

water may be interrupted during construction because of the movement of equipment 

and the preparation of staging areas. Indirect impacts may be experienced by users 

during the operation of the transmission line, because their views would be disrupted 

by the presence of the new line. 

In addition to this water access point, Route Alternative 1 may introduce another plane 

of wires across the Mississippi River near Ball Club. As discussed in Section 2.2.2.1 there 

are three alternatives for crossing the river at this location: 

• Route Alternative 1 could cross the river and on a separate ROW parallel to the 

existing Great River Energy 69 kV crossing. This would result in two crossings 

to the Mississippi River, essentially adjacent to one another; 

• Route Alternative 1 could be consolidated with Great River Energy’s existing 69 

kV transmission line on a new set of double circuit structures. Under this 

scenario, there would be one set of structures and two planes of wire crossing the 

river; and 

• If this Route Alternative is used in conjunction with Segment Alternative C (see 

above), a new set of structures would replace the existing river crossing and 

Great River Energy’s 69 kV transmission line would be relocated along a new 

ROW to cross the Leech Lake River. 

Viewers along U.S. Highway 2 and on the Mississippi River would experience an 

indirect impact from taller structures, and possibly multiple planes of wires, but there 

would be no direct impact to water access points or the use of the Mississippi. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

398 

3.13 Recreation and Tourism 

With the following exceptions, the Segment Alternatives associated with Route 

Alternative 1 would not change the water crossings for this Route Alternative: 

• Segment Alternative A would cross the Bungashing Creek and Necktie River, 

while avoiding a crossing an unnamed Necktie Tributary; 

• Segment Alternative B would avoid crossing an unnamed tributary at Pike 

bay/Cass Lake; and 

• Segment Alternative C would introduce a new crossing of the Leech Lake River; 

moving the existing 69 kV transmission line from its current Mississippi River 

Crossing near Ball Club. The existing crossing near Ball Club would be 

maintained, the existing 69 kV structures would be replaced with taller 

structures to support the new 230 kV transmission line. 

Additional details are provided in Section 3.4, Water Resources. 

Route Alternative 1 passes just to the north of the Hole-in-the-Bog Peatland SNA. 

Because the alternative does not pass directly through the SNA, no direct impacts would 

likely occur. Indirect impacts may include visual disruptions, because existing 

recreational users would not be accustomed to these views. First-time visitors, however, 

would not be impacted to the same extent because their knowledge would consist only 

of this type of view. 

No major direct or indirect impacts are expected to recreational resources such as golf 

courses, museums, city parks, or campgrounds within the cities of Bemidji, Cass Lake, 

Bena, and Deer River because of the distance from the alternatives and the use of 

existing ROWs. 

Route Alternative 2 

Route Alternative 2 would have minimal direct and indirect effects on dispersed 

recreational activities (i.e., trail activities, hunting and gathering, fishing and water 

recreation, and auto tours) and developed resources including local facilities and passive 

recreational activities. 

Route Alternative 2 crosses the following trails: 

• Heartland State Trail;Soo Line North State Trail; 

• North Country Trail parallels this Route Alternative; 

• Blue Ox Snowmobile Trail; 

• Cass County Snowmobile Trail parallels U.S. Highway 2 for much of its length 

and could potentially parallel or cross this Route Alternative in several locations; 

and 

• Bushwacker Trail. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

399 

3.13 Recreation and Tourism 

Route Alternative 2 crosses local snowmobile trails to the south of Lake Irving near the 

city of Bemidji (Beltrami County, 2006) and a snowmobile trail near Wolf Lake and 

between Farris and Cass Lake. 

There are over 20,000 miles of designated state snowmobile trails in Minnesota. Over 

300 miles of non-motorized trails available for hiking and biking are located within 

the boundary of the CNF. Route Alternative 2 would cross two CNF trails, one state 

trails, and nine snowmobile trails. 

The Segment Alternatives associated with this Route Alternative interact with the 

following trails: 

• Segment Alternative F crosses the Heartland State Trail; 

• Segment Alternative K crosses the Cass County Snowmobile Trail; 

• Segment Alternative N crosses the Soo Line North State Trail; and 

• Segment Alternative O crosses the Soo Line North State Trail. 

Route Alternative 2 passes through the Bemidji State Game Refuge, impacting 

approximately 0.3 acre of land located within the Game Refuge long-term. Temporary 

impacts to the refuge from construction of this Route Alternative are estimated to be 124 

acres. The Game Refuge is approximately 47,300 acres in size. Temporary impacts to 

the Game Refuge during construction would represent a temporary disruption to 

approximately 0.26 percent of total lands included in the Game Refuge. Long-term 

loss of land use within the Game Refuge from the Project would represent a loss of 

approximately 0.0006 percent of current Game Refuge lands. 

While these impacts would not alter the land in a manner that would directly affect the 

way in which the land was used for recreation, visual impacts would occur in this area. 

In this area, Route Alternative 2 follows the route of existing and newly-constructed 

Enbridge pipeline and a railroad. A telecommunications tower also is present near 

Madison Avenue. Therefore, the visual impact would not be reduced because of the 

presence of existing and other proposed infrastructure. 

Route Alternative 2 would also impact the scenic quality of landscapes viewed by 

travelers along U.S. Highway 2, which the USFS has identified as a highly visible 

corridor and is part of the Great River Road Scenic Byway. The State of Minnesota has 

designated 22 roads as scenic byways, which travel a total of 2,800 miles in the state. 

Travelers accustomed to seeing the existing 69 kV transmission line on the south side of 

the highway would also view taller transmission structures on the north side of the 

highway. 

Portions of the Sand Trap Golf Course are within the 1,000-foot Study Area of Route 

Alternative 2 (near Cass Lake). However, there is sufficient room to align the ROW to 

avoid directly impacting the golf course. This resource could be impacted indirectly, 

because the linear visual characteristics of the transmission line would differ from the 

existing conditions. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

400 

3.13 Recreation and Tourism 

In addition, the following resources are located in proximity to Route Alternative 2: 

Roger Lehmann Park, Norway Beach Recreation Area, Norway Beach Interpretive Trail, 

and Stony Point Resort. These resources could be impacted indirectly, because the linear 

visual characteristics of the transmission line would differ from the existing conditions. 

The direct recreational use of these areas would not change. 

Similar to Route Alternative 1, Route Alternative 2 would introduce another plane of 

wires across the Mississippi River near ball Club. This introduction, however, would 

not impact water access points in this location or recreational activities. Therefore, 

Route Alternative 2 would not directly or indirectly affect water access points, with the 

following exception: 

• Segment Alternative C would introduce a new crossing of the Leech Lake River; 

moving the existing 69 kV transmission line from its current Mississippi River 

Crossing near Ball Club. The existing crossing near Ball Club would be 

maintained; and the existing 69 kV structures would be replaced with taller 

structures to support the new 230 kV transmission line. 

 

Route Alternative 3 

Route Alternative 3 would have minimal direct and indirect effects on dispersed 

recreational activities (i.e., trail activities, hunting and gathering, fishing and water 

recreation, and auto tours) and developed resources including local facilities and passive 

recreational activities. 

Route Alternative 3 crosses the following trails: 

• Soo Line North State Trail; 

• North Country Trail parallels this Route Alternative; 

• Blue Ox Snowmobile Trail; 

• West Bowstring Trail; 

• Marcell Trail; and 

• Bushwacker Trail. 

Route Alternative 3 crosses several snowmobile trails within Itasca County, including 

ones near Alvwood, the north end of Nature’s Lake WMA, and to the southwest of Wirt. 

The Route Alternative then crosses another snowmobile trail near Bowstring and then to 

the east of Zemple near its eastern terminus. 

There are over 20,000 miles of designated state snowmobile trails in Minnesota. Over 

300 miles of non-motorized trails available for hiking and biking are located within 

the boundary of the CNF. Route Alternative 3 would cross three CNF trails, one state 

trail, and 15 snowmobile trails. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

401 

3.13 Recreation and Tourism 

Segment Alternative E, the only segment associated with this Route Alternative, crosses 

the West Bowstring Trail and the Marcell Trail. 

Route Alternative 3 and its associated Segment Alternative pass through the Bemidji 

Slough WMA to the south of the city of Bemidji. This Route Alternative would cross 

approximately 1,500 feet of the Bemidji Slough WMA, thereby affecting approximately 

561 square feet long-term and 4.3 acres of temporary impacts (Table 3.13-2). The 

alternatives cross the Game Refuge, with long-term impacts estimated to affect 

approximately 0.3 acres and 111 acres of temporary impacts. The Game Refuge is 

approximately 47,300 acres in size. Temporary impacts to the Game Refuge during 

construction would represent a temporary disruption to approximately 0.23 percent of 

total lands included in the Game Refuge. Long-term loss of land use within the 

Game Refuge from the Project would represent a loss of approximately 0.0006 percent 

of current Game Refuge lands. Indirect impacts to scenic and natural resources would 

likely be minimal, because the footprint of this alternative would change the overall 

appearance of only that portion of the WMA located near the transmission ROW. 

Water resources are not expected to be impacted directly by this Route Alternative. In 

Section 36 of Township 149 Range 25, a water access point is located in MnDNR State 

Forest land, south of Forest Road 2187. The alternative is located to the east of this 

location. Route Alternative 3 and its Segment Alternatives cross the Bowstring River 

south of Dora Lake. A water access point is located approximately 0.5 mile south of the 

crossing. As indicated in Section 3.7, Water Resources, all water crossings would be 

spanned by poles placed from 800 to 1,000 feet apart. Route Alternative 3 would result 

in 19 water basin crossings and 27 water course crossings, which include, but are not 

limited to the Mississippi River, the Schoolcraft River, and Bowstring River. Segment 

Alternative E would cross Grouse Creek at several locations, while avoiding a crossing 

of the Deer River. 

As such, the construction and operation of the transmission line would create a visual 

intrusion within these areas, but would not directly impact the rivers or opportunities to 

utilize these rivers for recreational activities. The rivers would be accessible for boat 

launches and fishing in the locations as currently designated and used for recreational 

access. 

This Route Alternative would pass through only a small portion of the LLR near County 

Roads 11 and 234 in Itasca County. At this location, the alternative then would follow 

U.S. Highway 2. 

Route Alternative 4 

Route Alternative 4 would have minimal direct and indirect effects on dispersed 

recreational activities (i.e., trail activities, hunting and gathering, fishing and water 

recreation, and auto tours) and developed resources including local facilities and 

passive recreational activities. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

402 

3.13 Recreation and Tourism 

Route Alternative 4 crosses the following trails: 

• Paul Bunyan State Trail; 

• North Country Trail; 

• Heartland State Trail; 

• Soo Line North State Trail; and 

• Cass County Snowmobile Trail. 

Route Alternative 4 crosses local snowmobile trails to the south of Lake Irving near 

the city of Bemidji, as it follows the Route Alternative 1 alignment in this location 

(Beltrami County, 2006). Likewise, Route Alternative 4 crosses a snowmobile trail 

near the Beltrami County and Hubbard County line in Helga Township. 

In addition, Route Alternative 4 crosses the Bemidji Slough WMA and the Bemidji 

State Game Refuge. Potential impacts to the resources would be the same as 

described for Route Alternative 1. As shown in Table 3.13-3, Route Alternative 4 

would temporarily affect 5 acres within the Bemidji Slough WMA and 65 acres within 

the Game Refuge. The Game Refuge is approximately 47,300 acres in size. Temporary 

impacts to the Game Refuge during construction would represent a temporary 

disruption to approximately 0.14 percent of total lands included in the Game Refuge. 

Long-term loss of land use within the Game Refuge from the Project would represent 

a loss of approximately 0.0004 percent of current Game Refuge lands. 

Similar to Route Alternatives 1 and 2, Route Alternative 4 may introduce another 

plane of wires across the Mississippi River near Ball Club. Viewers along U.S. 

Highway 2 and on the Mississippi River would experience an indirect impact from 

taller structures, and possibly multiple planes of wires, but there would be no direct 

impact to water access points or the use of the Mississippi River. 

As previously indicated, portions of the Sand Trap Golf Course are within the 1,000-

foot Study Area of Route Alternatives 2 and 4; there is sufficient room to align the 

ROW to avoid directly impacting the golf course. This resource could be impacted 

indirectly, because the linear visual characteristics of the transmission line would 

differ from the existing conditions. 

No major direct or indirect impacts are expected to recreational resources such as golf 

courses, museums, city parks, or campgrounds within the cities of Bemidji, Cass Lake, 

Bena, and Deer River because of the distance from the alternatives and the use of 

existing ROWs. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

403 

3.13 Recreation and Tourism 

3.13.2.3. Leech Lake Reservation 

The types of recreational impacts within the Leech Lake Reservation are generally the 

same as for the overall Study Area. All Route Alternatives would result in long-term 

and temporary impacts to lands within the Leech Lake Reservation, ranging from 4 acres 

for Route Alternative 3 to 638 acres for Route Alternative 4. Route Alternatives 1 and 2 

would affect a similar number of acres within the Leech Lake Reservation. 

Route Alternatives 2 and 4 would cross a number of water bodies deemed high value 

by the LLDRM, including the Mississippi River, Upper Sucker Lake, and the Pike 

Bay Bottle Neck Area. These are areas valued for their scenic qualities and are 

heavily used by tourists. Existing utilities and infrastructure, including but not 

limited to railroad ROW, within these areas is understood as a negative intrusion into 

these types of areas. The addition of the transmission line in conjunction with the 

existing infrastructure may detract from the visual integrity of the areas. 

Furthermore, the expansion of the corridor associated with Route Alternatives 1, 2, or 

4 may impact access to fishing, hunting, and gathering. The areas listed above are 

easily accessible to tribal members. The introduction of the transmission lines may 

interfere with this access during construction and potentially during operation 

depending on pole placement. 

As discussed above, potential impacts include a change in viewshed in recreational 

areas, conversion of cover type in the ROW that could disrupt the current wildlife 

habitat and vegetation, limited access to areas during construction, increased noise 

during construction, and the increased use of OHVs in the new ROW, leading to 

increased noise and unauthorized access that could interfere with recreational use. 

3.13.2.4. Chippewa National Forest 

As with the Leech Lake Reservation, the types of recreational impacts within the CNF 

are generally the same as for the overall Study Area. All Route Alternatives would 

result in long-term and temporary impacts to lands within the CNF. However, Route 

Alternative 3 would require almost double the number of acres for the Project ROW, 

918, than Route Alternatives 1, 2, or 4, which would require between 495 and 552 acres. 

As discussed above, potential impacts include a change in viewshed in recreational 

areas, conversion of cover type in the ROW that could disrupt the current wildlife 

habitat and vegetation, limited access to areas during construction, increased noise 

during construction, and the increased use of OHVs in the new ROW, leading to 

increased noise and unauthorized access that could interfere with recreational use and 

cause resource damage. The CNF has delineated its lands into specific Management 

Areas (MAs), which is further discussed in Section 3.15, Forestry. Certain MAs have 

management objectives specific to providing recreational opportunities, including the 

General Forest MA and Recreation Use in a Scenic Landscape MA. Route Alternatives 1, 

2, 3, and 4 would require ROW within the General Forest MA. Only Route Alternatives 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

404 

3.13 Recreation and Tourism 

2 and 4 would be located within a Recreation Use in a Scenic Landscape MA. Route 

Alternative 2 would affect 26 acres, and Route Alternative 4 would affect 14 acres. The 

MA is set aside as a scenic landscape for recreational activities in natural-appearing 

surroundings. 

 

3.13.3. Mitigation 

A variety of mitigation measures could be implemented to reduce the potential impacts 

to recreation and tourism resources from construction and operation of the Project. 

Mitigation measures that are typically included in permits are noted; cases where 

additional mitigation measures may be incorporated as a permit condition are also 

noted. Additional mitigation measures described in Section 3.1, Aesthetics, would 

mitigate the change in viewshed that could alter the quality of a recreational experience 

in the Study Area. 

Mitigation to minimize the potential direct and indirect impacts to recreational and 

tourism resources would be similar for all Route and Segment Alternatives. Potential 

mitigation measures include the following: 

• Constructing the Project along existing pipeline and transmission ROWs could 

minimize any impacts to existing recreational resources and tourism. The HVTL 

route permit could require the Applicants to co-locate or border existing ROWs 

when possible. Locating the Project ROW adjacent to other existing utility ROWs 

would help to minimize impacts to previously undisturbed lands. Long-term 

disturbance of wildlife habitat also would be minimized by co-locating within 

existing disturbed corridors. Therefore, impacts to hunting and wildlife could be 

lessened as a result of these actions. However, in locations where the corridors 

would be expanded, the additional acreage would be minimal and would not 

greatly change the existing conditions as compared to creating an entirely new 

corridor. 

• Consultation with existing landowners and management agencies regarding 

structure locations, ROW, and other disturbed areas could be used to minimize 

impacts to individual recreational and tourism resources. The HVTL route 

permit could require the Applicants to work with individual landowners about 

pole placement. 

• With landowner and/or agency consent, consideration could also be given to 

constructing various barriers at or near road crossings to limit unauthorized 

OHVs or other vehicle traffic on the Project ROW in sensitive areas outside the 

CNF. Conversely, OHV trails could be developed along the Project ROW to 

allow for additional recreational use in areas where such use is permitted 

outside the CNF. 

• Constructing the Project at water access points during the winter would limit 

the impacts on access during the construction phase of the Project because a 

majority of access points experience greater visitor usage during other seasons of 

the year. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

405 

3.13 Recreation and Tourism 

• Alignment of the Project ROW perpendicular rather than parallel to existing 

trails to the extent practicable would further minimize impacts to recreational 

trail use by limiting areas where the Project was visible. 

• Posting of signs during construction to inform visitors and residents of the 

activities associated with the Project would provide people with advance notice 

of what recreational activities may be affected. In this manner, people could plan 

for other activities or would be made aware of how their activities could be 

impacted by the construction of the transmission line. 

• If necessary, location-specific mitigation and minimization plans could be 

created. These measures could include but are not limited to visual screening, 

established construction work schedules, temporary or long-term trail detours, 

and replacement of vegetation. 

The Applicants have stated that the feasible 125-foot ROW for Route Alternative 4 

could be sited to avoid long-term impacts to the WMA and the Game Refuge. 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

406 

3.14 Agriculture 

3.14. Agriculture 

This section provides a discussion of the agricultural use and production within the 

Study Area, which includes 1,000-foot-wide routes for each Route Alternative and 

Segment Alternative (see Figure 2.2-1). This section also provides a discussion of the 

potential direct and indirect impacts, and proposed mitigation measures to agricultural 

resources and prime farmland in the Study Area. 

Methodology and Sources of Information 

The United States Department of Agriculture (USDA) agricultural census data (2007, 

2002, and 1997) is used to identify agricultural production and value within Beltrami, 

Cass, Hubbard, and Itasca counties. In addition, the Minnesota Department of Natural 

Resources (MnDNR) Gap Analysis Program (GAP) Level 2 land cover data is used to 

identify cropland and prime farmland areas within the three Route Alternatives and 

their associated Segment Alternatives (see Figure 3.10-1). The Natural Resources 

Conservation Service (NRCS) Soil Survey Geographic (SSURGO) database also is used 

to identify prime farmland areas. 

3.14.1. Affected Environment 

The affected environment includes portions of Beltrami, Cass, Hubbard, and Itasca 

counties within northern Minnesota. This discussion provides an overview of the types 

of agriculture and prime farmland within these counties. 

3.14.1.1. Agriculture 

Table 3.14-1 includes a summary of the farmland, cropland, and agricultural production 

for Beltrami, Cass, Hubbard, and Itasca counties based upon the 2007 and 2002 USDA 

census data. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

407 

3.14 Agriculture 

Table 3.14-1: Agricultural Census Data, 2007 and 2002 

County Farm Characteristic Beltrami Cass Hubbard Itasca 

Number of Farms in 2007 (in 2002)1 674 

(746) 

563 

(646) 

468 

(535) 

419 

(494) 

Average Size of Farms in 2007 (acres) (in 2002) 313 

(312) 

300 

(305) 

270 

(262) 

223 

(243) 

Land Acreage in Farmland in 20072 (in 2002) 210,833 

(232,735) 

169,160 

(197,153) 

126,198 

(140,004) 

93,274 

(120,176) 

2002 Percentage of County in Farmland2 14.5% 15.3% 23.7% 7.0% 

2002 Percentage of County in Cropland3 7.8% 7.8% 12.7% 3.4% 

2007 Percentage of Land Acreage in Farms 13.1% 13.1% 21.4% 5.5% 

Total Market Value of Agricultural Products Sold in 

2007 (in 2002) 

$20,972,000 

($17,314,000) 

$25,631,000 

($14,327,000) 

$32,621,000 

($22,958,000) 

$7,419,000 

($6,440,000) 

2007 Market Value of Crops Sold (in 2002) $9,462,000 

($4,592,000) 

$3,704,000 

($3,949,000) 

$27,586,000 

($17,309,000) 

$3,677,000 

($3,394,000) 

2007 Market Value of Livestock and Other Uses 

Sold (in 2002) 

$11,330,000 

($12,722,000) 

$21,926,000 

($10,378,000) 

$5,035,000 

($5,649,000) 

$3,742,000 

($3,046,000) 

Notes: 

1. The census definition of a farm is any place from which $1,000 or more of agricultural products were 

produced and sold, or normally would have been sold, during the census year. 

2. Farmland is defined as cropland, woodland, pasture, livestock, and other uses (i.e., eggs, aquaculture, 

etc). 

3. Cropland is defined as row or small grain crop and hay. 

Sources: USDA, NASS, 2007d and 2002 Census of Agriculture

Although heavily forested as a whole, the Study Area also contains agricultural areas, 

particularly at the western and eastern edges of all of the Route Alternatives. Total 

acreage of farmland in 2007 across the four-country area was 599,465 acres. The 

majority of agricultural land in each of the four counties is located within scattered 

parcels. The primary agricultural uses in the Study Area are pasture, row crops, and 

small grains. Wild rice also is grown commercially within the Study Area. 

Within Beltrami County, cultivated crop and pasturelands are concentrated in areas 

west and south of Lake Bemidji, across the center third of the County, and on the 

western edge of the northernmost part of the County. The Beltrami Soil and Water 

Conservation District (SWCD) provides services to assist private landowners in 

agricultural pursuits. The organization is charged with the protection of Beltrami 

County’s soil and water resources. One of the primary goals of its planning efforts is to 

help control erosion and thus indirectly agricultural production (BSWCD, 2009). 

Erosion can occur as a result of unplanned development that does not adhere to 

standards for preservation of agricultural lands. According to the comprehensive plan 

for Beltrami County, rural areas are especially difficult to maintain with pressure from 

development (Beltrami County, 2009). This trend is noticeable in variable agricultural 

statistics regarding the number and size of farms. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

408 

3.14 Agriculture 

Between 1997 and 2002, the number of farms in Beltrami County increased while the 

average size decreased. By 2007, however, the trend reversed, and the average number 

of farms decreased, while the average size increased. Despite the change in the number 

and size of farms over the 10-year period, of the four counties Beltrami County had the 

greatest market value of livestock, poultry, and similar products valued in 2002 and the 

second greatest valuation in 2007. 

Like Beltrami County, Cass County also established a goal within its comprehensive 

plan to encourage and facilitate growth of agriculture in historically farmed areas (Cass 

County, 2009). Within Cass County, agricultural use is defined as “real or personal 

property used for the production of crops, tillage, husbandry, or farming, including but 

not limited to fruit and vegetable production, tree farming, livestock, poultry, dairy 

products, or poultry products, but not a facility primarily engaged in processing 

agricultural products” (Cass County, 2005a). 

Within Cass County, the average farm size decreased between 1997 and 2002, whereas 

the number of full-time farms increased by 31 farms during that time (Otter Tail Power 

et al., 2008). In 2007, the trend was altered with both the number and size of farms 

decreasing. Despite these losses, Cass County had the greatest market value in livestock 

and other products sold in 2007. 

In Hubbard County, information about agricultural policies was not readily available 

within a comprehensive plan or local ordinance. However, like other counties in the 

Study Area, the Hubbard County Soil and Water Conservation District is available to 

provide technical assistance to local property owners, including farmers, to help reduce 

the waste of soil and water resulting from soil erosion, sedimentation, pollution, and 

improper land use (HSWCD, 2009). 

Based upon similar pressures in northern Minnesota, the number of farms and the total 

acreage in farmland are on the decline within Hubbard County. From 1997 to 2002, the 

average number of farms increased, while the average size decreased (Otter Tail Power 

et al., 2008a). By 2007, this trend was reversed with the average number of farms 

decreasing, and the average size increasing. Hubbard County had the greatest market 

value for crop production of the four counties included in the Study Area. 

Based upon its comprehensive plan, Itasca County created a goal to encourage and to 

facilitate the growth of agriculture. The County recognizes the potential for additional 

areas for agricultural uses. The goal was to be achieved by requiring large minimum lot 

sizes and by creating taxing structures to encourage sustainable agricultural uses. In 

addition, the County encourages the conversion of marginal land to agro-forestry and to 

provide distinctions in the types of land available for farming through soil, slope, and 

native vegetation analyses (Itasca County, 2007). 

Despite these goals, between 1997 and 2002, the number of farms decreased, along with 

the average farm size (Otter Tail Power et al., 2008a). By 2007, both of these statistics 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

409 

3.14 Agriculture 

suggest a further decrease. In addition, Itasca County had the lowest market value of 

crop production and livestock, poultry, and similar products. 

3.14.1.2. Prime Farmland 

Prime farmland is defined by the NRCS as land that has the best combination of physical 

and chemical characteristics for producing food, feed, forage, fiber, and oilseed crops 

and is available for these uses. The NRCS has three levels for prime farmland (i.e., 

prime farmland, prime farmland when drained, and farmland of statewide importance), 

and each county NRCS department is responsible for assigning prime farmland 

designations to each of the soil series found in its county. 

The most important class is prime farmland, which produces high yields of crops. 

Prime farmland when drained includes soils that have the potential to be prime 

farmland, but require drainage or hydrologic alteration to achieve high productivity. 

Farmland of statewide importance includes soils that are nearly prime, but are not as 

productive due to permeability, slope, erosion potential, or some other soil property. 

The designation of prime farmland does not apply to land within the National Forest 

System; thus, there are no prime farmlands within the CNF (CNF, 2004). 

3.14.2. Direct/Indirect Effects 

Impacts to farmlands usually are greatest during the construction phase. During 

construction, utility equipment may damage crops, compact the soil, require grading 

and the temporary relocation of livestock fencing, and temporarily interrupt some 

farming activities (OES, 2009). Long-term operational impacts would include the loss of 

farmland once the structures, wires, and substations are in place. 

This portion of the discussion provides a description and evaluation of the impacts of 

the alternatives on agricultural production. Potential direct impacts include the 

following: 

• Loss of farmland and orchards due to structure placement (a direct impact, 

measured by total acreage) 

• Degradation of farmland (e.g., compaction and disturbance of soil) 

Potential indirect impacts include the following: 

• Interference with agricultural activities 

The discussion of potential direct and indirect impacts includes a description of the 

impacts from the No-Build Alternative, Route Alternatives, Segment Alternatives, the 

Leech Lake Reservation, and the Chippewa National Forest. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

410 

3.14 Agriculture 

3.14.2.1. No-Build Alternative 

The No-Build Alternative would not impact agricultural land directly or indirectly. 

Because no structure construction or expansion of rights-of-way (ROWs) would occur, 

this alternative would not result in the loss of farmland and orchards and would not 

degrade existing farmland. 

3.14.2.2. Route Alternatives and Segment Alternatives 

Table 3.14-2 includes an overall summary of the long-term and temporary loss of 

farmland resulting from the Project build alternatives. All calculations within Table 

3.14-2 were completed using a geographic information systems (GIS) program and GAP 

data (cropland and grassland). Loss of farmland was calculated along a feasible 125-

foot-wide ROW. For this analysis, grassland included hayed land; agricultural land was 

identified as “cultivated agricultural land” per Minn. Stat. § 216B.243, subd. 7(b); and 

prime farmland included soil designated as prime farmland, prime farmland when 

drained, and farmland of statewide importance. 

This analysis assumed that H-frame structures would be used along the entire length of 

each route. Long-term loss of farmland was estimated to be 300 square feet for each 

structure. Temporary loss of farmland was assumed to occur for construction access 

and included a 30-foot-wide area within the ROW (Otter Tail Power et al., 2008). This 

analysis also assumes that all substation improvements or expansions would not result 

in a loss of agricultural land. The acreage associated with the proposed new substation 

in Cass Lake and the substation at Nary Junction is forested land. The area designated 

for expansion of the existing Cass Lake substation is owned by Otter Tail Power 

Company. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

411 

3.14 Agriculture 

Table 3.14-2: Agricultural Production Effects for a Feasible 125-foot-wide Right-of-Way 

Route and 

Segment 

Alternatives 

Associated 

Route 

Alternatives 

Agricultural 

Uses 

% of ROW 

Prime 

Farmland 

% of ROW 

Long-Term 

Impacts to 

Agricultural 

Uses 

(acres) 

Long-Term 

Impacts to 

Prime 

Farmland 

(acres) 

Temporary 

Impacts to 

Agricultural 

and 

Farmland 

Uses 

(acres) 

Route Alternatives

1 21 40 0.7 1.3 52 

2 13 24 0.3 0.7 31 

3 28 67 2.0 3.6 119 

4 19 24 0.6 0.3 47 

Segment Alternatives 

A 1 31 80 <1 <1 18 

B 1 4 51 0 <1 2 

C 1, 2 0 0 0 0 0 

D 1 47 77 <1 <1 9 

E 3 34 75 <1 <1 13 

F 2 13 0 0 0 1 

G 2 49 0 0 0 3 

H 2 27 0 0 0 1 

I 2 49 0 0 0 1 

J 1, 2 77 64 0 0 1 

K 1, 2 27 74 <1 <1 6 

L 1 38 90 0 <1 4 

M 1, 2 10 50 0 <1 1 

N 1, 2 0 85 0 <1 0 

O 1, 2 0 90 0 <1 0 

P 1, 2 <1 100 <1 <1 1 

Q 1, 2 40 71 0 0 <1 

R 3 70 85 <1 <1 5 

S 3 73 100 <1 <1 4 

T 3 45 92 <1 <1 5 

As shown in Table 3.14-2 above, all Route Alternatives would result in long-term and 

temporary loss of agricultural use. Long-term loss of land use would occur as a result of 

structure placement. The estimated long-term loss of agricultural uses range from 

approximately 0.3 to 2.0 acres. Long-term loss of prime farmlands would range from 0.3

to 3.6 acres. Temporary construction impacts for agricultural uses would range from 31 

to 119 acres. The greatest potential loss of land currently used for agricultural purposes 

and for prime farmland would occur for Route Alternative 3 because of its greater 

length and greater percentage of agricultural land uses than Route Alternatives 1, 2, and 

4. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

412 

3.14 Agriculture 

During construction, temporary impacts within the ROWs may occur such as soil 

compaction and crop damages, depending upon the time of construction. Construction 

activities that may disturb surface soils include site clearing, grading, and excavation 

activities at structure locations, pulling and tensioning sites, setup areas, and the 

transport of crews, machinery, materials, and equipment over access routes. This 

analysis assumes that previously disturbed sites would be used for staging and stringing 

set up areas. (General potential land use impacts for the Project are described in more 

detail in Section 3.10, Land Use.) 

For lands currently used for agricultural purposes, land owners may conduct aerial 

spraying for the application of pesticides, fungicides, and fertilizers. Aerial spraying is 

typically conducted by small aircraft with low flying altitudes. If the Project is 

constructed on agricultural land, aerial spraying operations may be limited by the 

placement of transmission line structures. After the Project is constructed, aerial 

sprayers would need to fly parallel to transmission lines and aerial application of 

products directly below the transmission line within the easement may be limited. 

Removal from agricultural use of the small amount of prime farmland, as shown in 

Table 3.14-2, is not expected to negatively affect the general farm community in the 

Study Area. Similar to other agricultural areas, relatively small amounts of prime 

farmland would be temporarily impacted by soil compaction and crop damage. Once 

the construction is complete, landowners would be able to resume farming activities 

around the structures associated with the Project. The presence of the easement would 

not restrict farming operations, although the presence of H-frame pole structures could 

increase the time required to maneuver farm equipment around the structures. Longterm interference with agricultural activities would occur only on the land used for 

structure placement. Because the area of damage would be limited for both temporary 

and long-term impacts, as previously discussed, the overall degradation of farmland is 

not anticipated within the Study Area under any of the Route or Segment Alternatives. 

Stray voltage has been raised as a concern for some dairy farms because it may impact 

operations and milk production. In rural areas, livestock could receive electrical shocks 

from milking equipment affected by stray voltage (WPSC, 2009). Stray voltage is further 

discussed in Section 3.20, Safety and Health. 

Several studies have been conducted on the potential effects of electric and magnetic 

fields (EMF) associated with radio frequencies on animals, including cattle, birds, 

bats, bees, and insects in general. Typically, the levels of EMF associated with radio 

frequencies would be higher than the EMF associated with a 230 kV transmission 

line. Peer review of radio frequency EMF studies on animals and insects concluded 

that the findings were inconsistent and that detrimental causal effects have not been 

shown. As such, the Project is not expected to cause detrimental effects to livestock 

and insects on farmlands or other lands within the Project ROW. The potential 

effects of EMF are further discussed in Section 3.20, Safety and Health. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

413 

3.14 Agriculture 

3.14.2.3. Route Alternative 1 

As shown in Table 3.14-2, approximately 21 percent of the land within the feasible 125-

foot ROW evaluated for Route Alternative 1 is used for agriculture and approximately 

40 percent of the soils within the feasible ROW are classified as prime farmland. 

Route Alternative 1 would results in a long-term loss of approximately 0.7 acre of 

agricultural land and 1.3 acres of prime farmland to the approximately 599,465 acres of 

total farmland in Beltrami, Cass, Hubbard, and Itasca counties. Temporary loss of 

agricultural land use and prime farmland from construction activities are estimated to 

be approximately 52 acres of the approximately 599,465 acres of total farmland in the 

four-county area, less than half of the estimated impacts from Route Alternative 3. 

Long-term impacts would result in a 0.0003 percent long-term loss in farmland in the 

four-county area. Temporary disruptions to farmland would result in a 0.0087 percent 

temporary loss of available farmland in the four-county area. This Route Alternative 

contains a large commercial wild rice farm near Deer River. 

Most of the Segment Alternatives associated with Route Alternative 1 would also result 

in long-term and temporary loss of agricultural land or prime farmland (see Figure 3.10-

1). Long-term, direct impacts from placement of Project structures on farmland would 

result in the loss of farmland for current and future uses; temporary, direct impacts from 

construction equipment and staging would impede the use of farmland for only a shortterm basis. In all cases, long-term loss of farmland from these Segment Alternatives 

would be less than 1 acre. Segment Alternatives A, D, K, L, and M would have longterm impacts to agricultural lands of 0.2 acre or less. Temporary, direct impacts to 

agricultural land from construction would be greater, including: 

• Segment Alternative A - approximately 18 acres; 

• Segment Alternative B - 2 acres; 

• Segment Alternative D - 9 acres; 

• Segment Alternative K - 6 acres; 

• Segment Alternative L - 4 acres; and 

• Segment Alternatives M, P, and Q - 1 acre or less for each. 

3.14.2.4. Route Alternative 2 

Route Alternative 2 has the lowest percentage and total acreage of agricultural use of all 

of the Route Alternatives. Approximately 13 percent of the feasible ROW evaluated for 

Route Alternative 2 is used for agricultural purposes and 24 percent of the ROW is 

considered to be prime farmland. 

Route Alternative 2 would result in a long-term loss of approximately 0.3 acre of 

agricultural land and 0.7 acre of prime farmland to the approximately 599,465 acres of 

total farmland in Beltrami, Cass, Hubbard, and Itasca counties. Temporary loss of 

agricultural land use and prime farmland from construction activities are estimated to 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

414 

3.14 Agriculture 

be approximately 31 acres of the approximately 599,465 acres of total farmland in the 

four-county area. Long-term, direct impacts from placement of Project structures on 

farmland would result in the loss of farmland for current and future uses; temporary, 

direct impacts from construction equipment and staging areas would impede the use of 

farmland only on a short-term basis. Long-term impacts would result in a 0.00017 

percent long-term loss in farmland in the four-county area. Temporary disruptions to 

farmland would result in a 0.0052 percent temporary loss of available farmland in the 

four-county area. 

Most of the Segment Alternatives associated with Route Alternative 2 would result in 

long-term and temporary loss of agricultural land or prime farmland (see Figure 3.10-1). 

In all cases, long-term, direct impacts resulting from placement of Project structures 

within these Segment Alternatives would be less than 1 acre. Segment Alternative F 

would result in a loss of approximately 1 acre of agricultural land and Segment 

Alternative K would have long-term loss of 0.1 acre or less of agricultural lands. 

Temporary, direct impacts to agricultural land from construction would be greater, 

including: 

• Segment Alternative K - approximately 6 acres; 

• Segment Alternatives G and L - less than 5 acres for each; and 

• Segment Alternatives F, M, P, and Q - 1 acre or less for each. 

3.14.2.5. Route Alternative 3 

Route Alternative 3 would have the greatest potential to result in a long-term and 

temporary loss of agricultural land, in terms of total acreage, of the three Route 

Alternatives evaluated. Approximately 28 percent of the feasible ROW evaluated for 

Route Alternative 3 is used for agricultural purposes and 67 percent of the ROW is 

considered to be prime farmland. 

Route Alternative 3 would result in the long-term loss of approximately 2 acres of 

agricultural land and 3.6 acres of prime farmland to the approximately 599,465 acres of 

total farmland in Beltrami, Cass, Hubbard, and Itasca counties. Temporary loss of 

agricultural land use from construction activities is estimated to be approximately 119 

acres of the approximately 599,465 acres of total farmland in the four-county area. 

Long-term, direct impacts from placement of Project structures would result in the loss 

of farmland for current and future uses; temporary, direct impacts from construction 

equipment and staging areas would impede the use of farmland only on a short-term 

basis. Long-term impacts would result in a 0.0009 percent long-term loss in farmland 

in the four-county area. Temporary disruptions to farmland would result in a 0.02 

percent temporary loss of available farmland in the four-county area. 

Segment Alternatives E, R, S, and T, associated with Route Alternative 3, would also 

result in long-term and temporary loss of agricultural land, although long-term loss of 

agricultural land use and prime farmland would be less than 1 acre for all Segment 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

415 

3.14 Agriculture 

Alternatives. Temporary loss of farmland during construction would be 13 acres for 

Segment Alternative E and between 4 and 5 acres for Segment Alternatives R, S, and T. 

3.14.2.6. Route Alternative 4 

As shown in Table 3.14-2, approximately 19 percent of the land within the feasible 

125-foot ROW evaluated for Route Alternative 4 is used for agriculture land and 

approximately 25 percent of the soils within the feasible ROW are classified as prime 

farmland. 

Route Alternative 4 would results in a long-term loss of approximately 0.6 acre of 

agricultural land and 0.3 acres of prime farmland to the approximately 599,465 acres of 

total farmland in Beltrami, Cass, Hubbard, and Itasca counties. Temporary loss of 

agricultural land use and prime farmland from construction activities are estimated to 

be approximately 47 acres of the approximately 599,465 acres of total farmland in the 

four-county area. Long-term, direct impacts from placement of Project structures on 

farmland would result in the loss of farmland for current and future uses; temporary, 

direct impacts from construction equipment and staging areas would impede the use 

of farmland only on a short-term basis. Long-term impacts would result in a 0.00015 

percent long-term loss in farmland in the four-county area. Temporary disruptions to 

farmland would result in a 0.0078 percent temporary loss of available farmland in the 

four-county area. 

Similar to Route Alternative 1, this Route Alternative contains a large commercial 

wild rice farm near Deer River. 

3.14.2.7. Leech Lake Reservation 

The types of potential agricultural impacts to land located within the Leech Lake 

Reservation (LLR) are generally the same as those for the overall Study Area, as shown 

in Table 3.14-3. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

416 

3.14 Agriculture 

Table 3.14-3: Agricultural Production Effects on a 

Feasible 125-foot-wide Right-of-Way within the LLR 

Route and 

Segment 

Alternatives 

Associated 

Route 

Alternatives 

Ag Uses 

% of ROW 

Prime 

Farmland 

% of ROW 

Long-Term 

Impacts to 

Agricultural 

Uses 

(acres) 

Long-Term 

Impacts to 

Prime 

Farmland 

(acres) 

Temporary 

Impacts to 

Agricultural 

Uses 

(acres) 

Route Alternatives

1 8 39 0.2 0.8 13 

2 5 19 0.1 0.4 8 

3 0 0 0 0 0 

4 7 8 0.2 0.2 11 

Segment Alternatives 

A 1 N/A 

B 1 4 51 0 <1 2 

C 1, 2 0 0 0 0 0 

D 1 47 77 <1 <1 9 

E 3 35 78 <1 <1 11 

F 2 13 0 0 0 1 

G 2 N/A 

H 2 N/A 

I 2 N/A 

J 1, 2 N/A 

K 1, 2 22 54 <1 <1 2 

L 1 38 90 0 <1 4 

M 1, 2 10 50 0 <1 1 

N 1, 2 0 85 0 <1 0 

O 1, 2 0 90 0 <1 0 

P 1, 2 <1 100 <1 <1 1 

Q 1, 2 40 71 0 0 <1 

R 3 N/A 

S 3 N/A 

T 3 N/A 

Route Alternative 1 would result in the largest long-term loss of agricultural land use 

and prime farmland within the LLR, approximately 0.2 and 0.8 acre, respectively. 

Temporary, direct effects to agricultural land are estimated to be approximately 13 acres. 

Route Alternative 2 would result in the long-term loss of approximately 0.1 acre of 

agricultural land and 0.4 acre of prime farmland within the LLR. Temporary loss of 

agricultural land is estimated to be approximately 8 acres. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

417 

3.14 Agriculture 

Route Alternative 3 would not pass through agricultural land within the Leech Lake 

Reservation and, as such, no agricultural uses or prime farmland are affected by Route 

Alternative 3. Segment Alternative E crosses into the LLR along MN Highway 6, north 

of Deer River. In this segment in the LLR, Segment Alternative E would result in a longterm loss of less than 1 acre of agricultural land and prime farmland. Temporary loss of 

agricultural land use along Segment Alternative E would be approximately 11 acres. 

Route Alternative 4 would result in the long-term loss of approximately 0.2 acre of 

agricultural land and 0.2 acre of prime farmland within the LLR. Temporary, direct 

effects to agricultural land are estimated to be approximately 11 acres. 

Additional discussion about potential impacts to the LLR, including a description of the 

potential effect of the Project on subsistence activities (e.g., hunting and gathering), is 

provided in Section 3.12, Environmental Justice. 

3.14.2.8. Chippewa National Forest 

The designation of prime farmland does not apply to land within the National Forest 

System; thus, there are no prime farmlands within the CNF (CNF, 2004). 

3.14.3. Mitigation 

A variety of mitigation measures could be implemented to reduce the potential impacts 

to agricultural land use from construction and operation of the Project. Mitigation 

measures that are typically included in permits are noted. Cases where additional 

mitigation measures may be incorporated as a permit condition are also noted. 

The HVTL Route Permit would contain an Agricultural Mitigation Plan. The Applicants 

would be required to work with landowners to minimize impacts to farming operations 

along the final route permitted by the Commission. Impacts could be minimized by 

aligning the Project along existing transmission lines; consolidating transmission 

structures with one set of structures, pipeline, and roadway ROWs to the extent 

practicable; and using single pole structures in some areas. 

Because potential agricultural impacts would already be limited in extent, the degree of 

potential available mitigation is likely small. The easement area between structures 

would be available for crop production. Although the existence of the Project’s H-frame 

structures could increase the time required to maneuver farm equipment around the 

structures, the easements would not restrict farming operations once construction was 

completed. The Applicants would work with landowners to determine a structure 

placement that would minimize impacts to farming. The Applicants have agreed to 

compensate landowners for any crop damage or soil compaction that may occur during 

Project construction (Otter Tail Power et al., 2008a). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

418 

3.14 Agriculture 

The HVTL permit would require the Applicants to restore the ROW, temporary work 

access spaces, access roads, abandoned ROW, and other public and private lands 

affected by the construction of the Project. Compacted soils would be restored to their 

native state through tillage operations, using a subsoiler. In addition, all disturbed areas 

would be re-vegetated once construction was complete. Seed mixes would be specified 

based upon site characteristics and in accordance with regulatory permits. Additional 

mitigation measures for addressing compacted soils are included in Section 3.3, Geology 

and Soils. 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

419 

3.15 Forestry 

3.15. Forestry 

This section describes managed forestry resources in the Study Area, which is defined as 

the 1,000-foot-wide route developed for each Route Alternative and Segment 

Alternative. The major forest resource development areas within the Study Area include 

the Chippewa National Forest (CNF); the Leech Lake Band of Ojibwe (LLBO) 

Reservation in portions of Beltrami, Cass, and Itasca counties; and, to a lesser extent, 

state-owned lands including the Bowstring State Forest in Itasca County and the 

Blackduck/Buena Vista State Forests in Beltrami County. A detailed description about 

vegetative communities, including dominant tree cover, is discussed in Section 3.7, 

Biological Resources. The primary focus of this section is the potential impacts to 

managed forestry resources, forestry activities, and management trends from the 

various alternative routes. 

Methodology and Sources of Information 

Minnesota Department of Natural Resources (MnDNR) Geographical Analysis Program 

(GAP) Level 1 land cover data were used to identify broad forest types within the Study 

Area. CNF’s Fiscal Year 2007 Monitoring and Evaluation Report (USDA, 2008), MnDNR’s 

Chippewa Plains/Pine Moraines and Outwash Plains Subsection Forest Resource Management 

Plan Assessment (MnDNR, 2009b), and CNF’s 2004 Land and Resource Management Plan

(USDA, 2004) were used to identify current forest management trends within the Study 

Area. Information from the unpublished CNF Fiscal Year 2009 Monitoring and Evaluation 

Report was provided by representatives of the CNF. 

3.15.1. Affected Environment 

The Project is located in a part of Minnesota that contains economically important 

forestlands. According to representatives of the CNF (CNF, 2010), the CNF Fiscal Year 

2009 Monitoring and Evaluation Report states that the CNF harvested timber on 3,615 acres 

of land in FY 2009. Of the areas harvested, 49 percent of the stands were thinned, 24 

percent were clearcut, 10 percent were shelterwood/partial cut, and 17 percent were 

uneven-aged harvest treatments. In FY 2009, 25.6 million board feet (MMBF) of timber 

was harvested and 35.4 MMBF of timber was sold. This timber sold at an average bid 

price of $44.42 per thousand board feet and represented approximately $1.6 million in 

harvested timber sales during FY 2009 (CNF, 2010). 

Approximately 1.6 million acres are located within the boundaries of the CNF, of 

which approximately 660,000 acres are National Forest System lands. As part of their 

2004 Land and Resource Management Plan (USDA, 2004), the CNF delineated its lands into 

specific Management Areas with management directions that identified suitability for 

timber production. The alternatives included six different Management Areas. Areas 

classified as General Forest or General Forest-Longer Rotation offer the most 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

420 

3.15 Forestry 

opportunity for timber production. On average about 66 percent of the land classified as 

“Recreation Use in a Scenic Landscape” and 50 percent of “Riparian Emphasis” 

management areas were considered suitable for timber management. “Experimental 

Forest” and “Unique Biological, Aquatic, Geological, or Historical Areas” management 

areas were not considered suitable for timber management. 

The Study Area includes numerous blocks of state-owned forestland, including portions 

of the Bowstring, Blackduck, Battleground, Buena Vista, and Welch Lake state forests. 

According to the MnDNR’s Chippewa Plains/Pine Moraines and Outwash Plains Subsection 

Forest Resource Management Plan Assessment (MnDNR, 2009b), about $1.5 million of 

timber was sold from MnDNR lands within the Chippewa Plains Subsection in the 2004 

fiscal year. The Chippewa Plains Area includes large sections of the Study Area 

counties, as well as smaller parts of Clearwater, Mahnomen, and Koochiching counties. 

The most commonly harvested timber (in order of prevalence) included aspen, jack pine, 

balsam fir, tamarack, and paper birch. The MnDNR identifies approximately 9 percent 

of the state-owned land in the Chippewa Plains Subsections as timberland. 

Private forest lands are also located within Route Alternatives 1, 2, 3, and 4. While data 

are not readily available regarding the management practices of private lands, it is likely 

that some of these areas are also managed for timber production, especially those 

enrolled in the Sustainable Forest Incentive Act (SFIA), which provides annual 

payments to private owners of forested land as an incentive to practice sustainable forest 

management. 

Figure 3.15-1 displays the location of federal and state forestland near the Project; 

general forest cover types are discussed in Section 3.7, Biological Resources. Tables 3.15-

1 and 3.15-2 summarize the approximate acreages of forestland within the 1,000-footwide routes for Route Alternatives 1, 2, 3, and Segment Alternatives A through T. Route 

Alternative 4 contains the least amount of forested acreage, while Route Alternative 3 

contains the greatest amount of forested acreage. 

Deciduous forest is the primary forest type for all Route Alternatives, ranging from 2,446

acres for Route Alternative 2 to 6,003 acres for Route Alternative 3. The second most 

common is conifer forest, ranging from approximately 950 to 1,430 acres for each Route 

Alternative. Mixed forests make up very little of the cover types for any of the Route 

Alternatives or Segment Alternatives. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

421 

3.15 Forestry 

Table 3.15-1: Forest Cover Types within Each Route Alternative (in acres) 

Location Type Route 

Alternative 1 

Route 

Alternative 2 

Route 

Alternative 3 

Route 

Alternative 4 

Conifer Forest 1,238 1,331 1,430 950 

ConiferDeciduous Forest 112 67 167 67 

Deciduous Forest 3,529 2,446 6,003 2,693 

Entire Route 

Total 4,879 3,844 7,600 3,710 

Conifer Forest 1,024 993 0 680 

ConiferDeciduous Forest 98 51 8 51 

Deciduous Forest 2,491 1,841 20 1,717 

Leech Lake 

Reservation 

Total 3,613 2,885 28 2,448 

Conifer Forest 926 799 1,077 514 

ConiferDeciduous Forest 84 42 108 36 

Deciduous Forest 2,142 1,524 3,910 1,551 

Chippewa National 

Forest Managed 

Lands*

Total 3,152 2,365 5,095 2,101 

Notes: *Includes all lands within the administrative boundary of the CNF.
Bemidji – Grand Rapids Transmission Line Sept

Final EIS 

422 

3.15 Forestry 

Table 3.15-2: Forest Cover Types within Each Segment Alternative (in acres) 

Type Segment Alternatives 

A B C D E F G H I J K L M N O P 

Conifer Forest 87 179 113 20 186 50 40 24 <1 0 168 0 59 83 58 15 ConiferDeciduous Forest 

10 26 8 2 19 <1 9 3 0 0 14 0 0 9 0 0 

Deciduous Forest 940 855 336 193 431 42 21 6 8 0 120 151 149 321 254 10 

Entire Route 

Total 1,037 1,060 457 215 636 93 70 33 8 0 302 151 208 413 312 25 

Conifer Forest N/A 179 112 19 181 50 N/A N/A N/A N/A 42 0 59 83 58 15 ConiferDeciduous Forest 

N/A 26 8 2 19 <1 N/A N/A N/A N/A 3 0 0 9 0 0 

Deciduous Forest N/A 855 320 175 370 42 N/A N/A N/A N/A 47 110 149 321 254 10 

LLR 

Total N/A 1,060 440 196 570 93 N/A N/A N/A N/A 92 110 208 413 312 25 

Conifer Forest N/A 59 78 12 161 N48 N/A N/A N/A N/A N/A N/A N/A 83 58 15 ConiferDeciduous Forest 

N/A 5 4 0 19 <1 N/A N/A N/A N/A N/A N/A N/A 9 0 0 

Deciduous Forest N/A 511 222 8 376 36 N/A N/A N/A N/A N/A N/A N/A 321 254 10 

CNF 

Total N/A 575 304 20 556 84 N/A N/A N/A N/A N/A N/A N/A 413 312 25 

Conifer Forest 1 38 32 1 86 N/A N/A N/A N/A N/A 4 N/A N/A N/A N/A N/A ConiferDeciduous Forest 

<1 14 4 0 14 N/A N/A N/A N/A N/A 1 N/A N/A N/A N/A N/A 

Deciduous Forest 10 123 58 16 42 N/A N/A N/A N/A N/A 3 N/A N/A N/A N/A N/A 

State 

Lands 

Total 11 175 94 17 142 N/A N/A N/A N/A N/A 8 N/A N/A N/A N/A N/A 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

423 

3.15 Forestry 

3.15.1.1. Leech Lake Reservation 

The boundaries of the Leech Lake Reservation encompass approximately 680,000 

acres (Indian Affairs Council, 2010; LLBO, 2010). Acreage of forestland in the 1,000-

foot-wide Route and Segment Alternatives within the Leech Lake Reservation vary from 

the acreage comparisons made for the entire length of the Project alternatives. As shown 

in Table 3.15-1, Route Alternative 3 contains the least amount of forested acreage in the 

Leech Lake Reservation (28 acres), while Route Alternative 1 contains the greatest 

amount of forested acreage (3,613 acres) in the LLR. The greatest amount of forest cover 

type for each of the Route Alternatives is deciduous forest, ranging from 20 acres for 

Route Alternative 3 to 2,491 acres for Route Alternative 1. The second most common is 

conifer forest, ranging from 0 acres for Route Alternative 3 to 1,024 acres for Route 

Alternative 1. 

Segment Alternatives B, C, D, E, F, K, L, M, N, O, P, and Q also cross the Leech Lake 

Reservation. For the most part, these Segment Alternatives are forested with cover 

similar to that seen along the Route Alternatives located within the Leech Lake 

Reservation. 

3.15.1.2. Chippewa National Forest 

Acreage of forestland in the 1,000-foot-wide Route and Segment Alternatives within the 

Chippewa National Forest exhibit the same pattern as the entire length of the Route and 

Segment Alternatives, but the acreages are significantly less (as much as 50 percent less 

for most alternatives). As shown in Table 3.15-1, Route Alternative 4 contains the least 

amount of forested acreage (2,101 acres) in the Chippewa National Forest, while Route 

Alternative 3 contains the greatest amount of forested acreage (5,095 acres) in the Forest. 

The greatest amount of forest cover type for each of the Route Alternatives is deciduous 

forest, ranging from 1,551 acres for Route Alternative 4 to 3,910 acres for Route 

Alternative 3. The second most common is conifer forest, ranging from 514 acres for 

Route Alternative 4 to 1,077 acres for Route Alternative 3. 

Segment Alternatives B, C, D, E, F, K, N, O, P, R, S, and T also cross Chippewa National 

Forest managed areas. For the most part, these Segment Alternatives are forested with 

cover similar to that seen along the Route Alternatives located within the Chippewa 

National Forest managed areas. 

3.15.2. Direct/Indirect Effects 

This section addresses potential direct and indirect impacts from the Project and 

alternatives to forest resources and production. Potential direct impacts could include: 

• Loss of forest resources due to long-term structure placement 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

424 

3.15 Forestry 

• Degradation of forest resources; change in forest types and uses due to ROW 

clearing 

• Interference with forestry/logging activities 

Potential indirect impacts could include: 

• Loss or change in wildlife habitat 

• Change in recreational uses 

With the exception of the No-Build Alternative, each Project alternative would convert 

forestlands within rights-of-way (ROWs) to managed shrub and grasslands. The 

majority of the forest impacts within the ROW would occur to deciduous forest 

communities, with lesser impacts occurring to coniferous forest communities, and 

relatively minimal impacts occurring to mixed conifer-deciduous forest communities. 

Table 3.15-3 summarizes the estimated acreage of converted forest lands, to managed 

shrub and grasslands, within a feasible 125-foot-wide ROW for each Route Alternative 

and Segment Alternative. 

The Geographic Analysis Program (GAP) was used to classify the primary forest cover 

types within the Study Area. The Geographic Analysis Program maps land cover types 

from satellite imagery; land-based surveys are used to supplement data as needed. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

425 

3.15 Forestry 

Table 3.15-3: Forest Cover Types within Feasible 125-foot Rights-of-Way (in acres) 

Route and 

Segment 

Alternatives 

Associated 

Route 

Alternatives

Conifer 

Forest 

Conifer 

Deciduous 

Forest 

Deciduous 

Forest 

Total 

Forested 

Area 

Route Alternatives

1 121 7 452 580 

2 157 6 269 432 

3 123 12 677 812 

4 160 13 402 575 

Segment Alternatives

A 1 6 <1 89 95 

B 1 18 5 103 126 

C 1, 2 14 0 46 60 

D 1 2 0 20 22 

E 3 25 1 43 69 

F 2 7 0 5 12 

G 2 2 1 <1 3 

H 2 2 0 1 3 

I 2 0 0 1 1 

J 1, 2 0 0 0 0 

K 1, 2 28 2 18 48 

L 1 0 0 17 17 

M 1, 2 5 0 17 22 

N 1, 2 11 <1 38 49 

O 1, 2 5 0 34 39 

P 1, 2 2 0 1 3 

Q 1, 2 0 0 3 3 

R 3 3 0 2 5 

S 3 1 0 2 2 

T 3 1 0 12 13 

Actual acreage of forest impacts could vary depending upon the width and placement of 

ROW within the wider route. 

3.15.2.1. No-Build Alternative 

The No-Build Alternative would not impact forested land directly or indirectly. Because 

no structure construction or expansion of ROWs would occur, this alternative would not 

result in the loss or conversion of any forested lands. 

3.15.2.2. Route Alternative 1 

Construction of Route Alternative 1 would convert an estimated 580 acres of forested 

area. Impacts would occur primarily to deciduous forest (approximately 78 percent of 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

426 

3.15 Forestry 

total forest conversion). Within these broad forest types, GAP level 4 land cover data 

indicate that aspen/white birch and upland deciduous forest are the most common 

cover types within the alternatives (see Section 3.7, Biological Resources). Red/white 

pine, lowland deciduous, and lowland black spruce are also common forest 

communities. 

Additional impacts to forestlands are likely in the event that new substations are 

required. The potential impact on forest for new substation construction is not included 

in Table 3.15-3. Under Route Alternative 1 a new substation is proposed in the vicinity 

of Cass Lake. Approximately 4 acres of forest would be affected for substation 

construction. 

Segment Alternatives A, B, C, D, J, K, L, M, N, O, P, and Q are potentially associated 

with this Route Alternative. Most of these Segment Alternatives are relatively short 

crossover segments between this Route Alternative and Route Alternative 2. Three 

Segment Alternatives associated with Route Alternative 1 would result in the additional 

conversion of greater than 20 acres of forested land: 

• Segment Alternative A would add approximately 20 additional acres of forest 

conversion; most of this would convert deciduous forested areas. If this Segment 

Alternative is used in combination with Segment Alternative L, then a new 

breaker station is proposed at the existing Nary Junction. Approximately 5 acres 

of forest would be converted for station construction. 

• Segment Alternative B would add approximately 60 acres of additional forest 

conversion; most of this would convert deciduous forested areas. 

• Segment Alternative C would add approximately 60 acres of additional forest 

conversion; most of this would convert deciduous forested areas. 

3.15.2.3. Route Alternative 2 

Construction of Route Alternative 2 would convert an estimated 432 acres of forested 

area, the least of the Route Alternatives evaluated. The total impact acreage by forest 

type for this alternative is shown in Table 3.15-3. Similar to Route Alternative 1, the 

largest percentage of conversion would occur to deciduous forest (approximately 63 

percent). Substation expansion associated with Route Alternative 2 would likely result 

in an additional 4 acres of forest conversion. These impacts are not included in the total 

impacts calculated for Route Alternative 2 in Table 3.15-3. 

Segment Alternatives associated with this Route Alternative are C, F, G, H, I, J, K, M, N, 

O, P, and Q. Most of these Segment Alternatives are relatively short crossover segments 

between this Route Alternative and Route Alternative 2. Only Segment Alternative C 

would result in the conversion of greater than 20 additional forested acres. Segment 

Alternative C would add approximately 60 acres of additional forest conversion in 

deciduous forest. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

427 

3.15 Forestry 

3.15.2.4. Route Alternative 3 

Construction of Route Alternative 3 would convert approximately 812 acres of forested 

area, the most of the Route Alternatives reviewed. The total impact acreage by forest 

type for this alternative is shown in Table 3.15-3. Similar to the other Route Alternatives, 

the majority of forest conversion, approximately 79 percent, would occur to deciduous 

forest. Route Alternative 3 does not include any addition or expansion of substations. 

Segment Alternative E would reduce forest conversion by approximately 20 acres, 

compared with Route Alternative 3. 

3.15.2.5. Route Alternative 4 

Construction of Route Alternative 4 would convert approximately 575 acres of 

forested area. The total impact acreage by forest type for this alternative is shown in 

Table 3.15-3. Similar to the other Route Alternatives, the majority of forest 

conversion, approximately 70 percent, would occur to deciduous forest. 

Route Alternative 4 incorporates Segment Alternatives F and K. Potential impacts 

along these segments are incorporated into the total acres provided for Route 

Alternative 4. 

3.15.2.6. Leech Lake Reservation 

Route Alternative 1 would convert approximately 433 acres of forested area in the LLR 

under the feasible 125-foot ROW used in this analysis. Route Alternative 2 would 

convert approximately 336 of forested area in the LLR. Route Alternative 3 generally 

avoids crossing into the LLR, and would convert only about 1 acre of forested land. 

Alternative 3 would convert about 1 acre of forested area within the LLR. Route 

Alternative 4 would convert approximately 420 acres. Impacts to forest type in the LLR 

would be similar to those discussed for Route Alternatives 1, 2, and 3 above. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

428 

3.15 Forestry 

Table 3.15-4: Forest Cover Types within Feasible 125-foot Rights-of-Way (in acres) within the LLR 

Route and 

Segment 

Alternatives 

Associated 

Route 

Alternatives

Conifer 

Forest 

Conifer 

Deciduous 

Forest 

Deciduous 

Forest 

Total 

Forested 

Area 

Route Alternatives

1 97 7 329 433 

2 131 4 201 336 

3 0 0 1 1 

4 123 11 286 420 

Segment Alternatives 

A 1 N/A 

B 1 18 5 103 126 

C 1, 2 14 0 44 58 

D 1 2 0 19 21 

E 3 24 1 37 62 

F 2 7 0 5 12 

G 2 N/A 

H 2 N/A 

I 2 N/A 

J 1, 2 N/A 

K 1, 2 6 0 0 12 

L 1 0 0 14 14 

M 1, 2 5 0 12 17 

N 1, 2 11 <1 38 49 

O 1, 2 5 0 34 39 

P 1, 2 2 0 1 3 

Q 1, 2 0 0 3 3 

R 3 N/A 

S 3 N/A 

T 3 N/A 

Within these broad forest types, GAP level 4 land cover data indicate that aspen/white 

birch and upland deciduous forest are the most common cover types within the Route 

and Segment Alternatives (see Section 3.7, Biological Resources). Red/white pine, 

lowland deciduous, jack pine, and maple/basswood are also common forest 

communities. 

The Leech Lake Band has identified the Ten Sections Area, as well as neighboring 

Guthrie Till Plain and Cuba Hill as unique forest communities. These unique forest 

communities support rare species as well as areas of cultural importance to the Band. 

Route Alternative 3 avoids these areas. Route Alternative 1 would impact these areas to 

a greater extent than Route Alternatives 2 and 4. 

Segment Alternatives B, C, D, K, L, M, N, O, P, and Q are all located within the Leech 

Lake Reservation. Most of these Segment Alternatives are relatively short crossover 

segments between Route Alternatives 1 and 2. Three Segment Alternatives located 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

429 

3.15 Forestry 

within the LLR would result in the additional conversion of greater than 20 acres of 

forested land: 

• Segment Alternative B would increase total impacts to forested lands by 

approximately 126 acres, most of the forested communities converted would be 

deciduous forest. 

• Segment Alternative C would increase total conversion of forested lands by 

approximately 58 acres, most of the converted communities would be deciduous 

forest. 

• Segment Alternative E would convert about 62 forested acres within the LLR. 

3.15.2.7. Chippewa National Forest 

This section discusses forest types and potential impacts to forest management areas 

within the CNF. 

Forest Types 

GAP data analysis of a feasible 125-foot ROW along Route Alternative 1 indicates that 

about 389 acres of forested area within the CNF would experience long-term conversion 

(Table 3.15-5). Route Alternative 2 would convert approximately 275 acres of forested 

area within the CNF. Route Alternative 3 would convert the greatest acreage of forest 

within the CNF, approximately 581 acres. Route Alternative 4 would convert 

approximately 383 acres of forested area within the CNF.
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

430 

3.15 Forestry 

Table 3.15-5: Forest Cover Types within Feasible 125-foot Rights-of-Way (in acres) within the CNF* 

Route and 

Segment 

Alternatives 

Associated 

Route 

Alternatives 

Conifer 

Forest 

Conifer 

Deciduous 

Forest 

Deciduous 

Forest 

Total 

Forested 

Area 

Route Alternatives

1 91 6 292 389 

2 104 4 167 275 

3 93 8 480 581 

4 104 11 268 383 

Segment Alternatives 

A 1 N/A

B 1 7 1 62 70 

C 1, 2 9 0 30 39 

D 1 <1 0 1 1 

E 3 19 1 40 60 

F 2 7 0 4 11 

G 2 N/A

H 2 N/A

I 2 N/A

J 1,2 N/A

K 1,2 N/A

L 1 N/A

M 1,2 N/A

N 1, 2 11 <1 38 49 

O 1, 2 5 0 34 39 

P 1, 2 2 0 1 3 

Q N/A N/A

R 3 1 0 1 2 

S 3 0 0 <1 <1 

T 3 <1 0 6 6 

 Notes: *Includes all lands within the administrative boundary of the CNF. 

Within these broad forest community types, forest stand information provided by the 

CNF indicates that quaking aspen is the most common species within the ROWs, with 

red pine and maple/basswood forest also being dominant forest communities (see 

Section 3.7, Biological Resources). Lesser areas of jack pine, paper birch, balsam fir, 

bigtooth aspen, tamarack, white pine, white cedar, and black spruce also occur within 

the ROW. 

Segment Alternative B would affect approximately 70 acres of forested land within the 

feasible 125-foot-wide ROW on the CNF; most communities converted would be 

deciduous forest. 

Segment Alternative C would affect approximately 39 acres of forested land within the 

feasible 125-foot-wide ROW on the CNF; most of the converted communities would be 

deciduous forest. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

431 

3.15 Forestry 

CNF Management Areas 

As noted above, the CNF has delineated its lands into specific Management Areas. 

Table 3.15-6 presents a breakdown of ROW impacts by CNF Management Area. A 

discussion about each Management Area is provided below. 

Table 3.15-6: CNF Management Areas within the 125-foot Right-of-Way (in acres) 

CNF Management Route Alternatives Segment Alternatives 

Area 1 2 3 4 B C D E F N O P R S T 

Experimental Forest 

(Pike Bay) 32 0 0 0 0 0 0 0 0 0 0 0 0 0 0 

General Forest 303 384 538 397 5 36 0 0 0 22 29 6 7 <1 9 

General Forest - 

Longer Rotation 105 29 191 43 69 0 0 50 0 33 12 0 0 0 0 

Rec Use - Scenic 

Landscape 0 30 0 14 0 0 0 0 0 0 0 0 0 0 0 

Riparian Emphasis 34 0 190 28 0 0 0 93 0 0 0 0 0 0 0 

Unique 

Biol/Aquatic/Geol/Hist 66 52 0 73 1 5 1 0 12 0 0 0 0 0 0 

Water 1 1 1 1 0 0 0 0 0 0 0 0 0 0 0 

Total 541 496 920 556 75 41 1 143 12 55 41 6 7 <1 9 

General Forest Management Area 

The majority of the CNF impacts fall within the General Forest MA for all alternatives. 

Forest resource management within the General Forest MA emphasizes land and 

resource conditions that provide a wide variety of goods, uses, and services, including 

wood products, other commercial products, scenic quality, developed and dispersed 

recreation opportunities, and habitat for a diversity of terrestrial and aquatic wildlife 

and fish. The numerous roads that are open to public travel provide access to resources 

and roaded recreation opportunities. Non-motorized recreation opportunities are also 

available on the forest (USDA, 2004). 

Route Alternatives 1, 2, 3, and 4 would cross about 303 to 538 acres of General Forest 

MA. All construction activities within the CNF would be conducted and monitored in 

accordance with objectives, standards, and guidelines of the Forest-Wide Management 

Directions for the General Forest MA, as provided in the 2004 Final Forest Plan. In the 

event that construction would fall within one of the other MAs, activities within these 

areas would adhere to MA-specific objectives, standards, and guidelines. Operation of 

the transmission ROW would require active maintenance to discourage re-growth of 

trees. Reforestation would not occur within the ROW. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

432 

3.15 Forestry 

Placement of Project structures within the General Forest MA would result in long-term 

loss of forest in the specific location of structure placement. Conversion of General 

Forest MA in the ROW could result in fragmentation of habitat (as discussed in Sections 

3.7, Biological Resources, and 3.8, Species of Concern) and increased access to the forest 

through ROWs, which could lead to increased recreational activity. Additionally, 

conversion of General Forest MA could interfere with logging activities, if timber 

production is conducted in the MA. 

General Forest – Longer Rotation Management Area 

Compared to the General Forest MA, this area, while still having timber production as a 

key emphasis, would generally have longer rotations and more uneven-aged and partial 

cut harvests. Route Alternatives 1, 2, 3, and 4 would all cross land (about 29 to 191 

acres) managed as General Forest - Longer Rotation. Route Alternatives 1, 2, and 4

would affect the Longer Rotation MA in the southeastern vicinity of Cass Lake on both 

sides of the existing U.S. Highway 2 corridor. Potential effects and forest management 

considerations for the Longer Rotation MAs are similar to those identified for the 

General Forest MAs. 

Pike Bay Experimental Forest Management Area 

Route Alternative 1 would convert approximately 32 acres of the Pike Bay Experimental 

Forest (EF). If Segment Alternative B is used with Route Alternative 1 in this area, the 

Pike Bay Experimental Forest can be avoided. The other Route Alternatives avoid the 

Pike Bar EF. Pike Bay EF is primarily managed for silviculture research and 

experimentation purposes. Much of this experimental forest is dominated by mature 

aspen and paper birch (60 to 80 years old) and mixed hardwood forest (maple, elm, and 

basswood). 

A conversion would result in lost opportunity for silvicultural research on these acres. 

Indirect effects would include changes in vegetation along the edge of the cleared ROW 

as changes in light and microclimate due to clearing occurs. Potential for tree 

blowdown is also increased along edges. These changes in adjacent forest land may 

render these lands also unavailable for research purposes. 

Currently, the Great Lakes Gas Pipeline 75-foot-wide ROW bisects an approximately 2-

mile stretch of the Pike Bay EF. The gas pipeline is located in a study area used to test 

methods for the establishment and control of aspen suckers with prescribed fire. The 

northern boundary of the aspen sucker study area is located 184 feet south of the 

southern boundary of the existing pipeline ROW. Placement of a ROW between the 

existing gas pipeline and aspen sucker study area could affect the study by increasing 

the potential for tree blow-down, sunlight, and microclimate changes associated with 

the required forest clearing for the Project ROW (Palik, 2008). 

 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

433 

3.15 Forestry 

Ten Section Unique Biological, Aquatic, Geological, or Historical Management Area 

(UB) 

Route Alternatives 1, 2, and 4 would affect some part of the Ten Section Area UB. Route 

Alternative 3 would avoid the Ten Section Area. Route Alternative 1 would cross 

through the Ten Section area along the south side of Pike Bay, converting approximately 

31 acres. The use of Segment Alternative B would deviate to the south side of the Ten 

Section Area, reducing direct impacts to 9 acres in the MA. Route Alternatives 2 and 4

would cross through the northern portion Ten Section area along the north side of Pike 

Bay, converting about 27 acres. Route Alternative 3 does not cross the Ten Section MA. 

The Ten Section Area was protected from timber cutting in the early 1900s, and is now 

used primarily for recreation and interpretive purposes. Stand data provided by the 

CNF indicates that small areas of mature red pine dating from the 1800s and early 1900s 

would be converted by the alternatives, with the exception of the use of Segment 

Alternative B, which would not impact the mature red pine forest. Route Alternatives 1 

and 2 would convert an estimated 2.1 and 3.4 acres, respectively, of mature red pine 

within the Ten Section MA. 

Placement of Project structures within the Ten Section UB would result in the loss of old 

growth, specifically mature red pines dating from the 1800s and early 1900s. Conversion 

of these resources within the Ten Section UB would not be in accordance with the Forest 

Plan. The LLBO has identified the Ten Section UB as an area of cultural significance and 

location for subsistence activities. Conversion of the Ten Section UB would result in 

fragmentation of wildlife habitat and changes in vegetation that could affect subsistence 

activities. 

Recreation Use in a Scenic Landscape Management Area 

Recreation Use in a Scenic Landscape Management Area (RU) is suitable for most forest 

management activities, but is generally set aside as a scenic landscape for recreational 

activities in natural-appearing surroundings. Route Alternatives 1 and 3, would not 

affect the RU management area. Route Alternative 2 would convert approximately 26 

acres of a RU MA located along the southeastern shore of Cass Lake. Route Alternative 

4 would convert approximately 14 acres of a RU MA. Because the RU is managed as 

scenic landscape, potential direct and indirect effects of the Project are addressed in 

Section 4.1, Aesthetics and 4.13, Recreation and Tourism. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

434 

3.15 Forestry 

Eligible Scenic River Management Area 

Route Alternative 3 would be located south of the Big Fork River and Eligible Scenic 

River (WSR) Management Area. Route Alternatives 1, 2, and 4 do not cross the Eligible 

Scenic River Management Area. This part of the Big Fork River corridor meets the 

eligibility criteria specified in section 1(b) and 2(b) of the Wild and Scenic Rivers Act. 

This management area applies to land 0.25 mile on each side of the Big Fork River. The 

Boreal Hardwood/Conifer Landscape Ecosystem dominates this MA. Although the 

WSR MA is considered suitable for timber management, forest management activities in 

the river corridor protect the river’s free-flowing condition. 

Conversion of Eligible Scenic River MA could interfere with logging activities, if timber 

production is conducted in the MA. Although Route Alternative 3 would not cross the 

Big Fork River, placement of the Project structures in proximity to the Big Fork River 

across tributaries and headwater streams of the River, could result in a change in 

viewshed for users. Potential effects of the Project on aesthetics are discussed in Section 

3.1, Aesthetics. 

Unique Biological, Aquatic, Geologic, or Historical Areas 

Route Alternatives 1, 2, and 4 would convert part of the Mississippi River MA (UB). 

Route Alternative 3 does not affect this management area. The UB MAs contain 

biological, aquatic, geological, historical, and other special values. The UB areas are 

primarily managed for interpretive purposes, and none of the UB management area is 

considered suitable for timber management. 

Conversion of the Mississippi River UB would result in a loss of land use for interpretive 

purposes. Placement of the Project structures in proximity to the Mississippi River 

would result in a change in viewshed. Potential effects of the Project on aesthetics are 

discussed in Section 3.1, Aesthetics. 

Riparian Emphasis Areas 

Route Alternative 1 would convert about 34 acres of management areas designated as 

Riparian Emphasis Areas (RE). Segment Alternative C would convert an additional 4 

acres of RE. Route Alternative 3 would convert about 190 acres, while Segment 

Alternative E would reduce this to approximately 153 acres. Route Alternative 4 would 

convert approximately 28 acres. Route Alternative 2 would not affect management 

areas designated as RE. Riparian Emphasis Areas are located along major rivers and 

lakes that receive varying levels of public use for recreational purposes. Also included 

are selected large areas of relatively contiguous wetland. Development ranges from 

some of the most heavily used recreational areas of the Forest to some of the more 

remote areas of the Forest. Roughly half of the Riparian Emphasis Areas MA is suitable 

for timber management. The Dry Mesic Pine/Oak and Tamarack Swamp Landscape 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

435 

3.15 Forestry 

ecosystems cover more than half of this MA. 

Conversion of Riparian Emphasis Areas could interfere with logging activities, if timber 

production is conducted in the MA. Placement of the Project structures in proximity to 

major rivers and lakes used for recreational purposes would result in a change in 

viewshed. Potential effects of the Project on aesthetics are discussed in Section 3.1, 

Aesthetics. Conversion of Riparian Emphasis Areas could allow for increased access to 

the MA, which could lead to increased recreational activity. 

Potential Economic Effects of the Alternatives 

Development of any alternative would result in the long-term loss of timber resources 

within the affected areas. The loss of forest resources represents a long-term loss of 

revenues derived from future timber sales for those forest types and MAs that allow 

timber production. The potential value of timber resources in managed forests affected 

by Project construction activities can be estimated from recent timber sales and market 

conditions. 

A representation of estimated revenues from timber harvests within the CNF is 

provided in Table 3.15-7. As shown in the table, the value of harvestable timber is 

calculated in million board-feet (MMBF). To determine the actual value of timber 

resources for each of the alternatives, a final ROW alignment would be required, along 

with a re-calculation of the acreage, stand density, age class, and condition by forest 

type. Future lost revenues would be dependent upon the optimal harvest rotation for 

each forest type, along with an estimate of future prices per MMBF. 

Table 3.15-7: Estimated Revenues from Timber Production in FY 2007 

Species Product 1996-1998 Average Price/MMBF 

Forest Type 2007 

Average 

Price/MMBF

Estimated 

Present 

Value/MMBF

Aspen Pulpwood $58.13 $44.48 

Mixed Hardwood Pulpwood $44.73 $23.93 

Mixed Hardwood Sawtimber $52.22 $37.05 

Balsam Fir Pulpwood $59.85 $54.77 

Spruce Pulpwood $50.50 $43.96 

Spruce Sawtimber $102.69 $70.77 

Pine Pulpwood $66.32 $59.52 

Jack Pine Sawtimber $105.96 $97.97 

Red/White Pine Sawtimber $115.57 $109.62 

In addition, a small fraction of the Payments in Lieu of Taxes funds provided to 

Beltrami, Cass, and Itasca counties would also be lost. In 2007, payments per acre to the 

three counties were $2.01, $2.60, and $2.61, respectively (USDA, 2008). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

436 

3.15 Forestry 

3.15.2.7. State Forests 

Route Alternative 3 crosses the Bowstring State Forest over an approximate distance of 7 

miles as it parallels MN Highway 6. Although Segment Alternative E avoids much of 

the forest, it crosses into the Bowstring State Forest. The Bowstring State Forest is part of 

the Chippewa Plains Subsection, which is administered under the Chippewa 

Plains/Pine Moraines and Outwash Plains Subsection of the 2004 Final Forest Plan

(USDA, 2004). The Bowstring State Forest is managed by the MnDNR. Route 

Alternative 3 traverses wetlands dominated by lowland hardwood forest in the 

Bowstring State Forest. Approximately 106 acres of vegetation would be removed 

during construction. Operation of the transmission ROW would require active 

maintenance to discourage the re-growth of trees. Reforestation would not occur within 

the ROW. 

Route Alternative 3 is also near portions of the Buena Vista State Forest. The Big Fork 

State Forest, is located to the northeast of the Study Area, southwest of the city of 

Bigfork. Potential impacts on state forests are dependent on the final alignment of the 

ROW within the each route. 

Potential impacts from the Project on state forests are similar to those identified for the 

CNF and may include: long-term loss of forest in the location of structure placement; 

conversation of forested land cover; interference with logging activities; increased access 

to forests through ROWs that could result in increased recreational use; and increased 

fragmentation that could result in adverse affects to vegetation or wildlife habitat. 

3.15.3. Mitigation 

A variety of mitigation measures could be implemented to reduce the potential impacts 

to forestry resources from construction and operation of the Project. 

Construction of the Project would result in a conversion of forestland to non-forest use. 

Long-term impacts to forested land could be minimized through permit conditions of 

the HVTL permit through location and width of a final right-of-way to minimize the 

number of trees removed for the Project. 

In addition, the HVTL permit could limit the creation of temporary easements to special 

construction and access needs and additional staging or lay-down areas required 

outside of the authorized ROW. The HVTL permit could require that these areas be 

selected to minimize tree removal. Construction staging areas would be located and 

arranged to preserve trees and vegetation to the maximum practicable extent. The 

preferred locations are previously disturbed areas. Unless otherwise agreed to by the 

landowner, all storage and construction buildings, including concrete footings and slabs, 

and all construction materials and debris would be removed from the site once 

construction was completed. To the extent practicable, staging areas would be restored 

to preconstruction conditions. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

437 

3.15 Forestry 

The HVTL permit could require the Applicants to restore the ROW to a functional 

habitat for vegetation and wildlife following construction. Restoration activities would 

be conducted in accordance with the developed vegetation management plan. 

Seedlings would be planted in temporary work areas. The ROW could be allowed to 

naturally regenerate with local species. Long-term management would promote the 

establishment of forbs and grasses. Shrubs would be allowed to regenerate within the 

ROW as long as they do not interfere with maintenance, access, and the safe operation of 

the Project. 

Timber harvested from the Project could be provided to the local community, 

including members of the LLBO, for use as firewood. Specific dropsite locations for 

wood placement could be identified in conjunction with LLBO. Wood left at 

dropsites should be placed in piles, easily accessible for firewood gatherers. 

Construction activities carried out on CNF lands would be conducted and monitored in 

accordance with objectives, standards, and guidelines of the Forest-Wide Management 

Directions, as provided in the 2004 Final Forest Plan. As a best management practice, the 

standards used to guide construction in the CNF could also be applied for Project 

construction on LLR, state, and private forests, if approved and authorized by forest 

administrators. 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

438 

3.16 Mining 

3.16. Mining 

This section provides a description of mining resources within the Study Area. The 

Study Area consists of the 1,000-foot-wide routes for Route Alternatives 1, 2, 3, and 4

and Segment Alternatives A through T. 

Methodology and Sources of Information 

Information about aggregate mining operations from the Minnesota Department of 

Transportation (MnDOT) and Minnesota Department of Natural Resources (MnDNR), 

Division of Land & Minerals was analyzed to determine the Study Area’s existing 

conditions and potential effects on those conditions. Information from state agencies 

was supplemented with information from the Minnesota 2005 Minerals Yearbook 

published by the U.S. Geological Society. 

3.16.1. Affected Environment 

Large deposits of glacially derived sediments are present within the Study Area (see 

Section 3.3, Geology and Soils, for a more detailed description of the geomorphic and 

physiographic environment). Due to the presence of these materials, mining operations 

are located throughout the vicinity of the Study Area and within the 1,000-foot routes 

identified for all four Route Alternatives and two of the Segment Alternatives. 

Minerals of economic significance found in Minnesota can be divided into two broad 

classes, consisting of metallic minerals and industrial minerals. Metallic minerals 

include both ferrous minerals, which primarily contain iron, and non-ferrous minerals. 

In Minnesota, iron ore and taconite are the most abundant ferrous minerals, although 

the latter occurs only in the Mesabi iron range in northeastern Minnesota. Non-ferrous 

minerals include manganese, copper, nickel, and titanium. Smaller quantities of gold, 

platinum, diamond, zinc, and lead are present, but the locations are not well-known 

(MnDNR, 2009h). There are no metallic mining operations located within the Study 

Area. 

Industrial minerals include aggregate, peat, kaolin clay, dimension stone, and silica 

sand. Among these minerals, aggregate is the most common and is found within all 

counties of Minnesota (MnDNR, 2009h). Construction aggregate production in 

Minnesota includes three general categories of material, which are sand and gravel 

mined from glacial deposits or alluvial deposits; crushed dolomite or limestone mined 

from bedrock in southeastern Minnesota; and crushed rock mined elsewhere from 

diabase, gabbro, gneiss, granite, quartzite, rhyolite, taconite, and trap rock (USGS, 2005). 

Within Minnesota, aggregate operations fall primarily under the jurisdiction of the local 

government (MnDNR, 2009h). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

439 

3.16 Mining 

In 2005, Minnesota’s nonfuel raw mineral production was valued at $2.19 billion. The 

State also was the national leader in iron ore production (USGS, 2005). While the four 

counties included within the Study Area were contributors to this overall valuation, the 

major production was of industrial minerals in these counties. Beltrami, Cass, and 

Hubbard counties are listed as major producing areas of construction sand and gravel. 

Additionally, Itasca County contains crushed stone, construction sand and gravel, and 

iron ore deposits (USGS, 2005). 

According to data produced by MnDOT’s Aggregate Source Information, 26 areas 

containing active and inactive aggregate resources are located within a 1-mile radius of 

the Study Area (Table 3.16-1). For this analysis, aggregate source information, which 

was obtained from MnDOT, was downloaded into a geographic information system 

(GIS) program, and the location of aggregate mining operations was verified with aerial 

photographs. The information provided in Table 3.16-2 includes the location of 

aggregate mining operations and indicates whether they are active or inactive (Otter Tail 

Power et al., 2008a and 2008b). 

Many of the aggregate mining sites are located between Bemidji and Cass Lake. The 

most notable concentration of such mining operations within the Study Area is located 

along the south side of U.S. Highway 2, near the junction of U.S. Highway 2 and County 

Road 45 in Hubbard County. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

440 

3.16 Mining 

Table 3.16-1: Aggregate Resource Locations 

County Township Range Section Status 

Beltrami 

146N 33W 20 Inactive 

146N 33W 27 Active 

146N 33W 29 Inactive 

146N 34W 13 Inactive 

146N 34W 24 Active 

Cass 

144 N 31W 8 Inactive (2 sites) 

144N 31W 17 Active 

144N 29W 2 Inactive (2 sites) 

144N 29W 11 Active 

144N 25W 17 Active 

145N 29W 29 Active 

Hubbard 

145N 33W 1 Active (2 sites) 

145N 32W 7 Active (2 sites) 

145N 32W 8 Active (2 sites); Inactive (1 site) 

145N 32W 9 Active (3 sites); Inactive (1 site) 

145N 32W 11 Active 

Itasca 

56N 26W 33 Active 

55N 26W 1 Active (2 sites) 

55N 26W 3 Active (2 sites) 

145N 25W 2 Inactive 

145N 25W 10 Inactive 

145N 25W 11 Active 

145N 25W 14 Active 

145N 25W 21 Active (2 sites); Inactive (1 site) 

145N 25W 35 Active 

146N 25W 2 Active (2 sites) 

Source: Otter Tail Power et al., 2008a 

Other than the aggregate mining sites, no additional mineral based mining operations 

occur in or near the Study Area (Otter Tail Power et al., 2008a). 

Aggregate resources identified within the 1,000-foot routes for Route Alternatives 1, 2, 3, 

and 4 and Segment Alternatives A and E are listed in Table 3.16-2 and Sections 3.16.1.1 

through 3.16.1.3. With the exception of Segment Alternatives A and E, there are no 

known aggregate resources located within any of the Segment Alternatives. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

441 

3.16 Mining 

Table 3.16-2: Aggregate Resources Located in Route & Segment Alternatives 

Route and 

Segment 

Alternatives 

County Township Range Section Status 

Route Alternatives

Beltrami Bemidji 146 N 33 W 20 Inactive 

Helga 145 N 33 W 1 Active (2 sites) 

1 

Hubbard 

Helga 145 N 33 W 12 

Farden 145N 32W 7 Active 

Farden 145 N 32W 8 

2 Hubbard 

Farden 145 N 32W 9 

Beltrami Bemidji 146 N 33W 20 Inactive 

Grant 146 N 34W 24 

Deer River 146 N 27W 16 

Morse 145 N 25W 2 

Oteneagen 146N 25W 35 

3 

Itasca 

Oteneagen 146N 25W 35 

4 Beltrami Bemidji 146 N 33 W 20 Inactive 

Hubbard Helga 145 N 33 W 1 Active (2 sites) 

Segment Alternatives

A Beltrami Bemidji 146 N 33 W 29 Inactive 

E Itasca Morse 145 N 25W 2 

Oteneagen 146N 25W 35 

Source: Otter Tail Power et al., 2008a; MnDNR, 2009h. 

3.16.1.1. Route Alternative 1 

The 1,000-foot-wide route for Route Alternative 1 contains three gravel pits, as identified 

by the MnDOT analysis (see Figure 3.16-1), at the following locations: 

• Bemidji Township, Township 146 North, Range 33 West, Section 20 

• Helga Township, Township 145 North, Range 33 West, Sections 1 and 12 

Another gravel pit is located just to the east of the Alternative in Grant Valley Township 

(Township 146 North, Range 34 West, Section 24). 

Segment Alternatives associated with this Route Alternative do not cross any gravel pits, 

with the exception of Segment Alternative A, which contains an inactive gravel pit in 

Section 29 of Bemidji Township (Township 146 North, Range 33 West), north of Oak 

Hills Road SE and west of Monroe Avenue SW, within the first mile of this Segment 

Alternative. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

442 

3.16 Mining 

3.16.1.2. Route Alternative 2 

The 1,000-foot-wide route for Route Alternative 2 crosses active aggregate mining 

operations that are located in Sections 7, 8, and 9 of Farden Township (T145, R32) in 

Hubbard County (Otter Tail Power et al., 2008a). Another gravel pit is located just 

outside of the Study Area in Section 11 of the same township. 

Segment Alternatives associated with this Route Alternative do not cross any known 

aggregate resources. 

3.16.1.3. Route Alternative 3 

Route Alternative 3 intersects a peat deposit approximately 12 miles north-northwest of 

Grand Rapids (Hobbs and Goebel, 1982 as cited in Otter Tail Power et al., 2008b). This 

deposit covers approximately 8 miles of the 1,000-foot-wide Route Alternative, but is not 

mined (Otter Tail Power et al., 2008b). 

Route Alternative 3 also crosses three gravel pits, as identified by MnDOT, including the 

following: 

• Bemidji Township, Township 146 North, Range 33 West, Section 20 

• Grant Valley Township, Township 146 North, Range 34 West, Section 24 

• Deer River Township, Township 56 North, Range 27 West, Section 16 

Segment Alternative E contains an additional three gravel pits located adjacent to the 

east of MN Highway 6, as identified by MnDOT, including: 

• Morse Township, Township 145 North, Range 25 West, Section 2 

• Oteneagen Township, Township 146 North, Range 25 West, Section 35 (two sites) 

Three additional gravel pits are located within 1/4 mile of Route Alternative 3. These, 

however, are outside the 1,000-foot-wide route. 

3.16.1.4. Route Alternative 4 

The 1,000-foot-wide route for Route Alternative 4 contains three gravel pits, as 

identified by the MnDOT analysis (see Figure 3.16-1), at the following locations: 

• Bemidji Township, Township 146 North, Range 33 West, Section 20 

• Helga Township, Township 145 North, Range 33 West, Sections 1 and 12, two 

sites 

Another gravel pit is located just to the east of the Alternative in Grant Valley 

Township (Township 146 North, Range 34 West, Section 24). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

443 

3.16 Mining 

3.16.2. Direct/Indirect Effects 

This section provides a discussion of the potential direct impacts from the alternatives 

on mining resources and production, if the 125-foot ROW for the Route or Segment 

Alternatives were to travel through a mining resource. Potential direct impacts include 

the following: 

• Loss of mining resources 

• Interference with mining activities 

There are no anticipated potential indirect effects from the Project on mining resources 

and production; thus, indirect effects are not discussed herein. 

3.16.2.1. No-Build Alternative 

Because no structures would be installed and no existing rights-of-way (ROW) would be 

expanded or new ROW would be created, the No-Build Alternative would not impact 

mining resources or activities directly or indirectly. 

3.16.2.2. Route Alternatives and Segment Alternatives 

The construction of a transmission structure within an aggregate resource, potential 

quarry, or mining area can reduce the development potential of these resources by 

limiting access to the underground mining resource and limiting use of heavy mining 

equipment near transmission lines. Because of this conflict, transmission line routes 

generally avoid aggregate resources and mining areas. Although mining resources are 

located within the 1,000-foot routes for Route Alternatives 1, 2, 3, and 4 and Segment 

Alternatives A and E, none of the 125-foot feasible ROW alignments evaluated for the 

Route Alternatives and Segment Alternatives cross aggregate resources and mining 

areas. Even if a final route were to be located outside of the feasible ROW alignments 

evaluated in proximity to a mining resource, there is sufficient room within the Study 

Area to avoid aggregate resources and mining areas. Detailed ROW planning within the 

routes would provide the opportunity to refine the position of the transmission line and 

avoid existing gravel pit operations and resources. Therefore, no direct impacts to 

mining resources are anticipated to occur due to construction and operation of the 

Project. 

3.16.3. Mitigation 

The primary mitigation strategy to reduce the potential impacts to mining resources 

from construction and operation of the Project is to avoid routing the Project through 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

444 

3.16 Mining 

known mining resources. For all Route Alternatives, the 1,000-foot-wide routes provide 

sufficient width to avoid locating the transmission line ROW in a way that disrupts 

aggregate mining features. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

445 

3.17 Community Services 

3.17. Community Services 

This section provides a discussion of community services within the vicinity of the 

Study Area, including hospitals, emergency medical services, police departments, fire 

departments, and other emergency services. The affected environment, direct and 

indirect effects, and mitigation associated with the Project alternatives are presented. 

Methodology and Sources of Information 

Community Services within the vicinity of the Study Area were identified through a 

review of county and city service information. An evaluation of the potential effects 

on community services was conducted through review of other impacts identified for 

resources within this EIS, including socioeconomics and traffic and transportation. 

3.17.1. Affected Environment 

Community services generally refer to services provided by government entities to its 

citizens. Community services in a broad sense can include emergency services, 

education, parks and recreation facilities, water and sewer service, communication 

networks, and utilities. Community services as discussed in this section include those 

emergency services that are used to benefit public health and safety, including but not 

limited to hospitals, emergency medical services, police departments, sheriffs’ offices, 

and fire departments. Parks and recreation are discussed in Section 3.13, Recreation and 

Tourism, while a discussion of electric, natural gas, and communication networks in the 

vicinity of the Study Area is presented in Section 3.18, Utility Systems. 

Most of the community services available within the vicinity of Route Alternatives 1, 2, 

3, and 4 and Segment Alternatives A through T are located in urban areas, including the 

cities of Bemidji, Bigfork, Blackduck, Cass Lake, and Deer River, and within the counties 

of Beltrami, Cass, Hubbard, and Itasca. Table 3.17-1 provides a summary of community 

services available within the vicinity of Route Alternatives 1, 2, 3, and 4. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

446 

3.17 Community Services 

Table 3.17-1: Community Services Located in Proximity to Route Alternatives 1, 2, 3, and 4 

 Community Service Type Address Route Alternatives in 

Vicinity 

Hospitals 

North Country Regional Hospital 1300 Anne Street NW 

Bemidji, MN 56601 

1, 2, 3, 4

PHS Indian Hospital 3rd Avenue W and 7th Street 

Cass Lake, MN 56633 

1, 2, 4

Deer River Health Care Center 1002 Comstock Drive 

Deer River, MN 56636 

1, 2, 3, 4

Bigfork Valley Hospital 258 Pine Tree Drive 

Bigfork, MN 56628 

3 

Fire Services

Bemidji Fire Department 316 5th Street NW 

Bemidji, MN 56601 

1, 2, 3, 4

Cass Lake Volunteer Fire 

Department 

213 Cedar Avenue NW 

Cass Lake, MN 56633 

1, 2, 4

Deer River Fire Department Highway 6 N 

Deer River, MN 56636 

1, 2, 3, 4

Blackduck/Hines City Fire 

Department 

33 Margaret Avenue NW 

Blackduck, MN 56630 

3 

Bigfork Volunteer Fire Department 101 Highway 38 S 

Bigfork, MN 56628 

3 

Police Departments

Bemidji Police 613 Minnesota Avenue NW 

Bemidji, MN 56601 

1, 2, 3, 4

Leech Lake Tribal Police 6530 Highway 2 NW 

Cass Lake, MN 56633 

1, 2, 4

Deer River Police 208 2nd Street SE 

Deer River, MN 56636 

1, 2, 3, 4

Blackduck Police 8 Summit Avenue 

Blackduck, MN 56630 

3 

Bigfork City Police PO Box 196 

Bigfork, MN 56628 

3 

Sheriffs’ Offices

Beltrami County Sheriff 613 Minnesota Avenue NW 

Bemidji, MN 56601 

1, 2, 3, 4

Hubbard County Sheriff 301 Court Avenue 

Park Rapids, MN 56470 

1, 2, 3, 4

Cass County Sheriff 302 Minnesota Avenue W 

Walker, MN 56484 

1, 2, 4

Itasca County Sheriff 440 NE 1st Avenue 

Grand Rapids, MN 55744 

1, 2, 3, 4

Sources: Otter Tail Power et al., 2008a and Internet search performed on July 1, 2009. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

447 

3.17 Community Services 

Beltrami County/Bemidji/Blackduck 

Public safety in Beltrami County is overseen by the Beltrami County Sheriff’s Office, 

which is located in Bemidji. Calls to 9-1-1 and a non-emergency hotline for the County 

are directed to emergency services dispatchers employed by both the Beltrami County 

Sheriff’s Office and the Bemidji Police Department (Beltrami County Sheriff, 2009). The 

city of Blackduck maintains its own police department. Blackduck also maintains a 

volunteer fire department with 25 firefighters, which is shared with the neighboring city 

of Hines (Blackduck, 2009). The Bemidji Fire Department includes one fire chief, seven 

professional firefighters, six resident firefighters, and 40 volunteer firefighters (Bemidji, 

2009). Medical services are provided by the North Country Regional Hospital in 

Bemidji. The hospital has approximately 120 beds, 10 percent of which are dedicated to 

intensive care (North Country Regional Hospital, 2009). The hospital maintains a 

dedicated emergency room, which is open 24 hours a day, seven days a week. 

Cass County/Cass Lake/Leech Lake Reservation 

Public safety in Cass County is overseen by the Cass County Sheriff’s Office. The 

County is divided into three enforcement/patrol areas, each staffed with one patrol 

sergeant, four full-time deputies, and at least one part-time officer (Cass County Sheriff, 

2009). In August 2008, the former Cass Lake Police Department was disbanded; law 

enforcement in the city is now the jurisdiction of the Cass County Sheriff’s Office. The 

LLBO Department of Public Safety operates within the reservation proclamation 

boundaries. Eight individuals are employed by the LLBO Department of Public Safety 

(LLBO, 2009b). The Leech Lake Tribal Police employs 15 patrol officers and four patrol 

sergeants (LLBO, 2009b). The department assists the Cass County Sheriff’s Office and 

surrounding county safety officers as needed. 

The city of Cass Lake and the LLBO maintain ambulance services. Fire protection for 

the Leech Lake Reservation is provided by surrounding municipalities. The city of Cass 

Lake maintains a volunteer fire department with one full-time employee and 19 

volunteer firefighters. Medical services are provided by the PHS Indian Hospital, 

located within the city of Cass Lake. PHS Indian Hospital maintains 13 inpatient beds 

and one emergency room that is open 24 hours a day, seven days a week (LLBO, 2009). 

Hubbard County 

Public safety in Hubbard County is overseen by the Hubbard County Sheriff’s Office. 

All 9-1-1 calls made in the County are directed to the Sheriff’s Office Communication 

Center. The Sheriff’s Office is responsible for dispatching all emergency response 

services, including police, fire, and ambulance services to the County (Hubbard County 

Sheriff, 2009). Approximately 20 full-time police officers are employed by the Hubbard 

County Sheriff’s Office. The County does not maintain a fire department; municipal fire 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

448 

3.17 Community Services 

departments are contacted by Hubbard County to respond to fire-related emergencies, 

as needed. The North Country Regional Hospital and PHS Indian Hospital are the 

closest hospitals located in proximity to the northeast portion of Hubbard County that 

would be developed with the Project. 

Itasca County/Bigfork/Deer River 

Public Safety in Itasca County is overseen by the Itasca County Sheriff’s Office. The 

Office employs 64 individuals and is divided into five patrol districts (Itasca County 

Sheriff, 2009). The cities of Deer River and Bigfork maintain their own police 

departments and volunteer fire departments. The Deer River Fire Department has 25 

volunteer firefighters. The Bigfork Fire Department has 20 volunteer firefighters. The 

Deer River Police Department employs a total of 10 officers, four of which are full-time. 

At least one officer is on duty 24 hours a day during the summer; two officers are on 

duty 24 hours a day during the school year. The Bigfork Police Department consists of 

two part-time officers. Medical services are provided by the Bigfork Valley Hospital and 

Deer River Health Care Center. The Bigfork Valley Hospital is a 20-bed hospital 

equipped to provide emergency services in two trauma rooms and two emergency 

treatment rooms (Bigfork Valley Hospital, 2009). Two ambulances that serve the 

hospital are maintained by the Bigfork Ambulance Service Association. The Deer River 

Health Care Center is a 20-bed hospital equipped with an emergency room and 

dedicated ambulance service (Deer River Health Care Center, 2009). Emergency 

ambulance and medical services associated with each facility are open 24 hours a day, 

seven days a week. 

3.17.2. Direct/Indirect Effects 

This section discusses potential direct and indirect effects from the Project on 

community services and resources. Potential direct effects include: 

• Interference with community services (i.e., road closures affecting access to 

service) 

• Change in demand for service either to accommodate construction personnel or 

during the operations phase of the Project 

Potential indirect effects include: 

• Increase in traffic and re-routing of roadways during Project construction, 

resulting in increased response times for emergency services 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

449 

3.17 Community Services 

3.17.2.1. No-Build Alternative 

Because no structures would be installed and no existing ROWs would be expanded or 

new ROWs would be created, the No-Build Alternative would not impact community 

resources or activities directly or indirectly. 

3.17.2.2. Route Alternatives 1, 2, 3, and 4 

This section discusses the potential for direct and indirect effects on community services 

from construction and operation of the Project, which are not expected to vary greatly 

based on the placement of the Project along Route Alternatives 1, 2, 3, or 4. Potential 

impacts for Segment Alternatives are the same as those identified for the Route 

Alternatives. As such, potential impacts along specific Segment Alternatives are not 

discussed herein. 

Impacts of Construction on Demand for Community Services 

Construction–related incidents and injuries that require use of community services may 

occur during construction of the Project. Construction workers could be subject to 

typical construction-related injuries, including slips, trips, falls, wounds, and 

electrocution from energized equipment. This could result in temporary increased 

demand for emergency services, including responses from local sheriff, police, and fire 

departments and emergency medical services to respond to potential constructionrelated incidents and injuries. Compliance with NESC and OSHA regulations, as 

required by federal law, would minimize the potential for construction-related injuries. 

Community services available to respond to construction-related incidents and injuries 

are listed in Table 3.17-1. 

As discussed in Section 3.11, Socioeconomics, construction of the Project would require 

approximately 75 employees and additional workers would be required for substation 

modifications (Otter Tail Power et al., 2008a). Job creation related to construction of the 

Project would be temporary and there would be no anticipated related increase in 

population for the Study Area (see Section 3.11, Socioeconomics). Operation of the 

Project would require a smaller number of maintenance personnel, which is not 

expected to increase population in the Study Area. Therefore, there would be no 

anticipated Project-related long-term increase in the demand on emergency services in 

the Study Area beyond the currently available capacities of the facilities. 

The increased length of Route Alternative 3 relative to the other alternatives would be 

expected to result in either a longer construction period or more construction personnel, 

slightly increasing the number of potential construction-related injuries. However, no 

long-term changes on the demand for community services in the Study Area would be 

expected to result. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

450 

3.17 Community Services 

Impacts of Construction and Operation on Community Service Access and Response 

Times 

During construction of the Project, traffic delays caused by construction activities have 

the potential to result in temporary increased response times from emergency service 

providers. According to the Applicants’ Application for a Route Permit, construction 

activities would be staged such that public roads would not be closed for any substantial 

period. 

If emergency services are required at a local residence or business where access is 

disrupted, construction activities would be halted and equipment relocated such that 

emergency vehicles could access the location of the emergency (Otter Tail Power et al., 

2008a). Therefore, emergency services (e.g., ambulance, fire, and police responders) 

would not need to be re-routed to avoid road closures or construction delays and the 

affect on response times would be negligible. 

With the exception of Deer River Health Care Center, no hospitals are located within the 

1,000-foot routes developed for the Route and Segment Alternatives. As such, access to 

these facilities would not be restricted during construction of the Project. Deer River 

Health Care Center is located within the 1,000-foot route for Route Alternative 3, north 

of Deer River. In this location, the feasible 125-foot ROW identified by the Applicants 

would be located to the east of the hospital; the hospital entrance is accessible from the 

west. Access to the hospital would not be restricted under the feasible 125-foot ROW 

location identified by the Applicants; however, restricted access could occur if the ROW 

were located to the west of the hospital. 

When completed, the Project would span all roads such that there would be no direct or 

indirect effects on community service response times. 

3.17.2.3. Leech Lake Reservation 

Potential direct and indirect effects of the Project on community services in the Leech 

Lake Reservation are consistent with those identified above. It is expected that the 

LLBO Department of Public Safety and Leech Lake Tribal Police may respond to 

emergency incidents or injuries and traffic calls resulting from construction activities. In 

addition, emergency medical services, if required in the Leech Lake Reservation, may be 

provided at the PHS Indian Hospital. As described for Route Alternatives 1, 2, 3, and 4, 

no long-term impacts on community services are expected to result. 

3.17.2.4. Chippewa National Forest 

It is not expected that community services available through the U.S. Forest Service in 

the Chippewa National Forest would be utilized during Project construction or 

operation. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

451 

3.17 Community Services 

3.17.3. Mitigation 

Mitigation measures for reducing traffic delays are discussed in Section 3.19, Traffic and 

Transportation. No long-term direct or indirect effects to community services from the 

Project are anticipated; therefore no mitigation is proposed. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

452 

3.18 Utility Systems 

3.18. Utility Systems 

This section identifies utility systems in the Study Area, including communications 

networks, oil and natural gas pipelines, and transmission lines. The Study Area is 

defined as the 1,000-foot-wide route developed for each Route Alternative and Segment 

Alternative. Potential effects of the Project on existing utility systems are discussed, as 

well as potential mitigation measures to reduce disruption or interference in utility 

services from Project construction and operation. 

Generally, existing rights-of-way (ROWs) for transmission line and pipelines would not 

overlap with the Project ROW. In cases where the Project would be double-circuited 

with existing transmission lines or distribution lines, existing ROW could be shared with 

the Project. Where this section identifies existing ROWs in the Study Area that could be 

“followed” or “paralleled” by the Project ROW, it is assumed that the Project ROW 

would not overlap the identified existing ROWs, but would instead be located adjacent 

to the existing ROWs. 

Methodology and Sources of Information 

Communications networks in the Study Area were identified by the Applicants in the 

Application for a Route Permit (Otter Tail Power et al., 2008a) and confirmed through a 

search of current antenna licenses with the Federal Communications Commission (FCC). 

Existing transmission lines in the Study Area, many of which are owned by the 

Applicants, were identified by the Applicants in the Application for a Route Permit. 

Existing oil and gas pipelines were identified by the Applicants and confirmed through 

a review of pipeline maps obtained from pipeline owners and operators as needed. 

3.18.1. Affected Environment 

This section provides an overview of existing communications networks, oil and gas 

pipelines, and electric transmission lines in the Study Area. 

3.18.1.1. Communications Networks 

Communications network technologies present within the Study Area are divided into 

the following general categories: omnidirectional, unidirectional, and landlines. 

Omnidirectional is defined as those antennae that transmit or receive signals in any 

direction at the same time. Telecommunications signals for radio, television, and 

cellular phones are typically omnidirectional. Unidirectional is defined as those 

antennae that transmit or receive signals in a single direction. Microwave signals are 

unidirectional. Omnidirectional antenna towers and unidirectional microwave antenna 

towers are located within the Study Area for the four Project Route Alternatives, as 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

453 

3.18 Utility Systems 

discussed below. Landlines that provide telephone service are located within the Study 

Area. Landlines are installed on existing transmission line and distribution line 

structures. 

Existing registered communications towers located within the Study Area were 

identified in the Application for a Route Permit and in GIS maps of Route Alternatives 

and Segment Alternatives. Information was confirmed through a search of 

communications towers registered with the FCC. Communications towers are primarily 

clustered within or in proximity to urban areas in the Study Area, including the cities of 

Bemidji, Bena, Bigfork, Blackduck, Cass Lake, Cohasset, Deer River, and Tenstrike. A 

total of 55 Antenna Structure Registration (ASR) towers registered with the FCC were 

identified within these cities. Those ASR towers that are located within the Study Area 

are discussed by Route Alternative in Sections 3.18.2.3 through 3.18.2.6. 

3.18.1.2. Existing Oil and Natural Gas Pipelines 

Route Alternative 1 would generally parallel the existing Great Lakes Gas pipeline ROW 

from the Wilton Substation to the east of Deer River for a total of 61.4 miles. The Great 

Lakes Gas pipeline, owned by the Great Lakes Gas Transmission Company, transports 

natural gas under high pressure from the Minnesota-Canada border at Emerson, 

Manitoba to the Michigan-Canada border at St. Clair, Ontario. The pipeline is regulated 

by the Federal Energy Regulatory Commission. Pipeline safety is overseen by the U.S. 

Department of Transportation (Otter Tail Power et al., 2008a). 

Route Alternative 2 would generally parallel the existing U.S. Highway 2 ROW. From 

Cass Lake to the east, this Route Alternative would parallel the ROWs of four existing 

and two permitted Enbridge pipelines from Cass Lake to the Boswell Substation for a 

total of 48.1 miles. The existing Enbridge ROWs vary in width up to 125 feet. The two 

permitted Enbridge pipelines would parallel the existing ROWs. New ROW required by 

Enbridge would be up to 75 feet wide. This would result in a total Enbridge ROW of 200 

feet. 

The Enbridge pipelines are part of a network of Enbridge lines totaling 5,000 miles, 

which transport crude oil from western Canada to eastern Canada and the Great Lakes 

Region. Environmental review and routing of the Enbridge pipeline segments located in 

the Study Area are subject to Commission jurisdiction in accordance with Minnesota 

Statute 216G and implemented by Minnesota Rules, Chapter 7852. Once the pipelines 

are constructed, the Office of Pipeline Safety is responsible for ensuring pipeline safety. 

Route Alternative 3 would not follow oil or gas pipeline ROWs for a significant distance, 

except after exiting the Wilton Substation and prior to terminating at the Boswell 

Substation, for a total of 8.1 miles. 

Route Alternative 4 would generally parallel the existing Great Lakes Gas pipeline 

ROW, the existing U.S. Highway 2 ROW, and the ROWs of four existing and two 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

454 

3.18 Utility Systems 

permitted Enbridge pipelines from Cass Lake to the Boswell Substation. Route 

Alternative 4 would follow or parallel approximately 54 miles of pipeline ROW. 

The Route Alternative generally follows or parallels the existing Great Lakes Gas 

pipeline ROW from the Wilton Substation to the east of Farden and then continues 

along this pipeline ROW west of the Mississippi River to the east of Deer River. In 

addition, from Cass Lake to the east, this Route Alternative would parallel the ROWs 

of four existing and two permitted Enbridge pipelines from Cass Lake to the Boswell 

Substation. The Route Alternative would generally follow 34 miles of existing U.S. 

Highway 2 ROW west of the city of Cass Lake. 

3.18.1.3. Existing Electric Transmission Lines 

Numerous existing 69 kV, 115 kV, and 230 kV transmission lines are located in the Study 

Area. Many of the existing transmission lines are owned by the Applicants. All four 

Route Alternatives would follow existing transmission line for a distance, as shown in 

Table 3.18-1. 

3.18.2. Direct/Indirect Effects 

This section identifies potential direct and indirect effects of the Project on utility 

systems. Potential direct effects include interference with the following: 

• Communication networks 

• Oil and gas pipelines 

• Existing transmission lines 

Potential indirect effects include the following: 

• Damage to existing utility systems during construction 

• Temporary disruptions in service during construction 

Existing utility systems are located within the Study Area for Route Alternatives 1, 2, 3, 

and 4. Thus, potential effects are present for all four Route Alternatives and associated 

Segment Alternatives A through T. 

Table 3.18-1 provides the total miles that Route and Segment Alternatives could follow 

or parallel adjacent to existing pipeline and existing transmission line ROWs. All 

segments of the Route and Segment Alternatives that contain existing transmission lines 

or pipelines were included in the calculations for Table 3.18-1. Generally, existing 

rights-of-way (ROWs) for transmission line and pipelines would not overlap with the 

Project ROW. In cases where the Project would be double-circuited with existing 

transmission lines or distribution lines, existing ROW could be shared with the Project. 

Where this section identifies existing ROWs in the Study Area that could be “followed” 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

455 

3.18 Utility Systems 

or “paralleled” by the Project ROW, it is assumed that the Project ROW would not 

overlap the identified existing ROWs, but would instead be located adjacent to the 

existing ROWs. It is noted that the actual location of ROW required for the Project could 

be located anywhere within the identified wider routes and would not necessarily 

border existing pipeline or transmission line ROWs. 

Table 3.18-1: Length of Alternative that Could Follow Existing 

Transmission Line and Pipeline Rights-of-Way 

Route and 

Segment 

Alternatives 

Total 

Length 

(miles) 

Follows 

Existing 

Transmission

ROW 

(miles) 

Percentage of

Alternative 

that follows 

existing 

transmission 

line ROW 

Follows 

existing 

pipeline 

ROW 

(miles) 

Percentage of

Alternative 

that follows 

existing 

pipeline ROW

Route Alternatives

1 69 18 26 61 89 

2 68 9 14 48 71 

3 116 91 79 8 7 

4 70 21 30 54 77 

Segment Alternatives 

A 15.7 15.7 100 0 0 

B 10.5 0 0 0 0 

C 4.4 0 0 0 0 

D 5.0 0 0 0 0 

E 10.6 0 0 0 0 

F 1.3 0 0 0 0 

G 1.6 1.6 100 1.6 100 

H 1.0 1.0 100 0 0 

I 0.5 0 0 0.5 100 

J 0.4 0 0 0 0 

K 5.9 0 0 0.2 3.0 

L 2.5 2.5 100 0 0 

M 2.4 2.4 100 0 0 

N 3.7 0 0 0 0 

O 2.7 0 0 0 0 

P 0.2 0 0 0 0 

Q 0.3 0 0 0 0 

R 1.8 0 0 0 0 

S 1.0 0 0 0 0 

T 2.02 0 0 0 0 

Potential effects for the Route Alternatives and Segment Alternatives located within the 

Leech Lake Reservation and Chippewa National Forest would be consistent with those 

identified for the entire Study Area and are not discussed separately. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

456 

3.18 Utility Systems 

3.18.2.1. No-Build Alternative 

Under the No-Build Alternative, no changes to existing communications networks 

would occur, no new transmission infrastructure would be constructed, and no impacts 

to existing oil and natural gas pipelines would occur. 

In comments to the Commission on the Applicants’ application for a Certificate of Need, 

the Energy Regulatory and Planning (ERP) division of the OES concluded that the NoBuild Alternative would entail maintaining unreliable service in the local area. 

3.18.2.2. Route Alternatives and Segment Alternatives 

This section identifies direct and indirect effects from the Project on communications 

networks, existing oil and natural gas pipelines, and existing transmission lines. 

Potential effects are discussed by issue area. Although potential effects do not differ 

greatly between Route Alternatives or Segment Alternatives, areas where effects are 

more likely to occur because of the Project’s proximity to certain utility features are 

discussed by Route and Segment Alternative. 

Communications Networks 

Interference could occur to both omnidirectional and unidirectional signals under each 

of the build alternatives, as discussed below. 

Omnidirectional Signals 

Under each of the Route Alternatives or Segment Alternatives, the presence of new 

transmission lines could interfere with omnidirectional signals and, thus, affect 

communication, television, or radio reception in four ways. The Utilities have stated 

that they are not aware of any previous complaints related to radio or television 

interference from existing transmission lines in and around the Study Area, many of 

which are owned by the Applicants. 

The four types of interference are gap discharges, corona discharges, shadowing effects, 

and reflection effects (Otter Tail Power et al., 2008a). Gap discharges are the most 

commonly observed form of electrical interference with omnidirectional signals. Gap 

discharge interference is caused by the creation of spaces (gaps) between mechanically 

connected metal parts and can be the result of broken or poorly fitted parts (e.g., clamps, 

insulators, and brackets). When sparks discharge across a gap, electrical noise may be 

created. Gap discharges can be mechanically repaired. The potential for gap discharges 

is minimized on longer transmission lines with higher voltages because there are fewer 

structures and a greater mechanical load on the hardware present (Otter Tail Power et 

al., 2008a). The extent of electrical interference from gap discharges on a communication 

signal is dependant upon the strength of the communicational signal, quality of the 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

457 

3.18 Utility Systems 

antenna, and distance between the receiver and transmission line (Otter Tail Power et 

al., 2008a). 

Corona discharges are a form of electrical interferences caused when small electronic 

discharges from energized conductor electric fields ionize nearby air. Corona discharges 

are the result of conductor irregularity, which may consist of physical damage, dust 

buildup, or water buildup. The ionization of air results in an energy loss that creates 

audible noise, radio noise, light, heat, and small amounts of ozone. Corona discharges 

can be minimized by the proper selection of conductors. The extent of electrical 

interference from corona discharges on a communication signal is dependent upon the 

strength of the communication signal and the magnitude of the radio frequency noise. 

Typically, the strength of the radio or television broadcast signal within a broadcaster’s 

primary coverage area is strong enough to prevent interference from radio noise. Radio 

noise has the ability to cause interference with all radio reception, although it is noted 

that amplitude-modulated (AM) broadcast bands, 535 to 1,605 kHz and those stations 

broadcasting below 1,000 kHz are mostly affected (OES, 2009). The FCC has stated that 

metal structures constructed within 0.5 mile of an omnidirectional AM antenna could 

result in interference with the AM broadcasting station. Frequency-modulated (FM) 

stations are rarely affected by corona discharges caused from transmission lines because 

radio frequency noise decreases in magnitude with increasing frequency. Similarly, 

interference with cellular phones is rare due to the high frequencies used. Digital 

reception is typically more tolerant of noise. Because television is broadcasted digitally, 

interference with television reception would be minimal. 

 

Shadowing and reflection effects are similar types of interference that are caused by 

large structures in the path of omnidirectional signals. Both shadowing and reflection 

effects are rare, and are typically not associated with transmission lines, but instead with 

large building structures. Shadowing effects can occur when the transmission line 

structure casts a shadow that obstructs or reduces a signal. Reflection effects can occur 

when the transmission line structure causes a reflection or scattering of the signal, 

resulting in the original signal becoming two or more signals. When two or more 

signals are received by the receiver in sequence, a second image can appear on the 

receiver’s screen and displace the other image, which is referred to as ghosting or 

delayed image. The extent of reception interference on a communication signal is 

dependant upon the structure height and surrounding landscape. The Applicants have 

proposed using wood H-frame structures for the majority of structures. The two poles 

in each H-frame structure would be separated by approximately 20 feet. Due to the 

distances between poles, omnidirectional signals are expected to travel through the 

structures with little interference (Otter Tail Power et al., 2008a). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

458 

3.18 Utility Systems 

Unidirectional (Microwave) Signals 

Unidirectional signals emitted and received from microwave antennae are dependent 

upon a line-of-sight between antenna receivers. If transmission line structures are 

located between two microwave signal antennae, interference could occur to the 

unidirectional signals. Typically, existing microwave towers are taller than the 

proposed pole structures. In addition, transmission lines can be constructed to avoid 

line-of-sight interference with existing towers. 

Landlines 

Modern telephone lines and communication circuits are typically well shielded to 

prevent potential interference from transmission lines. When landlines parallel 

transmission lines for long distances, inductive coupling (i.e., coupling between the 

energized source and electrical equipment) can occur. The induced voltage of the 

landline can be avoided by increasing the distance between parallel transmission lines 

and landlines, and electrical shielding of the line. 

Existing Oil and Natural Gas Pipelines 

Generally, the ROW for transmission lines and pipelines do not overlap because of the 

clearance and safety criteria for each utility. The Project ROW and pipeline ROW would 

be separated to avoid damage to the existing utility during construction and 

maintenance. In addition to clearance and safety considerations, there are a number of 

pipeline expansion proposals that limit the potential to overlap the Project ROW with 

existing pipeline ROWs. 

When a high-voltage AC transmission line is located adjacent to a pipeline’s ROW, the 

pipeline may be subjected to electrical interference from electric and magnetic induction, 

conductive interference, and capacitive effects. Electric and magnetic induction is the 

primary effect of the high-voltage AC transmission line on a buried pipeline during 

normal (steady state) operation. This form of interference is due to the magnetic field 

produced by the AC current flowing in the conductors of the transmission line coupling 

with the metallic pipeline, inducing a voltage and associated current on the pipeline. 

Conductive interference is a concern when a transmission line fault occurs in proximity 

to the pipeline because it can cause AC currents to enter the pipeline at coating holidays 

(i.e., flaws in the coating) and produce a voltage gradient across the pipeline coating. 

Electric and magnetic effects are also a concern during a fault because the phase current 

in at least one phase (conductor) of the high-voltage AC transmission line is elevated. 

Capacitive effects are typically only a concern during pipeline construction when long 

sections of the pipeline are above ground. To prevent contact shock hazards, proper 

horizontal and vertical separation between the transmission line’s conductors and 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

459 

3.18 Utility Systems 

equipment used during pipeline construction and maintenance (such as cranes and 

shovels) must be maintained. 

If these electrical interference effects are great enough during normal operation, then a 

potential shock hazard exists for anyone that touches an above-ground part of the 

pipeline, such as a valve or cathodic protection test station. In addition, during normal 

operation, if the induced AC current density at a flaw in the pipeline coating is great 

enough, AC pipeline corrosion may occur. Damage to the pipeline coating can occur if 

the voltage between the pipeline and surrounding soil becomes excessive during a fault 

condition. 

The potential exists for damage to occur to underground pipelines during excavation 

and grading activity. The Applicants propose to use the Gopher One-Call system to 

identify and avoid impacts to existing utilities during construction, including pipelines 

and any associated distribution lines. If buried pipelines are crossed by heavy 

equipment, use of matting on access roads would help protect the pipeline from 

damage caused by heavy loads. 

Although low in probability, a simultaneous leak on the pipeline and fault on the 

transmission line could result in ignition if the Project is not located at a minimum 

safe distance from natural gas and crude oil pipelines. In the event of a natural gas 

leak from a pipeline, natural gas could accumulate in a plume before the leak is 

detected by the pipeline sensor and the associated pipeline compressor station shut 

down. If the plume of natural gas is located at the transmission line before being 

dissipated into the atmosphere and a fault occurs on the transmission line, the natural 

gas plume could ignite. To result in ignition, a gas leak would need to occur and a 

plume form before the pipeline sensor shut down at the compressor station. A fault 

would need to occur on the transmission line in the location of the natural gas plume 

before the natural gas dissipated into the atmosphere. The probability of all events 

occurring simultaneously and resulting in ignition would be extremely low. Ignition 

could also occur if natural gas is released from a pressure relief valve located at a 

pipeline compressor station. It is possible to model the pathway of a potential natural 

gas plume to determine the safe distance between a compressor station or potential 

plume pathway and transmission line to ensure that even in the event of a failure of 

the transmission line occurring simultaneously with a natural gas release, ignition 

would not occur. 

In the event of a crude oil leak from a pipeline and simultaneous fault on the 

transmission line, there is a lower potential that ignition would result since crude oil 

is not as volatile as natural gas. In the event of a natural gas or crude oil release, 

response authorities would request that the transmission line be taken out of service, 

which would further reduce the likelihood of a potential fault occurring on the 

transmission line at the same time as a pipeline release. 

The National Association of Corrosion Engineers (NACE) develops standards to 

ensure pipeline safety and integrity. The NACE standards do not specify a safe 

separation distance between a pipeline and transmission line, but require analysis to 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

460 

3.18 Utility Systems 

determine the safe separation distance. In Canada, the separation distance between a 

pipeline and transmission line must be 10 meters (approximately 30 feet) or greater. 

The 10-meter separation would prevent arcing from the transmission line to the 

pipeline. Depending on the fault current level, the soil resistivity in the area of the 

fault, and mitigation measures, a pipeline and transmission line could potentially be 

located within less than 10 meters of each other and comply with all NACE standards. 

With the 1,000-foot route width requested for the Project, the Applicants do not 

anticipate that the transmission line would need to be located outside of the 

permitted route due to pipeline safety concerns. (Van House, 2010). 

Existing Electric Transmission Lines 

Under the Route Alternatives and Segment Alternatives, two construction options are 

available in areas where the Project would follow an existing transmission line ROW. 

The first is the construction of the Project line adjacent to the existing line, such that 

there are two parallel single-circuit lines. This would require additional easements to 

construct and operate the Project. No direct interference of existing parallel 

transmission lines would be expected during construction or operation of the Project. 

Parallel lines would be constructed at a distance necessary to allow for construction and 

line maintenance. This would lead, however, to a wider area of disturbance from 

clearing of new ROW. 

Alternatively, there are opportunities to double-circuit the Project with existing 115 kV 

and 69 kV transmission lines. Double-circuiting could potentially occur in all locations 

where the Route or Segment Alternatives would parallel existing transmission lines 

(Route Alternatives 1, 2, 3, and 4 and Segment Alternatives A, G, H, L, and M). 

Double-circuiting would, in most cases, require less total ROW than two parallel 

circuits, but would increase reliability issues because a single incident has the potential 

to disrupt service on both lines. Double-circuit lines typically have increased 

construction costs and more complex maintenance. In most cases, double-circuiting 

would not affect operation of the existing transmission lines, except that construction of 

the Project would require moving the existing transmission lines to the new pole 

structures. Construction staging would need to be carefully coordinated with other 

utilities in portions where the Project would be double-circuited to ensure that electric 

reliability is maintained throughout the construction process. The existing transmission 

lines would remain in service during construction activities (Otter Tail Power et al., 

2008a). 

Overall, it is expected that the Project would have a positive impact on electric utilities 

in the Study Area by improving system reliability and the capacity of the electric power 

system to reduce the risk of brownouts. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

461 

3.18 Utility Systems 

3.18.2.3. Route Alternative 1 

This section identifies potential direct and indirect effects from the Project on utilities 

specific to Route Alternative 1 and its associated Segment Alternatives. 

Communications Networks 

Three registered telecommunications antennae are located within the Study Area for 

Route Alternative 1 (Otter Tail Power et al., 2008a). The telecommunications antennae 

include: 

• One ASR tower registered to AAT Communications Corporation and located in 

the city of Zemple; 

• One ASR tower registered to Great Lakes Gas Transmission and located on Great 

Lake Road, east of Ball Club Lake; and 

• One cellular tower registered to American Cellular Corporation and located near 

the city of Zemple. 

Three microwave towers are located within 1 mile of Route Alternative 1 (Otter Tail 

Power et al., 2008a). One of the towers is located in Bemidji area, approximately 0.5 mile 

south of Route Alternative 1. A second tower in the Bemidji area is located 

approximately 0.8 mile north of Route Alternative 1. The third tower is located directly 

south of the city of Bena, approximately 600 feet north of Route Alternative 1. 

Oil and Gas Pipelines 

Route Alternative 1 would begin following the Great Lakes Gas pipeline ROW 

approximately 8,000 feet south of the Wilton Substation, south of County Road 14. 

Route Alternative 1 would deviate from the pipeline ROW at the intersection of 

Monarch Drive SW and Oak Ridge Road SW in Bemidji for approximately 1,900 feet 

south and 2,700 feet east to avoid a residential area. Route Alternative 1 would then 

follow the pipeline ROW until combining with Route Alternative 2, north of Six Mile 

Lake, to follow U.S. Highway 2 and the Enbridge pipeline ROW to the Mississippi River 

crossing, located to the southwest of the city of Ball Lake. Route Alternative 1 would 

then follow the Great Lakes Gas pipeline ROW until deviating for approximately 4,000 

feet to follow County Road 118 to the south of the city of Ball Lake and Ball Club Lake. 

Route Alternative 1 would deviate from the pipeline ROW and follow existing railroad 

and 115 kV transmission line ROWs for the remaining approximately 4.5 miles to the 

Boswell Substation. In total, Route Alternative 1 could follow or parallel existing 

pipeline ROWs for approximately 61.4 miles. 

None of the Segment Alternatives associated with this Route Alternative would parallel 

pipelines or introduce new pipeline crossings, with the following exceptions: 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

462 

3.18 Utility Systems 

• Segment Alternative A would cross the Great Lakes Pipeline to follow an 

existing 115 kV transmission line from Bemidji to 460th Street in Hubbard 

County, approximately 0.5 mile west of the Leech Lake Reservation Boundary. 

• Segment Alternative B would avoid the Pike Bay Experimental Forest and much 

of the Ten Section Area by deviating from Route Alternative 1 south of Pike Bay 

and west of Moss Lake. Segment Alternative B would deviate from Route 

Alternative 1 and the Great Lakes Gas pipeline ROW to create approximately 

10.5 miles of new corridor. 

• Segment Alternative K would cross the Great Lakes Pipeline near Hubbard 

County Road 15 and then follow Enbridge pipeline ROW to the existing Cass 

Lake Substation to connect with Route Alternative 2. Segment Alternative K 

would require crossing the Enbridge ROWs at some point to access the Cass 

Lake Substation. 

• Segment Alternative L would cross the Great Lakes pipeline to connect Segment 

Alternative A to a new Cass Lake Substation or to Segment Alternative M to 

connect to the existing Cass Lake Substation. 

• Segment Alternative M would cross the Enbridge Pipeline to connect to the 

existing Cass Lake Substation. 

• Segment Alternative N would cross both the Enbridge and Great Lakes pipelines 

to connect Route Alternatives 1 and 2. 

• Segment Alternative O would cross both the Enbridge and Great Lakes pipelines 

to connect Route Alternatives 1 and 2. 

• Segment Alternative P may require the crossing of both the Enbridge and Great 

Lakes pipelines to connect Route Alternatives 1 and 2. 

• Segment Alternative Q may require crossing both the Enbridge and Great Lakes 

pipelines to connect Route Alternatives 1 and 2. 

Existing Transmission Lines 

Route Alternative 1 would largely follow the Great Lakes Gas pipeline ROW, although 

existing transmission line ROWs would be crossed and paralleled for certain segments. 

Immediately exiting the Wilton Substation, Route Alternative 1 would follow two 

existing 69 kV transmission lines for approximately 1.2 miles before intersecting County 

Road 14 and continuing onto the Great Lakes Gas pipeline ROW. Route Alternative 1 

would cross the existing Otter Tail Power Bemidji-Nary 115 kV transmission line to the 

north of Lake Marquette. Route Alternative 1 then would proceed along a pipeline 

ROW to Pike Bay. Approximately 3,000 feet after crossing 73rd Avenue NW and the 

Hubbard-Cass County Line, Route Alternative 1 would intersect with an existing 115 kV 

transmission line at the location for the proposed Cass Lake Substation. North of Six 

Mile Lake, Route Alternative 1 would combine with Route Alternative 2 and follow an 

existing Great River Energy 69 kV transmission line to the city of Ball Club. Route 

Alternative 1 would deviate from the 69 kV transmission line ROW at County Road 119 

in Ball Club for approximately 4,350 feet. Route Alternative 1 then would re-join the 69 

kV transmission line ROW for 2 miles before the 69 kV line turns north and Route 

Alternative 1 would continue east along the Great Lakes Gas pipeline. East of Deer 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

463 

3.18 Utility Systems 

River, Route Alternative 1 would follow an existing Minnesota Power 115 kV 

transmission line for approximately 6.3 miles and into the Boswell Substation. In total, 

Route Alternative 1 could follow or parallel existing transmission line ROWs for 17.8 

miles. 

None of the Segment Alternatives associated with this Route Alternative would parallel 

transmission lines, with the following exceptions: 

• Segment Alternative A would follow an existing Bemidji-Nary 115 kV 

transmission line from Bemidji to Cass Lake instead of following the Great Lakes 

Gas pipeline ROW. 

• Segment Alternative L would connect Segment Alternative A to a new Cass Lake 

Substation or to Segment Alternative M to connect to the existing Cass Lake 

Substation. This segment would follow a 115 kV transmission line for the entire 

2.5-mile length of the segment. 

• Segment Alternative M would connect Segment Alternative L to the existing 

Cass Lake Substation, and would follow an existing 115 kV transmission line for 

its entire length. 

3.18.2.4. Route Alternative 2 

This section identifies potential direct and indirect effects from the Project on utilities 

specific to Route Alternative 2 and its associated Segment Alternatives. 

Communications Networks 

Four registered telecommunications antennae are located within the Study Area for 

Route Alternative 2 (Otter Tail Power et al., 2008a). The telecommunications antennae 

include: 

• One ASR tower registered to the State of Minnesota, west of the city of Cass Lake 

and north of Route Alternative 2; 

• One ASR tower registered to the Burlington Northern Railway, approximately 

2,000 feet south of Grass Lake, along the railway between Cass Lake and Bena; 

• One land mobile tower registered to the State of Minnesota, west of the city of 

Cass Lake and north of Route Alternative 2; and 

• One land mobile tower registered to the Burlington Northern Railway, west of 

the city of Cass Lake and north of Route Alternative 2. 

Although not located within the 1,000-foot-wide route, an omnidirectional transmitting 

antenna for KBUN AM, owned by the Paul Bunyan Broadcasting Company, is located 

approximately 1,500 feet north of Route Alternative 2 on Jefferson Avenue SW in 

Bemidji. The antenna transmits at 1450 KHz. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

464 

3.18 Utility Systems 

Five microwave towers are located within 1 mile of Route Alternative 2 (Otter Tail 

Power et al., 2008). Two of the towers are located approximately 0.4 and 0.8 mile north 

of Route Alternative 2 in Bemidji. A third Bemidji tower is located approximately 0.9 

mile south of Route Alternative 2. The fourth tower is located in Cass Lake, 

approximately 225 feet north of Route Alternative 2. The final tower is located in Bena, 

approximately 0.7 mile south of Route Alternative 2. 

Oil and Gas Pipelines 

Route Alternative 2 would cross the Enbridge pipeline ROWs four times in the city of 

Bemidji before running parallel to the Enbridge pipeline ROWs in Cass Lake: 

• As the Project exits the Wilton Substation to the northeast. 

• To the west of Lake Irving at Division Street W in Bemidji. 

• South of Bemidji near the Bemidji Slough Wildlife Management Area (WMA), 

where Route Alternative 2 would follow U.S. Highway 2 and the Enbridge 

pipeline crosses U.S. Highway 2. 

• Along U.S. Highway 2, west of Cass Lake, where the Enbridge pipeline recrosses U.S. Highway 2 south of Little Wolf Lake. 

Route Alternative 2 then generally would follow the Enbridge pipeline ROW from Cass 

Lake to Deer River. Route Alternative 2 would deviate slightly from the Enbridge 

pipeline ROW to the south of Grass Lake when it would follow U.S. Highway 2. Route 

Alternative 2 also would deviate from the Enbridge pipeline ROW at Reservation 

Highway 60 north of Portage Lake to avoid a residential area. Route Alternative 2 

would follow U.S. Highway 2 to the east of Ball Club Lake, again deviating slightly from 

the Enbridge pipeline ROW to follow the U.S. Highway 2 ROW. To the east of Deer 

River, Route Alternative 2 would follow the U.S. Highway 2 ROW for approximately 2 

miles before continuing along the Enbridge pipeline ROW to within 1 mile of the 

Boswell Substation. In total, Route Alternative 2 could follow or parallel existing 

pipeline ROWs for approximately 48.1 miles. In areas where the Project is located 

adjacent to the Enbridge ROWs, total combined ROW width for the Project and 

pipelines would be 325 feet. 

Segment Alternatives associated with this Route Alternative generally do not interact 

with existing pipelines, except as follows: 

• Segment Alternative C would require crossing the Enbridge pipeline ROWs 

when used in conjunction with Route Alternative 2. 

• Segment Alternative G would follow the Enbridge pipeline ROWs for a 1.6 mile 

segment from the Wilton Substation to Division Street West. The Segment 

Alternative would cross the Enbridge pipeline ROWs. 

• Segment Alternative H would cross the Enbridge pipeline ROWs twice, first to 

parallel with an existing 115 kV transmission line, and then to reconnect to Route 

Alternative 2 south of U.S. Highway 2. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

465 

3.18 Utility Systems 

• Segment Alternative I would continue to parallel the Enbridge pipeline ROWs 

for approximately 0.5 mile. It may require a crossing of the Enbridge pipeline to 

reconnect to Route Alternative 2 south of U.S. Highway 2. 

• Segment Alternative K would cross the Great Lakes Pipeline near Hubbard 

County Road 15 and then would follow the Enbridge pipeline ROW to the 

existing Cass Lake Substation to connect with Route Alternative 2. Segment 

Alternative K would require crossing the Enbridge ROWs at some point to access 

the Cass Lake Substation. 

• Segment Alternative N would cross both the Enbridge and Great Lakes pipelines 

to connect Route Alternatives 1 and 2. 

• Segment Alternative O would cross both the Enbridge and Great Lakes pipelines 

to connect Route Alternatives 1 and 2. 

• Segment Alternative P may require crossing both the Enbridge and Great Lakes 

pipelines to connect Route Alternatives 1 and 2. 

• Segment Alternative Q may require crossing both the Enbridge and Great Lakes 

pipelines to connect Route Alternatives 1 and 2. 

Existing Transmission Lines 

Route Alternative 2 largely would follow the U.S. Highway 2 and Enbridge pipeline 

ROWs, although existing transmission line ROWs would be crossed and paralleled for 

certain segments. While following U.S. Highway 2/71 to the west of Bemidji, Route 

Alternative 2 would cross an existing Otter Tail Power 115 kV transmission line in two 

locations. An existing Otter Tail Power 69 kV transmission line begins to follow U.S. 

Highway 2 near the intersection of U.S. Highway 2 and Van Buren Avenue SW in 

Bemidji. Route Alternative 2 would follow this transmission line ROW to the east for 

approximately 8.5 miles to the proposed Cass Lake Substation. Northeast of the city of 

Bena, Route Alternative 2 would parallel an existing 69 kV transmission line to the city 

of Ball Club. To the east of Ball Club River and County Road 89, Route Alternative 2 

would cross an existing Great River Energy 69 kV transmission line. Route Alternative 2 

would cross an existing Minnesota Power 115 kV transmission line east of Deer River, 

after which Route Alternative 2 would turn southeast to proceed to the Boswell 

Substation. Route Alternative 2 would briefly follow the Minnesota Power 115 kV 

transmission line ROW prior to terminating at the Boswell Substation. In total, Route 

Alternative 2 could follow or parallel existing transmission line ROWs for 9.4 miles. 

• Segment Alternative G would follow an existing 115 kV transmission line ROW 

for approximately 1.6 miles from the Wilton Substation to Division Street. 

• Segment Alternative H would continue to parallel with an existing 115 kV 

transmission line before connecting with Route Alternative 2 south of U.S. 

Highway 2. 

• Segment Alternative M would connect Segment Alternative L to the existing 

Cass Lake Substation, and would follow an existing 115 kV transmission line for 

its entire length. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

466 

3.18 Utility Systems 

3.18.2.5. Route Alternative 3 

This section identifies potential direct and indirect effects from the Project on utilities 

specific to Route Alternative 3 and its associated Segment Alternatives. 

Communications Networks 

Seven registered ASR antenna towers are located within the Study Area for Route 

Alternative 3. The telecommunications antennae include: 

• One ASR tower registered to Otter Tail Power Company, located at the 

intersection of Mill Street and Tyler Avenue SE in Bemidji; 

• One ASR tower registered to Northern Minnesota Investments, located at the 

intersection of Mill Street and Tyler Avenue SE in Bemidji; 

• One ASR tower registered to Midcontinent Communications, located to the west 

of Tyler Avenue SE in Bemidji; 

• One ASR tower registered to AAT Communications, located within the 1,000-

foot-wide route of Route Alternative 3 south of Blackduck; 

• One ASR tower registered to Central States Tower Holdings LLC, located on 

Court Lake Road, east of the city of Tenstrike; and 

• Two ASR towers registered to Itasca County, located in the northern portion of 

the 1,000-foot-wide route for Route Alternative 3. One of the towers is 

positioned along County Road 29, approximately 4 miles east of the city of 

Alvwood, and the other to the east of MN Highway 6 where Route Alternative 3 

changes direction from east to south. 

Oil and Gas Pipelines 

Route Alternative 3 would start from the Wilton Substation in a similar manner to Route 

Alternative 1, and would begin following the Great Lakes Gas pipeline ROW 

approximately 8,000 feet south of the Wilton Substation, south of County Road 14. 

Route Alternative 3 would follow the Great Lakes Gas pipeline ROW for approximately 

9 miles until turning north after the intersection of County Road 400, southeast of 

Bemidji. Route Alternative 3 later would cross the Enbridge pipeline south of U.S. 

Highway 2 to the east of Deer River. Route Alternative 3 then would follow the Great 

Lakes Gas pipeline row to the east for approximately 2 miles. Route Alternative 3 then 

would parallel the Great Lakes Gas pipeline ROW to the Boswell Substation. Route 

Alternative 3 could follow or parallel existing pipeline ROWs for a total of 8.1 miles. 

Segment Alternatives E, R, S, and T, the only Segment Alternatives associated with this 

Route Alternative 3, would not parallel or cross any pipelines. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

467 

3.18 Utility Systems 

Existing Electric Transmission Lines 

Route Alternative 3 would largely follow existing transmission line ROWs. Immediately 

exiting the Wilton Substation, Route Alternative 3 would follow an existing 69 kV 

transmission line for approximately 1.2 miles before intersecting County Road 14 and 

following the Great Lakes Gas pipeline ROW. Route Alternative 3 would cross the 

existing Otter Tail Power Bemidji-Nary 115 kV transmission line to the north of Lake 

Marquette. Route Alternative 3 would re-connect with an existing 69 kV line east of 

Bemidji, after turning north to cross U.S. Highway 2. Alternative 3 would follow the 69 

kV transmission line ROW from Bemidji to Blackduck. South of Blackduck, the 69 kV 

transmission line turns north and Route Alternative 3 would continue east following 

roadway easements. Route Alternative 3 would rejoin a 69 kV transmission line right-of 

way at the intersection of County Road 13 and County Road 131, which it would 

continue to follow east to MN Highway 6 and then south to an existing substation east 

of Deer River. Route Alternative 3 would follow an existing 115 kV transmission line 

ROW from the substation to the Boswell Substation. The 1,000-foot-wide route for 

Route Alternative 3 could follow or parallel existing transmission lines for a total of 91.3 

miles. 

Segment Alternative E would deviate from the 69 kV Transmission Line to follow MN 

Highway 6 for approximately 11 miles. 

3.18.2.6. Route Alternative 4 

This section identifies potential direct and indirect effects from the Project on utilities 

specific to Route Alternative 4. 

Communications Networks 

Seven registered telecommunications antennae are located within the Study Area for 

Route Alternative 4. The telecommunications antennae include: 

• One ASR tower registered to AAT Communications Corporation and located 

in the city of Zemple; 

• One ASR tower registered to Great Lakes Gas Transmission and located on 

Great Lake Road, east of Ball Club Lake; 

• One cellular tower registered to American Cellular Corporation and located 

near the city of Zemple; 

• One ASR tower registered to the State of Minnesota, west of the city of Cass 

Lake and north of Route Alternative 4 ; 

• One ASR tower registered to the Burlington Northern Railway, approximately 

2,000 feet south of Grass Lake, along the railway between Cass Lake and Bena; 

• One land mobile tower registered to the State of Minnesota, west of the city of 

Cass Lake and north of Route Alternative 4; and 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

468 

3.18 Utility Systems 

• One land mobile tower registered to the Burlington Northern Railway, west of 

the city of Cass Lake and north of Route Alternative 4. 

Oil and Gas Pipelines 

Route Alternative 4 would begin following the Great Lakes Gas pipeline ROW 

approximately 8,000 feet south of the Wilton Substation, south of County Road 14. 

Route Alternative 4 would deviate from the pipeline ROW at the intersection of 

Monarch Drive SW and Oak Ridge Road SW in Bemidji for approximately 1,900 feet 

south and 2,700 feet east to avoid a residential area. Route Alternative 4 would 

continue to follow the pipeline ROW southeast to Hubbard County Highway 45 at 

which point the alignment would turn northeast to travel approximately 0.5 miles to 

the Enbridge ROW just south of the Potlach Facility on west side of Midge Lake. The 

route would follow this ROW for over 5 miles to the Cass Lake Substation. Exiting the 

Cass Lake Substation, the route would continue east and be located north of the 

Enbridge ROW to the city of Cass Lake. Route Alternative 4 would follow Segment 

Alternative F south of Cass Lake, which would require crossing over the Enbridge 

ROW. Route Alternative 4 would be located south of the BNSF, U.S. 2, and Enbridge 

ROW heading east from Cass Lake. Route Alternative 4 would cross the Enbridge 

pipelines at least twice before reaching Bena. From Bena, Route Alternative 4 would 

continue along the south side of the Enbridge ROW until crossing the Enbridge 

pipeline at the intersection of Route Alternatives 1, 2, and 4 north of Six Mile Lake. 

Route Alternative 4 would be located north of the Enbridge ROW until approximately 

two miles west of Ball Club Lake, near the Mississippi River crossing. Route 

Alternative 4 would then follow the route described for Route Alternative 1 and be 

located south of all pipeline ROWs until Deer River. The Route Alternative would 

cross the Enbridge and Great Lakes ROWs twice each east of Deer River. After 

crossing County Aid State Highway 11 in Deer River, the Route would follow 

existing railroad and 115 kV transmission line ROWs for the remaining 

approximately 6.4 miles to the Boswell Substation. In total, Route Alternative 4 could 

follow or parallel existing pipeline ROWs for approximately 54 miles. 

Existing Transmission Lines 

Route Alternative 4 would largely follow U.S. Highway 2 and the Great Lakes Gas 

and Enbridge pipeline ROWs, although existing transmission line ROWs would be 

crossed and paralleled for certain segments. Immediately exiting the Wilton 

Substation, Route Alternative 4 would follow two existing 69 kV transmission lines 

for approximately 1.2 miles before intersecting County Road 14 and continuing onto 

the Great Lakes Gas pipeline ROW. Route Alternative 4 would cross the existing 

Otter Tail Power Bemidji-Nary 115 kV transmission line to the north of Lake 

Marquette. Route Alternative 4 then would proceed along a pipeline ROW to the city 

of Bena. Route Alternative 4 would then follow an existing Great River Energy 69 kV 

transmission line and pipeline ROWs to County Road 119 in Ball Club. Route 

Alternative 4 would deviate from the 69 kV transmission line ROW at County Road 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

469 

3.18 Utility Systems 

119 in Ball Club. Route Alternative 4 then would re-join the 69 kV transmission line 

ROW for approximately one mile before the 69 kV line turns north and Route 

Alternative 4 would continue east along the Great Lakes Gas pipeline. East of Deer 

River, Route Alternative 4 would follow an existing Minnesota Power 115 kV 

transmission line for approximately 6.4 miles into the Boswell Substation. In total, 

Route Alternative 4 could follow or parallel existing transmission line ROWs for 21 

miles. 

3.18.3. Mitigation 

No large-scale or long-term negative effects of the Project alternatives are expected for 

utility systems. However, localized and temporary effects on utility systems are 

possible. 

The following sections summarize the mitigation measures that could be implemented 

to reduce the potential impacts to utility systems from construction and operation of the 

Project. Mitigation measures that are typically included in permits are noted. Cases 

where additional mitigation measures may be incorporated as a permit condition are 

also noted. 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 

3.18.3.1. Omnidirectional Signals 

Interference from the Project on omnidirectional signals could be reduced through 

proper maintenance of the line. Proper selection of hardware and preventative 

maintenance could reduce gap and corona discharges. 

The HVTL route permit issued by the Commission could have a permit condition 

requiring the permittee to correct any interference to communications systems it causes 

or creates. 

Radio Interference 

Interference from transmission line corona discharges on AM radio stations within a 

station’s primary coverage area could be reduced by modifying the receiving antenna 

system (Otter Tail Power et al., 2008a). If a two-way mobile radio is located adjacent to 

and behind a large metallic structure, signal blocking may result in interference. The 

Project would be constructed on wood H-frame structures for the majority of the Project 

length, which would reduce signal blocking. In locations where metallic structures were 

used, mobile radio towers could be relocated such that the transmission line structures 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

470 

3.18 Utility Systems 

would not block two-way signals. AM antenna located outside but in proximity to the 

selected route could be identified and considered in structure placement and design. 

The Applicants could work with individual mobile radio owners regarding placement of 

the Project, such that blocking interference does not occur. If existing communications 

networks cannot be avoided through placement of the Project transmission line and 

modifications to broadcasting station or receiver antennae do not eliminate interference, 

the transmission line structures could be detuned at the affected radio frequency to 

prevent interference. 

Television Interference 

Due to the high frequency of television broadcast signals, the Project would not be 

expected to cause interference within a station’s primary coverage area. However, if 

interference did occur, the addition of an outside antenna for viewers could correct the 

problem. 

Television reception interference could also be the result of a transmission line structure 

blocking the signal, if a structure was placed in close proximity to the receiver. If 

viewers report problems with television reception interference due to the placement of 

structures, the Applicants have agreed to investigate (through measurements) whether 

the structure caused the reception interference. Should this be the case, corrective 

measures could be implemented. Reception interference could be corrected with the 

addition of an outside antenna or amplifier for viewers. 

3.18.3.2. Microwave (Unidirectional) Signals 

The Applicants propose working individually with all unidirectional tower 

owners/operators in proximity to the transmission line to resolve any potential 

interference. Mitigation may include shorter transmission line structures near the signal 

direction to maintain line-of-sight abilities for microwave towers (Otter Tail Power et al., 

2008a). 

3.18.3.3. Oil and Natural Gas Pipelines 

With proper planning and mitigation, pipelines and high voltage AC transmission lines 

could be safely co-located on adjacent ROWs. The AC interference effects could be 

predicted with computer modeling. The National Association of Corrosion Engineers 

has standards that ensure that pipeline integrity would not be degraded nor personnel 

safety compromised because of AC interference from a transmission line constructed 

and operated adjacent to a pipeline. Mitigation techniques for AC interference on 

pipelines include reducing the impedance of the transmission structure grounds, 

grounding the pipeline in conjunction with de-couplers, burying gradient control wires 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

471 

3.18 Utility Systems 

along the pipeline or ground mats under aboveground facilities (such as at valves), and 

the use of dead fronts at test stations. 

None of the above mitigation methods would be expected to require additional ROW 

beyond the existing pipeline ROW and 125-foot ROW for the Project. Reducing 

transmission impedance consists of adding stacked or parallel ground rods to the 

structure grounding system. This is done adjacent to the transmission structure, thus no 

additional transmission line ROW is required. Grounding a pipeline typically occurs 

within the existing pipeline ROW and consists of connecting a copper or zinc cable to 

the pipeline through a de-coupler device to prevent DC cathodic protection current from 

flowing to ground. Gradient control wires are typically copper conductors buried 

parallel to and adjacent to the pipeline (within 5 to 10 feet). 

Ground mats consist of approximately 8-foot square sections of conductors buried 

underneath where pipeline personnel stand when operating a valve. Dead fronts consist 

of replacing the existing test stations with test stations that are non-conductive and 

require no additional land. Lastly, additional “coupon stations” are sometimes installed 

to monitor the pipeline to ensure that mitigation measures are effective at preventing 

AC pipeline corrosion. These facilities are installed adjacent to the pipeline and use 

coupons that are exposed to the same environment as the pipeline and monitored to 

determine if AC corrosion is occurring. This typically would not require additional 

ROW beyond the existing pipeline ROW and 125-foot ROW for the Project (Otter Tail 

Power et al., 2008a). 

The Applicants have agreed to ensure that computer modeling of AC interference effects 

is completed and that any required mitigation is designed and installed prior to 

energizing the transmission line. Additional modeling could be conducted to ensure 

that natural gas plumes resulting from a potential pipeline leak would be located a 

safe distance from the transmission line such that ignition of natural gas would not 

occur if a fault on the transmission line occurred during the release. The Applicants 

have met with Enbridge and Great Lakes Gas, owners of major pipelines in the Study 

Area, to ensure that the necessary separation occurs between the proposed transmission 

line and pipelines and that safety requirements are met. This should help ensure that 

there are no adverse impacts to pipeline structures, pipeline operation, or public safety 

resulting from locating the transmission line adjacent to a pipeline ROW (Otter Tail 

Power et al., 2008a). 

The Applicants propose to use the Gopher One-Call system to identify and avoid 

impacts to existing utilities during construction, including pipelines and any 

associated distribution lines. If buried pipelines are crossed by heavy equipment, use 

of matting on access roads could help protect the pipeline from damage caused by 

heavy loads. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

472 

3.18 Utility Systems 

3.18.3.4. Electric Transmission Lines 

Any planned service disruptions to electric service that are necessary during 

construction activities could be scheduled with the affected owners of the existing 

transmission line in accordance with reliability standards. Advanced scheduling of 

these disruptions would allow for alternative arrangements for electrical service to be 

made when possible and allow for customers to be notified in advance. 

Utility repair crews could be present or on-call during construction activities to respond 

to any unplanned incidents that may result in an interruption to electric service. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

473 

3.19 Traffic and Transportation 

3.19. Traffic and Transportation 

This section describes traffic and transportation networks and facilities in the Study 

Area, and the potential impacts of the Project on those networks and facilities. The 

Study Area is defined as the 1,000-foot-wide route developed for each Route Alternative 

and Segment Alternative. Facilities examined include roads, railroads, airports, and 

navigable waters. 

Methodology and Sources of Information 

Transportation facilities in the Study Area were identified through a review of aerial 

photographs. Characteristics of the transportation facilities were obtained from the 

Minnesota Department of Transportation, Burlington Northern Santa Fe Railroad, 

and county and city planning and development agencies. 

3.19.1. Affected Environment 

This section provides an overview of the existing federal, state, and county highways 

and roads; railways; airports; and navigable rivers and lakes located in proximity to the 

Study Area. Transportation facilities in the Leech Lake Reservation (LLR) and 

Chippewa National Forest (CNF) are discussed separately. 

Scenic byways are discussed herein and in Section 3.1, Aesthetics. Figures 3.19-1 and 

3.19-2 illustrate existing transportation and utility infrastructure in the Study Area. 

3.19.1.1. Federal, State, and County Roads 

The Study Area is readily accessible by an extensive system of roads, including local, 

collector, and arterial roads, most notably U.S. Highway 2 (U.S. 2). Table 3.19-1 lists the 

annual average daily traffic (AADT) volumes for U.S. Highways and Minnesota (MN) 

Highways crossed or paralleled by the 1,000-foot routes developed for each Route and 

Segment Alternative. The actual number and locations of highway crossings would 

vary depending on the final alignment of the transmission line ROW within the 

route. Data for traffic volumes were not available for all county highways and roads in 

the Study Area. Traffic volumes for these roads are typically lower than for U.S. or 

Minnesota highways. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

474 

3.19 Traffic and Transportation 

Table 3.19-1: Average Annual Daily Traffic Volumes of Highways near the Study Area 

U.S. or Minnesota 

Highway Location Route and Segment Alternatives AADT

South of Bemidji 2 8,600 U.S. 71 (Crossings) 

South of Bemidji 1 and 4 4,900-5,600 

U.S. 71 (Parallel and 

Crossings) Between Tenstrike and Blackduck 3 3,400 

U.S. 71/MN Highway 197 

(Crossing) South of Bemidji 3 8,600 

Southeast of Bemidji 3 9,500 

East of Zemple 3 6,000-8,400 

Between Zemple and Boswell 

Substation 2 6,000-8,400 

North of Boswell Substation 2 6,000-8,400 

U.S. 2 (Crossing) 

East of Cass Lake 2 and 4 5,300-8,300 

South of Bemidji 2 9,500 

Near Cass Lake 2 and 4 5,300-8,300 

Between Bena and Zemple 1, 2, and 4 3,400 

U.S. 2 (Parallel) 

U.S. 2/MN Highway 6 

(Parallel) 

Between Zemple and Boswell 

Substation 1, 2, and 4 6,000-8,400 

Near Boswell Substation 1 and 4 560 

MN Highway 6 (Crossing) South of Gunderson Lake 3 750 

MN Highway 6 (Parallel) Between Bowstring and Deer River 3 and E 1,100-3,550 

MN Highway 46 (Crossing) Alvwood 3 800-900 

South of Cass Lake 1 3,800-5,600 

MN Highway 371 (Crossing) Cass Lake 2 and 4 5,600-6,100 

Source: MnDOT, 2007 

The Minnesota Department of Transportation (MnDOT) maintains a rest area at U.S. 2 

milepost (MP) 131, north of Route Alternatives 2 and 4. 

U.S. 2 serves as the primary east-west transportation corridor in the Project area for 

heavy commercial loads, particularly for large and oversized loads coming out of the 

Port of Duluth (Duluth-Superior Port). The Duluth-Superior port is the largest port on 

the Great Lakes and is one of the premier bulk cargo ports in North America. This area 

is designated as a regional trade center (RTC). Truck transportation is a primary means 

for moving materials in and out of the RTC (MnDOT, 2009a). 

Within Minnesota, a three tier system is in place to designate heavy commercial truck 

traffic, which is based on the heavy commercial average annual daily traffic (HCAADT). 

Based upon observed statewide data, tiers were classified based on the following: 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

475 

3.19 Traffic and Transportation 

• Tier 1: Roads on the network with HCAADT greater than 650 

• Tier 2: Roads on the network with HCAADT between 301 and 650 

• Tier 3: Roads on the network with HCAADT less than 300 

The Tier 1 network in northern Minnesota supports adequate movements throughout 

the region, because these types of routes link major cities and allow freight to be shipped 

in all directions. U.S. 2 is a Tier 1 roadway and is considered one of the major truck 

corridors within the State of Minnesota (MnDOT, 2009a). 

For these reasons, a joint study commissioned by MnDOT, the Wisconsin Department of 

Transportation and the Duluth-Superior Metropolitan Interstate Council, Northern 

Minnesota & Northwestern Wisconsin Regional Freight Plan (Freight Plan), recommended 

that U.S. 2 be designated as a super haul route. The design criteria for a super haul route 

includes roadways that can generally accommodate a loaded vehicle with a 16-foot 

height limit, a 16-foot width limit with an 8-foot wide axle, a 130-foot length limit, and a 

235,000-pound weight limit. The report also provided a recommendation that counties 

and cities should provide adequate notice of at least two weeks for road closures along 

portions of these types of routes to provide adequate time for permit staff to reroute 

loads (MnDOT, 2009a). 

In addition, within the Freight Plan, U.S. 2 was identified as an expanded envelope route 

between Bemidji and Grand Rapids. This type of route is a super haul route that can 

carry vehicles above and beyond the identified criteria in at least one dimension, such as 

height, width, length, or weight. In addition to the super haul designations, the report 

recommended that the shoulder width along major highways should be 10 feet, based 

upon the preference of commercial and fleet operators (MnDOT, 2009a). Consequently, 

maintenance of this roadway as a super haul route is an important consideration when 

planning future developments within this part of the State. 

MnDOT has indicated that it plans to expand MN Highway 197/U.S. 71 on the south 

side of Bemidji (State Project 0409-12). This highway improvement project began in 

June 2010 and is scheduled to occur through 2011. Possible other future projects 

include the resurfacing of this segment, which includes the MnDOT Bridge #04012. The 

right-of-way (ROW) width varies in this area from 100 to 150 feet (MnDOT, 2009a). 

Route Alternatives 1, 2, 3, and 4 cross MN Highway 197. 

MnDOT has long-term plans to add bypass lanes to U.S. 2, between the cities of Cass 

Lake and Deer River. However, a specific timeline for this highway improvement 

project has not been developed because funding has not become available. The 

proposed improvement is not part of the MnDOT 2003-2023 Statewide Transportation 

Plan (Bittman, 2008). If the project does receive funding, MnDOT has indicated that it 

hopes to design the project without having to acquire additional ROW. The ROW width 

varies in this area from 66 to 200 feet (MnDOT, 2009a). MnDOT has also indicated that it 

would likely design the U.S. 2 bypass lanes according to current freeway standards 

(Frisco, 2008). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

476 

3.19 Traffic and Transportation 

MnDOT has indicated future plans to refurbish or replace the U.S. 2 bridge over the 

Mississippi River west of Ball Club. Due to the volume of traffic on the bridge, 

MnDOT may construct a temporary bypass bridge adjacent to the existing bridge. 

MnDOT has indicated that an equipment staging area to the south of the bridge 

between the existing bridge and railroad line may be necessary. A specific timeline 

for the bridge improvement project has not been developed. (MnDOT, 2010) 

3.19.1.2. Railways 

The Study Area contains portions of the Burlington Northern Santa Fe (BNSF) railway 

corridor. Within this portion of the State, the rail network is an important mode of 

transportation for moving a variety of commodities, especially heavy bulk goods. The 

BNSF has a total of 638 miles within Northern Minnesota, with part of this service 

running between Bemidji and Grand Rapids (MnDOT, 2009a). 

The BNSF has developed a utility accommodation policy that addresses new utility 

installations that parallel or cross BNSF railroad lines. According to this policy, utility 

lines should be located to avoid or minimize the need for adjustments for future railroad 

improvements and to permit access to the utility lines for their maintenance with 

minimum interference to railroad traffic. For utilities that parallel BNSF rail lines, the 

BNSF considers any utility line greater than 500 feet in length to be a parallel line. The 

line then must be located on a uniform alignment within 10 feet or less of the property 

line (BNSF, 2007). The following provides the requirements for overhead installations: 

• Minimum clearance of 4 feet required above signal and communication lines. 

• Poles must be located 50 feet out from the centerline of the railroad main, branch, 

and running tracks, CTC sidings, and heavy tonnage spurs. The Pole location 

adjacent to industry tracks must provide at least a 10-foot clearance from the 

centerline of the track, when measured at right angles. 

• Regardless of the voltage, unguyed poles should be located a minimum distance 

from the centerline of any track, equal to the height of the pole above the groundline plus 1 foot. 

• Poles (including steel poles) must be located a minimum distance from the 

railroad signal and communication line equal to the height of the pole above the 

ground-line or else be guyed at right angles to the lines. High voltage towers 

(34.5 kV and higher) must be located off railroad ROW. 

• For proposed electrical lines paralleling tracks, BNSF may request that an 

inductive interference study be performed at the expense of the utility owner. 

Inductive interference from certain lines have the potential to disrupt the signal 

system in the track causing failures in the track signals and highway grade 

crossing warning devices (BNSF, 2007). 

 

For utilities that cross railroad property, to the extent feasible and practical, are to be 

perpendicular to the railroad alignment and preferably at not less than 45 degrees to the 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

477 

3.19 Traffic and Transportation 

centerline of the track. Utilities are not to be placed within culverts or under railroad 

bridges, buildings, or other important structures (BNSF, 2007). The following is 

required by the BNSF for utilities that cross railroad property: 

• Minimum 4 feet clearance required above signal and communication lines. 

• Poles must be located 50 feet out from the centerline of railroad main, branch and 

running tracks, CTC sidings, and heavy tonnage spurs. Pole locations adjacent 

to industry tracks must provide at least a 10-foot clearance from the centerline of 

track, when measured at right angles. 

• Regardless of the voltage, unguyed poles shall be located a minimum distance 

from the centerline of any track, equal to the height of the pole above the groundline plus 10 feet. 

• Poles (including steel poles) must be located a minimum distance from the 

railroad signal and communication line equal to the height of the pole above the 

ground-line or else be guyed at right angles to the lines. High voltage towers 

(34.5kV and higher) must be located off the railroad ROW. 

• Crossings should not be installed under or within 500 feet of the end of any 

railroad bridge, or 300 feet from the centerline of any culvert or switch area. 

• Complete spanning of the property is encouraged with supportive structures and 

appurtenances located outside railroad property. For electric supply lines, 

normally the crossing span should not exceed 150 feet with adjacent span not 

exceeding 1.5 times the crossing span length. 

• Joint-use construction is encouraged at locations where more than one utility or 

type of facility is involved. However, electricity and petroleum, natural gas or 

flammable materials are not to be combined. 

• To ensure that overhead wire crossings are clear from contact with any 

equipment passing under such wires, electric lines with a minimum clearance of 

26.5 feet or greater above top of rail when required by the “National Electric 

Safety Code” or state and local regulations. Electric lines must have a florescent 

ball marker on low wires over the centerline of the track. 

• For proposed electrical lines crossing tracks, BNSF may request that an inductive 

interference study be performed at the expense of the utility owner. Inductive 

interference from certain lines have the potential to disrupt the signal system in 

the track causing failures in the track signals and highway grade crossing 

warning devices (BNSF, 2007). 

 

3.19.1.3. Airports 

There are three airports located within 2 miles of the Study Area, as shown in Figure 

3.19-1. Table 3.19-2 lists these airports and the Project Route Alternatives within 2 miles 

of each airport. Expansion of the terminal at Bemidji Regional Airport is the only major 

planned improvement at these airports (MnDOT, 2008). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

478 

3.19 Traffic and Transportation 

Table 3.19-2: Airports Near Project Route Alternatives 

Airport Location Route Alternatives

Distance 

from Route 

Alternatives 

Bemidji Regional North-northeast of Wilton Substation 1, 2, 3, and 4 1.5 mile 

Moberg Airbase North of Wilton Substation 1, 2, 3, and 4 1 mile 

Nary National-Sheffland 

Field Nary 1, 2, and 4 2 miles 

Bemidji Regional Airport (BJI) is the only major airport located in proximity of the Study 

Area. BJI is located approximately 1.5 miles north-northeast of the Wilton Substation. 

However, the main runway at BJI is aligned approximately northwest-southeast (with a 

secondary runway aligned southwest-northeast), meaning that air traffic arriving and 

departing from BJI would cross over the transmission lines several miles from the 

airport. 

Moberg Airbase is a private airport located approximately 1 mile north of the Wilton 

Substation. The airport has one runway, which is aligned northwest-southeast, similar 

to the main runway for BJI. Adjacent to the airport is a waterway used for sea plane 

takeoffs and landings. 

Nary-National Sheffland Field is located approximately 2 miles south of U.S. Highway 2 

and Route Alternatives 1, 2, and 4. The airport is approximately 2 miles north of 

Segment Alternatives A and L. The airport has one runway that is aligned north-south. 

3.19.1.4. River and Lake Navigation 

There are numerous lakes, rivers, and streams within the 1,000-foot Route Alternatives 

and Segment Alternatives. Many of the larger water bodies, such as Lake Bemidji, Leech 

Lake, Lake Winnibigoshish, and the Mississippi River are used for recreational boating 

activities, as described in Section 3.13, Recreation and Tourism. 

3.19.1.5. Leech Lake Reservation 

Approximately 45 miles of Route Alternatives 1, 2, and 4 cross the Leech Lake 

Reservation. The major transportation resources within the Leech Lake Reservation are 

U.S. Highway 2, MN Highway 371, and MN Highway 6. 

Route Alternatives 1 crosses Cass County Highways 69, 76, and 8. 

Route Alternative 2 parallels U.S. Highway 2 in some portions within the Leech Lake 

Reservation. This alternative crosses Cass County Highways 75, 10, 8, and 9 as well as 

Itasca County Highway 89 at the eastern boundary of the Leech Lake Reservation. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

479 

3.19 Traffic and Transportation 

Segment Alternatives N and O would parallel Cuba Hill Road and Sucker Bay Road 

respectively, connecting Route Alternatives 1 and 2 east of Cass Lake. 

Route Alternative 3 avoids most of the Leech Lake Reservation. Segment Alternative E 

contains an approximately 11-mile segment within the LLR that parallels MN Highway 

6, to the south of Bowstring. 

Route Alternative 4 largely parallels Route Alternative 2 and U.S. Highway 2 within 

the Leech Lake Reservation. Route Alternatives 4 crosses State Highway 371, Cass 

County Highways 8, and Itasca County Highway 18 within the Leech Lake 

Reservation. 

3.19.1.6. Chippewa National Forest 

U.S. Highway 2 passes through the CNF by easement or permit. Approximately 25 

miles of Alternatives 1, 2, and 4 would cross CNF land. Many of the Segment 

Alternatives would cross CNF lands for varying distances. These alignments would 

involve construction across 12 numbered Forest roads and four unclassified Forest 

roads. The most significant Forest roads crossed by Route Alternatives 1, 2, and 4

include Forest Road 2137 (Pike Bay Loop), Forest Road 2133 (Cuba Hill Road), Forest 

Road 2930, Forest Road 2135 (Ketchum Road), Sucker Bay Road, Portage Lake Road, and 

Portage Road. While traffic volumes were not available for these Forest roads, none of 

these roads are major arterial roadways, nor are they subject to large traffic volumes. In 

addition, the crossings of and parallel routes to U.S. 2 east of Cass Lake would occur 

within CNF land. 

As shown in Figure 3.19-1, approximately 60 miles of Route Alternative 3 would cross 

CNF land, but would not cross any Forest roads. Route Alternative 3’s crossings of U.S. 

71 near Tenstrike and MN Highway 46 at Alvwood are depicted, as well. Segment 

Alternative E would parallel MN Highway 6 south of Bowstring, within CNF land. 

3.19.2. Direct/Indirect Effects 

This section identifies the potential direct and indirect effects to traffic and 

transportation facilities. 

Potential direct effects from the Project include: 

• Road closures, lane closures, and traffic detours, resulting in increased traffic 

times 

• Railway closures or delays due to construction of Project structures at rail 

crossings 

• Interference with maintenance and upkeep of roadway clear zones 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

480 

3.19 Traffic and Transportation 

• Changes in flight take-off and landing patterns at airports to avoid Project 

structures 

• Interference with river and lake navigation routes if Project structures are placed 

in water bodies and block navigation channels 

Potential indirect effects from the Project include: 

• Removal of living snow fences, which may increase winter driving hazards 

• Changes in viewsheds from scenic byways 

Potential Effects from Transmission Line Co-location with Existing Road Easements 

Construction of Route Alternatives and Segment Alternatives would result in temporary 

construction-related detours and road closures, resulting in an overall increase in traffic 

and travel times for the Study Area. Road or lane closures would occur where the 

alternatives cross and (to some degree) parallel roads. Closures and detours would 

typically be necessary to string transmission lines across roads, or to allow for the 

movement of construction vehicles and the delivery of construction materials. Longer 

traffic delays due to road closures would occur on roads with high traffic volumes, such 

as U.S. 2, U.S. 71 and MN Highway 371. 

In accordance with MnDOT policy, complete road closures and related detours would 

likely last for only short periods of time (a period of hours, as opposed to a period of 

days) and could likely be anticipated and advertised well in advance. Some lane 

closures may be longer-term in nature, particularly in areas where the Project closely 

parallels a road. 

Road or lane closures are not anticipated during operation of the Project. Assuming that 

the Project structures are placed in accordance with MnDOT’s Accommodation Policy 

for the placement of aerial transmission lines immediately adjacent but outside the 

highway ROW, the Project ROW would allow sufficient area for maintenance activities 

such that the roadway would not be closed. Road closures during operation would only 

be necessary when replacement of transmission line components becomes necessary—

such as after storm events. In such cases, impacts to transportation would be similar to 

those experienced during construction, albeit for a shorter duration and over a more 

limited distance. 

All Route Alternatives parallel existing roadway ROWs for some portion of their length. 

Bordering roadway ROWs are roadway clear zones, which are defined by MnDOT as 

unobstructed, flat areas that extend from the travel lane and provide drivers an area to 

stop or regain control of a vehicle that runs off the road (MnDOT, 2009a). The clear zone 

is kept free of structures and other collision hazards. Co-location of the Project and 

existing roadways may limit MnDOT’s ability to use adjacent areas for construction and 

maintenance staging areas. Ditches that parallel existing roadways require clearance for 

heavy equipment needed during maintenance and upkeep. The horizontal reach on 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

481 

3.19 Traffic and Transportation 

ditch dredging equipment can range up to 60 feet; the vertical clearance needed for 

dredging equipment is 30 feet (MnDOT, 2009a). If Project structures are placed in clear 

zones, it may present a safety hazard to motorists and MnDOT may be restricted in 

performing maintenance and upkeep of these areas. 

Bridges located on U.S. 2 are inspected with a snooper with a boom approximately 62 

feet in length. Sufficient clearance is required for bridge inspection with the snooper 

(MnDOT, 2010). 

Existing vegetation bordering existing roadway ROWs acts as a living snow fence that 

protects the roadway from blowing snow drifts. Living snow fences limit snow removal 

required by MnDOT during winter storms and reduce highway closures due to unsafe 

driving conditions. Living snow fences are purposely planted trees, shrubs, crops 

(typically corn), or native grasses along roadway easements. If living snow fences are 

removed during construction or operation of the Project, motorists in the Study Area 

may encounter increased driving hazards from blowing snow during winter months. 

The increased hazard from the clearing/removal of living snow fences would be longterm if not restored; however, the potential impact would be short-term if cleared ROW 

is restored following construction. 

The grading of highway ROW is designed to assure proper drainage of water and any 

changes to the grade Project structures or grading could cause erosion of the highway 

or impede surface water drainage. 

Potential Effects on Future Transportation Plans for U.S. and State Highways 

The Project would utilize an as-yet undetermined number of roads to transport 

personnel, equipment, and materials. Most roads proposed for access for the Project 

already allow for the passage of a range of vehicles, including high-clearance vehicles 

and logging trucks. 

The feasible 125-foot-wide ROW evaluated for Route Alternatives 1, 2, and 4 generally 

would be located within 300 to 1,500 feet of U.S. 2. While the final placement of the 

transmission line may be near the U.S. 2 ROW in some areas, the Project would not 

interfere with the future designation of this roadway as a Super Haul Route. However, 

the construction of the transmission line could limit its current use as a route for heavy 

commercial transport. The distance of transmission line structures and the Project 

ROW to the U.S. 2 ROW would vary depending on the final alignment of the 

transmission line and ROW within the 1,000-foot route developed for each Route 

Alternative. The proximity of the 1,000-foot wide routes and feasible 125-foot wide 

ROWs to U.S. 2 are displayed on the maps included in Appendix D. 

Roads in the Project area experience wide levels of year-round use by area residents, 

recreational users, and logging trucks. The potential for conflict with highway 

expansion plans is addressed as specific to each Route Alternative in the discussions that 

follows. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

482 

3.19 Traffic and Transportation 

Potential General Effects on Railways 

 In areas where the Project would parallel the railroad, construction activity could likely 

occur without infringing upon the BNSF ROW, assuming that access to the Project ROW 

is sited to avoid crossing the BNSF ROW. If the BNSF ROW is entered during Project 

construction, approval would be required from BNSF. At locations where the Project 

crosses the BNSF railroad, rail traffic would be halted or redirected during Project 

construction. Construction of the alternative across the BNSF railroad at numerous 

points could cause temporary delays for freight rail traffic. Construction (including 

delivery and installation of materials, and stringing of transmission lines across the 

BNSF railroad) could likely be timed to avoid most rail traffic. However, due to the 

number of railroad crossings involved in Route Alternatives 2 and 4, delays may not be 

entirely avoided under that alternative. 

Design and construction of all build alternatives would need to mitigate for electrical 

interference with the railroad. Such mitigation is discussed in Section 3.19.3. In 

addition, the BNSF Utility Accommodation Policy, as outlined in 3.19.1.2, would need to 

be followed. 

During operation, required maintenance of the Project transmission line could be timed 

to avoid rail traffic. Potential impacts to railroad maintenance activities could be 

minimized by the use of increased structure heights at railroad crossings. However, rail 

maintenance crews would need to exercise caution to avoid coming into contact with the 

transmission line. This could require additional safety precautions or employee 

training, similar to precautions already taken to avoid existing transmission lines that 

cross the railroad. 

Potential Interference from High Voltage Transmission Lines on Railways 

When a high-voltage alternating current (AC) transmission line is located adjacent to a 

railway, the railway’s tracks and signals may be subject to electrical interference from 

capacitive, electric and magnetic, and conductive effects. The American Railway 

Engineering and Maintenance-of-Way Association (AREMA) has specifications for 

steady state rail-to-ground and equipment-to-ground voltage levels to ensure the safety 

of railway operating personnel and the public. 

Capacitive coupling results from the electric field from the transmission line’s 

conductors coupling with above ground conductive objects that are insulated from the 

earth, such as the railway’s tracks that are typically installed on high impedance ballast 

(the rock bed used to support the tracks). Electric and magnetic induction results from 

the magnetic field produced by the alternating current flowing in the conductors of the 

transmission line coupling with the above ground and below ground metallic objects, 

such as railway tracks and buried communications cables, if present. Conductive 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

483 

3.19 Traffic and Transportation 

interference results from fault currents entering the ground and raising the soil potential 

in the vicinity of the railway. If a transmission line is located in proximity and parallel 

to a railway for long distances, all of these interference mechanisms can cause high 

currents and voltages to develop on the railway’s tracks and communication cables. If 

the AC interference is above certain thresholds, it can result in personal safety hazards, 

damage to signal and communication equipment, and false signaling of equipment. 

These AC interference effects could be predicted with computer modeling once a route 

is selected and ROW identified. With proper planning and mitigation management, 

railways and high-voltage AC transmission lines can be safely co-located. During fault 

conditions, the safety criteria established by the American National Standards 

Institute/Institute of Electrical and Electronics Engineers Standard 80 (Guide for Safety 

in AC Substation Grounding) is used. These standards indicate that mitigation would 

be necessary in cases where step or touch potentials are in excess of 15 volts of 

alternating current, or when the available source current that can be conducted through 

a human body exceeds 6 milliamps (Lawson, 2009). In addition, railway signal and 

equipment manufacturers provide AC interference voltage tolerances for proper signal 

operation so that nearby transmission facilities can be designed to ensure that AC 

interference levels do not exceed the acceptable safety criteria or equipment voltage 

tolerance (Otter Tail Power et al., 2008a). 

3.19.2.1. No-Build Alternative 

The No-Build Alternative would not involve any construction or alteration of traffic or 

transportation patterns. Accordingly, it would have no impacts to transportation 

facilities. 

3.19.2.2. Route Alternative 1 and Associated Segment Alternatives 

This section identifies potential direct and indirect effects from the Project on 

transportation facilities specific to Route Alternative 1 and its associated Segment 

Alternatives. 

Federal, State, and County Highways 

Route Alternative 1 crosses four highways: U.S. 2, U.S. 71, MN Highway 6, and MN 

Highway 371. Route Alternative 1 would parallel U.S. 2 and U.S. 2/MN Highway 6 for 

a cumulative length of approximately 25 miles (about 36 percent of its length), which is 

approximately one-half the distance that these roads would be paralleled by Route 

Alternative 2 (60 miles) and similar to the distance that these roads would be paralleled 

by Route Alternatives 3 (32 miles) and 4 (34 miles). The alignment in these areas would 

depend upon a number of factors, including MnDOT safety and operating standards. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

484 

3.19 Traffic and Transportation 

The feasible 125-foot-wide ROW evaluated for this Route Alternative would generally 

be located within 300 to 1,500 feet of U.S. 2. 

Route Alternative 1 would cross the following County Highways: 

• Beltrami County: County Highways 14, 7, 11, and 2 

• Hubbard County: County Highways 36, 45, and 9 

• Cass County: County Highways 69, 76, and 8 

• Itasca County: County Highways 18 and 11 

As discussed above in Section 3.19.2, potential effects to these roadways might include: 

1) road closures, lane closures, and traffic detours, resulting in increased traffic times; 2) 

interference with maintenance and upkeep of roadway clear zones; and 3) removal of 

living snow fences, which may increase winter driving hazards. The extent of potential 

impacts is dependent on the distance of Project ROW from roadway ROW, the length of 

existing roadway ROW that would be paralleled by the Project ROW and how the 

Project ROW is accessed from the roadway. 

Route Alternative 1 has the potential to affect the planned MN Highway 197/U.S. 71 

expansion because it would cross MN Highway 197. Highway construction on MN 

Highway 197/U.S. 71 began in June 2010 and is expected to occur through 2011. 

Most of the Segment Alternatives associated with this Route Alternative do not parallel 

or cross U.S. Highways, Minnesota Highways, or County Highways, with the exceptions 

of Segment Alternative A which would cross U.S. 71 and Hubbard County Highway 36. 

Use of Segment Alternative A would allow Route Alternative 1 to avoid a the planned 

U.S. 71 expansion because, according to MnDOT, the limits of the construction are 

located between the city of Bemidji and the intersection of U.S. 71 and North Plantagenet 

Road SW, the Beltrami-Hubbard County line. 

Railways 

Construction of the Project could result in delays or closure of rail lines and result in 

increased rail travel times where the ROW would closely follow or cross existing rail 

lines. To avoid interference with rail traffic during operation of the Project, the BNSF 

Accommodation Policy, as outlined in Section 3.19.2, would need to be followed. 

The BNSF railway runs between the Wilton and Boswell substations, generally 

paralleling the south side of U.S. 2 (Figure 3.19-1). Route Alternative 1 follows the BNSF 

corridor for an estimated 7 miles, between Bena and Ball Club along U.S. 2/MN 

Highway 6. Route Alternative 1 then continues east along the south of the BNSF 

corridor for an additional 5 miles. The total distance that Route Alternative 1 could 

follow an existing rail ROW is greater than that for Route Alternative 3, but much less 

than the distance of rail ROW that could be followed by Route Alternative 2. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

485 

3.19 Traffic and Transportation 

The actual number and location of railway crossings is dependent upon the siting of the 

selected 125-foot ROW within the 1,000-foot-wide route. In the feasible 125-foot ROW 

evaluated, this Route Alternative crosses the railway at two locations southeast of 

Zemple, as shown on Figure 3.19-1. 

Segment Alternative K would parallel the railroad for most of its length. The feasible 

125-foot ROW evaluated for this Segment Alternative included a crossing approximately 

0.5 mile west of the existing Cass Lake Substation. 

Because Route Alternative 1 would parallel the BNSF railroad for only a short length 

and would likely cross the BNSF at only two locations, Route Alternative 1 would be 

expected to have minimal interference on railroad delays compared to Route 

Alternatives 2 and 4. Route Alternative 1 would be expected to have similar affects on 

rail travel as Route Alternative 3, which has a similar number of railroad crossings and 

distance of parallel ROW. 

Airports 

Due to the distance of each airport from the Route and Segment Alternatives, and the 

flight patterns during take-off and landing (based on orientation of airport runways), the 

placement of Project structures within the Route and Segment Alternatives would not 

create obstacles or hazards for air traffic related to the nearby airports. 

River and Lake Navigation 

As discussed in Section 3.4, Water Resources, numerous water basins and water courses 

are located in the Study Area, several of which would be crossed by Route Alternative 1. 

All river and lake crossings would be above ground. 

The Applicants designed the Route and Segment Alternatives to avoid crossing most 

major bodies of water in the Study Area. In areas where water crossings cannot be 

avoided, including crossings of Mississippi River, the Applicants have stated that the 

Project would span water crossings, such that pole structures are not placed directly in 

water bodies. As such, the placement of pole structures outside of water bodies would 

not require re-routing of watercraft in lakes or rivers or interfere with navigable waters. 

3.19.2.3. Route Alternative 2 and Associated Segment Alternatives 

This section identifies potential direct and indirect effects from the Project on 

transportation facilities specific to Route Alternative 2 and its associated Segment 

Alternatives. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

486 

3.19 Traffic and Transportation 

Federal, State, and County Highways 

Route Alternative 2 crosses five highways including U.S. 71/MN Highway 197, MN 

Highway 371, MN Highway 6, and U.S. 2. This Route Alternative would be parallel U.S. 

2/U.S. 71, U.S. 2, and U.S. 2/MN Highway 6 for a cumulative length of approximately 

60 miles (about 88 percent of its length. The alignment in these areas would depend 

upon a number of factors, including MnDOT safety and operating standards. The 

feasible 125-foot-wide ROW evaluated for this Route Alternative would generally be 

located within 300 to 1,500 feet of U.S. 2. 

Route Alternative 2 has the potential to affect the planned MN Highway 197/U.S. 71 

expansion because it crosses MN Highway 197. Highway construction began in June 

2010 and is expected to occur through 2011. 

Because Route Alternative 2 parallels major roads for a large proportion of its length, the 

alternative has the highest potential to impact to roads and traffic. However, 

transmission line construction is likely to be phased, rather than simultaneous over the 

entire length of the Route Alternative. In addition, Route Alternative 2 would have 

fewer crossings of state and county highways than other alternatives. For example, 

Route Alternative 2 crosses the following County Highways: 

• Beltrami County: County Highways 6, 7, 11, 50, and 45 

• Hubbard County: County Highways 8, 45, and 46 

• Cass County: County Highways 75, 10, 8, and 9 

• Itasca County: County Highways 39, 18, and 11 

Most of the Segment Alternatives associated with this Route Alternative do not parallel 

or cross U.S. Highways, Minnesota Highways, or County Highways, with the following 

exceptions: 

• Segment Alternative F would parallel and then cross MN Highway 371. 

• Segment Alternatives H and I would cross Beltrami County Highway 14. 

As discussed above in Section 3.19.2, potential effects to these roadways might include: 

1) road closures, lane closures, and traffic detours, resulting in increased traffic times; 2) 

interference with maintenance and upkeep of roadway clear zones; 3) removal of living 

snow fences, which may increase winter driving hazards; and 4) changes in viewsheds 

from scenic byways. The extent of potential impacts is dependent on the distance of 

Project ROW from roadway ROW, the length of existing roadway ROW that would be 

paralleled by the Project ROW and how the Project ROW is accessed from the roadway. 

In addition to the aforementioned crossings, the 1,000-foot route for Route Alternative 2 

also passes through a Scenic Easement maintained by MnDOT, located south of Ball 

Club Lake, between the water edge and U.S. 2. The scenic easement encompasses the 

majority of the 1,000-foot-wide route in this area. Bordering U.S. 2 to the south in this 

area are a railroad, Great Lakes Gas pipeline, and Enbridge pipeline, which limits the 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

487 

3.19 Traffic and Transportation 

potential to locate the Project ROW to the south of U.S. 2. Use of the scenic easement is 

restricted to residential, agricultural, horticultural, grazing, or forest purposes. As such, 

placement of pole structures within the scenic easement would be prohibited unless 

an exception was granted in accordance with the 23 CFR 645.209(h) (MnDOT, 2010). 

Segment Alternative P provides an opportunity to crossover to Route Alternative 1 in 

this area. 

MnDOT has indicated future plans to refurbish or replace the U.S. 2 bridge over the 

Mississippi River west of Ball Club, which is located within Route Alternative 2. Due 

to the volume of traffic on the bridge, MnDOT may construct a temporary bypass 

bridge adjacent to the existing bridge. MnDOT has indicated that an equipment 

staging area to the south of the bridge between the existing bridge and railroad line 

may be necessary. A specific timeline for the bridge improvement project has not 

been developed. (MnDOT, 2010) Depending on the placement of the Project 

alignment, options for the location of a temporary bypass bridge may be limited. 

Railways 

Construction of the Project could result in delays or closure of rail lines and result in 

increased rail travel times where the ROW would closely follow or cross existing rail 

lines. To avoid interference with rail traffic during operation of the Project, the BNSF 

Accommodation Policy, as outlined in Section 3.19.2, would need to be followed. 

Route Alternative 2 follows the BNSF railway corridor for the majority of its length, with 

deviations away from the railroad southwest of Bemidji, near Lake Irving; along the 

west side the city of Cass Lake, near Grace Lake, Midge Lake, and Little Wolf Lake; and 

south of the city of Deer River to the Boswell Substation, as shown on Figure 3.19-1. 

Route Alternative 2 has the potential for multiple crossings of the railway; the actual 

number and location of railway crossings is dependent upon the selection of the 125-

foot-wide ROW within the identified 1,000-foot-wide route. 

For the feasible 125-foot ROW evaluated, Route Alternative 2 crosses the railroad at 

several locations: about 5,000 feet south of the Beltrami-Hubbard County Line; at the 

Cass Lake Substation along the west side of the city of Cass Lake; at the east side of the 

city of Cass Lake; about 2 miles west of the city of Deer River; about 1 mile southeast of 

Zemple; and about 1 mile north of the Boswell Substation. However, depending upon 

the actual location of the ROW within the 1,000-foot-wide route, the total number of 

crossings would vary and could be much greater than the crossings noted. 

Segment Alternative F would cross the railroad in Cass Lake, near MN Highway 371. 

Segment Alternative K would parallel the railroad for most of its length. The feasible 

125-foot ROW evaluated for this Segment Alternative included a crossing approximately 

0.5 mile west of the existing Cass Lake Substation. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

488 

3.19 Traffic and Transportation 

Route Alternative 2 would require a greater number of railroad crossings than Route 

Alternatives 1 or 3, and has the potential to result in a greater number of rail travel 

delays than Route Alternatives 1 or 3. Route Alternative 2 would require a similar 

number of railroad crossings as Route Alternative 4.

Airports 

Due to the distance of each airport from the Route and Segment Alternatives, and the 

flight patterns during take-off and landing (based on orientation of airport runways), the 

placement of Project structures within the Route and Segment Alternatives would not 

create obstacles or hazards for air traffic related to the nearby airports. 

River and Lake Navigation 

As discussed in Section 3.4, Water Resources, Route Alternative 2 has the potential to 

cross the lowest number of PWI water resources of the Project alternatives. All river and 

lake crossings would be above ground. 

The Applicants designed the Route and Segment Alternatives to avoid crossing most 

major bodies of water in the Study Area. In areas where water crossings cannot be 

avoided, including crossings of Mississippi River, the Applicants have stated that the 

Project would span water crossings, such that pole structures are not placed directly in 

water bodies. As such, the placement of pole structures outside of water bodies would 

not require re-routing of watercraft in lakes or rivers or interfere with navigable waters. 

3.19.2.4. Route Alternative 3 and Associated Segment Alternatives 

This section identifies potential direct and indirect effects from the Project on 

transportation facilities specific to Route Alternative 3 and its associated Segment 

Alternatives. 

Federal, State, and County Highways 

Route Alternative 3 crosses five highways: U.S. 71/MN Highway 197, U.S. 2, MN 

Highway 6, and MN Highway 46. This alternative would parallel U.S. 71, U.S. 2/MN 

Highway 6, and MN Highway 6 for a cumulative length of approximately 32 miles 

(about 28 percent of its length), which is a similar distance as Route Alternative 1 (25 

miles) and approximately half the distance that Route Alternative 2 would parallel these 

roadways (60 miles). The alignment in these areas would depend upon a number of 

factors, including MnDOT safety and operating standards. In certain areas, it may be 

possible to develop the 125-foot ROW required for the Project adjacent to the existing 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

489 

3.19 Traffic and Transportation 

highway ROWs. The feasible 125-foot-wide ROW evaluated for this Route Alternative 

would generally be located within 300 to 1,500 feet of U.S. 2. 

Route Alternative 3 is much longer and crosses many more state and county highways 

than the other alternatives; however, most of those roads experience relatively low 

traffic volumes. For example, Route Alternative 3 crosses the following County 

Highways: 

• Beltrami County: County Highways 14, 7, 11, 20, 22, 31, 39, and 30 

• Itasca County: County Highways 13, 29, 35, 19, and 11 

 

Segment Alternative E, the only Segment Alternative associated with Route Alternative 

3, would parallel MN Highway 6 for its entire length and would cross Itasca County 

Highway 37. 

As discussed above in Section 3.19.2, potential effects to these roadways might include: 

1) road closures, lane closures, and traffic detours, resulting in increased traffic times; 2) 

interference with maintenance and upkeep of roadway clear zones; and 3) removal of 

living snow fences, which may increase winter driving hazards. The extent of potential 

impacts is dependent on the distance of Project ROW from roadway ROW, the length of 

existing roadway ROW that would be paralleled by the Project ROW and how the 

Project ROW is accessed from the roadway. 

Route Alternative 3 has the potential to affect the planned MN Highway 197/U.S. 71 

expansion because it would cross MN Highway 197. Highway construction on MN 

Highway 197/U.S. 71 began in June 2010 and is expected to occur through 2011. 

Railways 

Construction of the Project could result in delays or closure of rail lines and result in 

increased rail travel times where the ROW would closely follow or cross existing rail 

lines. To avoid interference with rail traffic during operation of the Project, the BNSF 

Accommodation Policy, as outlined in Section 3.19.2, would need to be followed. 

Route Alternative 3 follows the BNSF corridor for approximately 3 miles leading up to 

the Boswell Substation. This Route Alternative would likely cross the BNSF corridor in 

two locations: northwest of Rosby and north of the Boswell Substation. As with the 

other Route Alternatives, the actual number and location of railway crossings is 

dependent upon the selection of a final ROW within the identified 1,000-foot-wide route. 

Because Route Alternative 3 would parallel the BNSF railroad for only a short length 

and would likely cross the rail line at only two locations, Route Alternative 3 would be 

expected to have minimal interference on rail travel and shorter delays that Route 

Alternative 2. Route Alternative 3 would be expected to have similar affects on rail 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

490 

3.19 Traffic and Transportation 

travel as Route Alternative 1, which has a similar number of railroad crossings and 

distance of parallel ROW. 

Airports 

Due to the distance of each airport from the Route and Segment Alternatives, and the 

flight patterns during take-off and landing (based on orientation of airport runways), the 

placement of Project structures within the Route and Segment Alternatives would not 

create obstacles or hazards for air traffic related to the nearby airports. 

Unlike Route Alternatives 1 and 2, Nary-National Sheffland Field is not located in 

proximity to Route Alternative 3. 

River and Lake Navigation 

As discussed in Section 3.4, Water Resources, Route Alternative 3 has the potential to 

cross the greatest number of PWI water resources. All river and lake crossings would be 

above ground. 

The Applicants designed the Route and Segment Alternatives to avoid crossing most 

major bodies of water in the Study Area. In areas where water crossings cannot be 

avoided, including crossings of Mississippi River, the Applicants have stated that the 

Project would span water crossings, such that pole structures are not placed directly in 

water bodies. As such, the placement of pole structures outside of water bodies would 

not require re-routing of watercraft in lakes or rivers or interfere with navigable waters. 

Because impacts to navigable waters are expected to be negligible, although Route 

Alternative 3 would cross two to three times the number of water bodies as Route 

Alternatives 1 and 2, no greater affects on lake or river navigation from Route 

Alternative 3 would be anticipated. 

3.19.2.5. Route Alternative 4 and Associated Segment Alternatives 

This section identifies potential direct and indirect effects from the Project on 

transportation facilities specific to Route Alternative 4, which incorporates Segment 

Alternatives F and K. 

Federal, State, and County Highways 

Route Alternative 4 crosses four highways including U.S. 71/MN 197, MN Highway 

371, MN Highway 6, and U.S. 2. This Route Alternative would be parallel U.S. 2/U.S. 

71, U.S. 2, and U.S. 2/MN Highway 6 for a cumulative length of approximately 34 

miles, approximately half of its length. The alignment in these areas would depend 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

491 

3.19 Traffic and Transportation 

upon a number of factors, including MnDOT safety and operating standards. The 

feasible 125-foot-wide ROW evaluated for this Route Alternative would generally be 

located within 300 to 1,500 feet of U.S. 2. 

Route Alternative 4 has the potential to affect the planned MN Highway 197/U.S. 71 

expansion because it crosses MN Highway 197 at the same location as described for 

Route Alternative 1. Highway construction began in June 2010 and is expected to 

occur until June 2011. 

Because Route Alternative 4 parallels major roads for a large portion of its length, the 

alternative would be similar in impacts to Route Alternative 2. As with the other 

Route Alternatives, transmission line construction is likely to be phased, rather than 

simultaneous over the entire length of the Route Alternative. Route Alternative 4 

would cross the following County Highways: 

• Beltrami County: County Highways 14, 7, 11, and 2 

• Hubbard County: County Highways 36 and 45 

• Cass County: County Highway 8 

• Itasca County: County Highways 18 and 11 

As discussed above in Section 3.19.2, potential effects to these roadways might 

include: 1) road closures, lane closures, and traffic detours, resulting in increased 

traffic times; 2) interference with maintenance and upkeep of roadway clear zones; 3) 

removal of living snow fences, which may increase winter driving hazards; and 4) 

changes in viewsheds from scenic byways. The extent of potential impacts is 

dependent on the distance of Project ROW from roadway ROW, the length of existing 

roadway ROW that would be paralleled by the Project ROW and how the Project 

ROW is accessed from the roadway. 

Route Alternative 4 would avoid crossing the scenic easement maintained by MnDOT 

located south of Ball Club Lake, which would be crossed by Route Alternative 2. 

MnDOT has indicated future plans to refurbish or replace the U.S. 2 bridge over the 

Mississippi River west of Ball Club. Although Route Alternative 4 includes the 

existing U.S. bridge, the feasible alignment for the 125-foot ROW would cross the 

Mississippi River approximately 1,000 feet south of the U.S. 2 highway bridge. 

Railways 

Construction of the Project could result in delays or closure of rail lines and result in 

increased rail travel times where the ROW would closely follow or cross existing rail 

lines. To avoid interference with rail traffic during operation of the Project, the BNSF 

Accommodation Policy, as outlined in Section 3.19.2, would need to be followed. 

Route Alternative 4 follows the BNSF railway corridor starting near Midge Lake for 

the majority of its length to the city of Ball Club. Route Alternative 4 also follows the 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

492 

3.19 Traffic and Transportation 

BNSF railway for approximately 4 miles before terminating at the Boswell 

Substation, as shown on Figure 3.19-1. Route Alternative 4 has the potential for 

multiple crossings of the railway similar to Route Alternative 2; the actual number 

and location of railway crossings is dependent upon the selection of the 125-foot-wide 

ROW within the identified 1,000-foot-wide route. 

For the feasible 125-foot ROW evaluated, Route Alternative 4 crosses the railroad at 

several locations: west of the city of Cass Lake at the point where Route Alternatives 

1, 2, and 4 meet; two crossings south of Cass Lake where Route Alternative 4 follows 

Segment Alternative F to minimize impacts to the St. Regis Superfund Site; east of 

Pike Bay; and two crossings to the southeast of Deer River as the route approaches the 

Boswell Substation. However, depending upon the actual location of the ROW 

within the 1,000-foot-wide route, the total number of crossings would vary and could 

be much greater than the crossings noted. In general, the feasible 125-foot ROW 

developed for Route Alternative 4 would be located to the south of the BNSF railroad 

line. 

Route Alternative 4 would require a greater number of railroad crossings than Route 

Alternatives 1 or 3, and has the potential to result in a greater number of rail travel 

delays of than the Route Alternatives. Route Alternative 4 would require a similar 

number of railroad crossings as Route Alternative 2. 

Airports 

Due to the distance of each airport from the Route and Segment Alternatives, and the 

flight patterns during take-off and landing (based on orientation of airport runways), 

the placement of Project structures within the Route and Segment Alternatives would 

not create obstacles or hazards for air traffic related to the nearby airports. 

River and Lake Navigation 

As discussed in Section 3.4, Water Resources, numerous water basins and water 

courses are located in the Study Area, several of which would be crossed by Route 

Alternative 4. All river and lake crossings would be above ground. 

The Applicants designed the Route and Segment Alternatives to avoid crossing most 

major bodies of water in the Study Area. In areas where water crossings cannot be 

avoided, including crossings of Mississippi River, the Applicants have stated that the 

Project would span water crossings, such that pole structures are not placed directly in 

water bodies. As such, the placement of pole structures outside of water bodies 

would not require re-routing of watercraft in lakes or rivers or interfere with 

navigable waters. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

493 

3.19 Traffic and Transportation 

3.19.2.6. Leech Lake Reservation 

The public highways, county highways, and railways described in this section for Route 

Alternatives 1, 2, 3, and 4 serve as the transportation backbone for the LLR. Roadways, 

highways, airports, rail lines, and navigable waters within the LLR are typically owned 

and maintained by other government or private entities. These transportation resources 

are used by the LLBO and others living and traveling through the area. Thus, the 

transportation impacts of all build alternatives on the LLR are similar to those described 

for Route Alternatives 1, 2, 3, and 4 above. There are no anticipated impacts from the 

Project on traffic and transportation resources unique to the LLR. 

3.19.2.7. Chippewa National Forest 

Route Alternatives would cross a large amount of the CNF, including Forest Service 

Roads. Forest Service Roads are generally not high-traffic roadways. Potential impacts 

to Forest Service Roads would vary based on the location and use of the road. The 

primary impact to Forest Service Roads would be road closure and access limitations 

during construction. The Applicants could work with CNF to determine the uses of 

specific Forest Service Roads during the construction season and associated concerns 

that may warrant mitigation. 

The transportation impacts of all build alternatives on the CNF are similar to those 

described for Route Alternatives 1, 2, 3, and 4 above. 

3.19.3. Mitigation 

A variety of mitigation measures could be implemented to reduce the potential impacts 

to transportation facilities from construction and operation of the Project. Mitigation 

measures that are typically included in permits are noted. Cases where additional 

mitigation measures may be incorporated as a permit condition are also noted. 

The transmission line would be designed in accordance with National Electrical Safety 

Code (NESC) standards to minimize impacts to transportation. NESC standards 

establish clearances required between transmission lines and transportation structures 

(e.g., roadways and railways) and tree lines. The Applicants could work with state and 

local officials to minimize any impacts during construction and operation of the 

proposed transmission line. 

HVTL permits issued by the Commission direct the Permittee to comply with MnDOT 

and all applicable road authorities’ management standards and policies during 

construction. The permit also directs the permittee to provide written notice of 

construction to MnDOT and applicable city, township, and county road authorities. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

494 

3.19 Traffic and Transportation 

Under the HVTL permit, the Applicants could be required to restore the ROW, 

temporary work space, access roads, abandoned ROW, and any other lands affected by 

construction. This could include the replacement of living snow fences affected during 

construction activities. 

Due to the proximity of the Project to airports, the Project would require that a “Notice 

of Proposed Construction or Alteration” be filed with the Federal Aviation 

Administration (FAA). All public airports within 5 miles of the Project must be notified 

and provided an opportunity to comment on compatibility of the Project and airport 

operations. The FAA and MnDOT Office of Aeronautics could be notified to address 

compatibility of the Project and Very High Frequency Omnidirectional Radio Range 

(VOR) systems used in the Study Area to supplement federal air navigation aids. 

Project alternatives have been selected to avoid surface water features to the extent 

practicable. In areas where surface water features are present, it is anticipated that ROW 

alignments could be directed to avoid surface water or that water bodies could be 

spanned. All water crossings under all of the alternatives, including the Mississippi 

River crossing west of Deer River, would be spanned by poles placed from 800 to 1,000 

feet apart. There are no water bodies that are wider than the maximum span along the 

alternatives, such that complete avoidance would not be feasible. 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 

3.19.3.1. MnDOT 

The Applicants are required to obtain MnDOT and county permits, as applicable, for 

transmission line crossings over regulated roadways. In accordance with MnDOT’s 

Utility Accommodation Policy, a permit would be required if the Project were located 

within highway ROWs (including overhang of wires or arms that would enter the 

ROW) or if the Project would require use of highway ROWs for construction access or 

maintenance. Portions of the Project that require use of ROWs along the National 

Highway System require approval of the Federal Highway Administration (FHWA). 

Alignments for aerial or blowout zone encroachments could be designed in accordance 

with the MnDOT Utility Accommodation Policy, which requires the general placement 

of aerial lines in the outer 5 feet next to the highway ROW. The 5-foot standard for pole 

placement was incorporated into the Accommodation Policy to ensure that lines are 

placed as near as possible to the highway ROW but outside the blowout zone. In 

addition, the Project could allow for clearance for existing structures, which includes a 

minimum vertical access zone of 10 feet plus a safety zone of 25 feet to allow for 

maintenance (MnDOT, 2008). 

The Applicants have stated that the Project will be constructed outside of MnDOT 

ROW (Lindholm, 2010). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

495 

3.19 Traffic and Transportation 

Construction activities may necessitate access from the highway ROW to the 

transmission line ROW at existing or additional turnout or approach locations. 

Construction of temporary additional turnouts or approaches may require installation of 

culverts and fill materials. Installation of additional temporary access points would be 

subject to review and approval of highway officials. Construction forces would 

implement traffic control measures in accordance with the MnDOT Manual on Uniform 

Traffic Control Devices, which could include flag persons, barriers, and flashing lights. 

Removal of existing conductors and stringing of new overhead conductors over 

highways would require installation of temporary wood pole “guard structures” and 

other measures to safeguard the public and the construction workforce. Temporary 

guard structures are designed to provide vertical clearance of the conductors above the 

road surface to avoid impacting normal vehicular traffic on the roadway. 

After installation of the new conductors is complete, the temporary guard structures 

would be removed. At some locations, additional measures such as boom trucks 

equipped with “bat wings” may be employed to ensure that adequate vertical clearance 

was maintained at the highway crossings during stringing operations. Restriction of 

traffic may occasionally be required for short periods of time during pole deliveries or 

during critical wire stringing activities. Construction workforces would work closely 

with the Minnesota State Patrol to ensure the implementation of appropriate measures 

to safeguard the public and construction workforces, and to notify the public about 

planned road closures and detours (Otter Tail Power et al., 2008a). 

Potential interference with highway expansion projects could be reduced by 

coordinating construction schedules with MnDOT.

3.19.3.2. High-Voltage Transmission Line and Railway Compatibility 

Depending upon AC interference levels, several mitigation methods could be used, 

including reducing the distance between insulated joints in track sections, grounding the 

railroad’s tracks, and buried gradient control wires or matting. It is unlikely that 

installing any of the above mitigation methods would require additional ROW. 

Reducing the distance between insulated joints involves placement of additional joints 

in the existing tracks to shorten track sections. This reduces coupled track area and AC 

interference voltage levels. 

Grounding the tracks and communication cables is one of the most effective methods for 

mitigating interference. Typically this is done at communication and signal cable access 

points (such as at splice locations and manholes) and the other points where the track 

would have high induced voltage if not grounded. Grounding would reduce voltage 

levels along track sections and provide a path for AC interference currents to flow to 

ground. Burying gradient control wires or matting is a highly effective method to 

mitigate both inductive and conductive interference. Gradient control wires or matting 

consists of one or more bare conductors buried parallel to and near the railroad. These 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

496 

3.19 Traffic and Transportation 

measures raise the earth potential in the vicinity of the railroad such that the difference 

in potential between the railroad and local ground is reduced. As a result, 

rail-to-ground and rail touch voltages are significantly reduced (Otter Tail Power et al., 

2008a). 

Taller structures could be used where the Project crosses the BNSF railroad, to increase 

clearance between passing trains and the conductors. Where appropriate, the Project 

could be consolidated with existing transmission lines to reduce the number of railroad 

crossings. Potential double circuiting opportunities are discussed in Section 3.18, Utility 

Systems. 

The Applicants have agreed to ensure that computer modeling of AC interference effects 

is completed and that any required mitigation is designed and installed prior to 

energizing the transmission line. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

497 

3.20 Safety and Health 

3.20. Safety and Health 

This section identifies and describes potential safety and health impacts from operation 

of a high-voltage transmission line. 

Methodology and Sources of Information 

Information for this analysis was obtained primarily from health studies available from 

federal and state government agencies, including the National Institute of 

Environmental Health Sciences (NIEHS), U.S. Environmental Protection Agency 

(USEPA), World Health Organization (WHO), and the Minnesota State Interagency 

Working Group on EMF Issues. 

3.20.1. Affected Environment 

The discussion about the affected environment provides a summary of electric and 

magnetic fields (EMF), including an overview of health effects from EMF. Additional 

safety and health issues may result during construction of the Project, when construction 

workers could be subject to typical construction-related incidents and injuries. This 

discussion is non-specific to any one Route Alternative, because the construction and 

operation of the Project would be similar for each Route Alternative and Segment 

Alternative and result in the same affected environment. 

3.20.1.1. Electric and Magnetic Fields 

Wherever there is electricity there are electric and magnetic fields (EMF). Electric and 

magnetic fields are not only created by high-voltage transmission and distribution lines, 

but also by the appliances, lights, and wiring in homes, businesses, and schools. As a 

result, people are exposed on a daily basis to a complex mix of electric and magnetic 

fields at many different frequencies. 

Electric and magnetic fields are invisible just like radio, television, and cellular phone 

signals, all of which are part of the electromagnetic spectrum. Natural and human-made 

electromagnetic fields are, in fact, present everywhere in our environment. Natural 

electric fields for example are produced by the local build-up of electric charges in the 

atmosphere that are associated with thunderstorms. The natural static background 

electric field is approximately 120 volts per meter (V/m). The Earth has a magnetic field 

that ranges from approximately 300 to 700 milligauss (mG). The Earth has a steady-state 

or static (zero hertz) magnetic field, but has similar characteristics to the magnetic fields 

emanating from human-made sources. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

498 

3.20 Safety and Health 

Electromagnetic fields created by humans include X-rays and magnetic resonance 

imaging (MRIs) machines, electric and magnetic passenger trains, electric cars, and 

cellular telephones. The frequency of transmission line EMF in the United States is 60 

hertz and falls in the extremely low frequency (ELF) range of the electromagnetic 

spectrum (any frequency below 300 hertz). By comparison, cellular phone 

communications operate at frequencies almost one billion times greater than EMF 

resulting from electric power. The electromagnetic spectrum (Figure 3.20-1) is a range of 

frequencies that includes visible light, X-rays, magnetic resonance imaging (MRI) 

machines, radios, televisions, and cellular telephones. 

Figure 3.20-1: Electromagnetic Spectrum 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

499 

3.20 Safety and Health 

Low frequency EMF from alternating current power lines fall within the low-energy part 

of the electromagnetic spectrum. 

The strongest EMF around the outside of a substation comes from the power lines 

entering and leaving the substation. The strength of the EMF from equipment within a 

substation, such as transformers, reactors, and capacitor banks, decreases rapidly with 

increasing distance. Beyond the substation fence or wall, the EMF produced by the 

substation equipment is typically indistinguishable from background levels (NIEHS, 

2002). 

For the frequencies associated with power lines, it is useful to discuss separately electric 

and magnetic fields, which arise from the voltage of a power line and the flow of 

electricity, respectively. 

• Electric fields are measured in kilovolts per meter (kV/m). 

• Magnetic fields—or flux density—are measured in mG or microTesla (μT). 

• Electric field intensity is proportional to the voltage of the transmission line. 

• Magnetic field intensity is proportional to the current flow. 

• Electric fields are easily shielded or weakened by objects such as trees or walls. 

• Magnetic fields are difficult to shield and, thus, more easily penetrate objects. 

Electric Fields 

Electric fields are created by voltage or the difference in the electric charge between two 

points, and are measured in V/m or kV/m. The greater the voltage, the stronger the 

electric field. 

Electric fields may interact directly with the human body by inducing a surface electric 

discharge or contact currents. Indirect effects occur when a person is in contact with an 

electrically charged conducting object (e.g. vehicle or a metal fence). The available data 

for exposure to static electric fields suggest that the only negative human health effects 

are the direct perception of body hair movement and small shocks, similar to the shock 

received by the induced friction from walking on a carpet and touching a doorknob. On 

the whole, scientific evidence indicates that chronic exposure to electric fields at or 

below levels traditionally established for safety does not cause adverse health effects. 

Safety concerns related to electric fields are sufficiently addressed by adherence to the 

National Electric Safety Code (NESC) standards. 

There are currently no federal guidelines for the strength of electrical fields beneath high 

voltage transmission lines. However, six states have established their own regulations 

or guidelines with regard to transmission line electric fields (Table 3.20-1). The 

standards and guidelines presented in Table 3.20-1 include limits for electric field 

strength directly below the transmission line in the center of the ROW and on the 

edge of the ROW, as measured at 1 meter above the ground surface. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

500 

3.20 Safety and Health 

Table 3.20-1: State Electric Field Regulations or Guidelines 

Electric Field State 

On ROW Edge ROW 

8 kV/ma Florida 2 kV/m 

10 kV/mb 

Minnesota 8 kV/m 

Montana 7 kV/m 1 kV/mc 

New Jersey 7 kV/me 3 kV/m 

11.8 kV/m 1.6 kV/m 

11 kV/md 

New York 

7 kV/me 

Oregon 9 kV/m 

Source: California Electric and Magnetic Fields Program, 2000. 

Notes: 

a. transmission lines of 69 – 230 kV 

b. 500 kV Transmission Lines 

c. May be waived by landowner 

d. Private Road Crossings 

e. Highway Crossings 

In addition to the state guidelines identified above, there are a number of national and 

international boards, committees, and commissions that have recommended electric 

field exposure guidelines or thresholds that pertain to 60 hertz high-voltage 

transmission lines. In most cases, these organizations have recognized the difference 

between general and occupation exposure, and have set different guidelines or 

thresholds for the general public and occupational exposure. Occupational exposure 

limits take into account the higher potential for electric fields closer to the 

transmission line from the ground surface. Maintenance of a HVTL may require 

occupational exposures of greater electric field strength; thus, standards for 

occupational exposure are different to those for the general public. Occupational 

exposure to electric fields from an HVTL is generally limited because of the short 

duration of routine maintenance activities and de-energizing of the transmission line 

before significant maintenance occurs near the line. Electric field guidelines 

established for the general public assume a longer term exposure, such as exposure 

levels that could be experienced by a person walking or driving beneath the 

transmission line or within the ROW. Due to required distance between the 

conductor and building structures, no homes or businesses would be located directly 

beneath the transmission line in the center of the ROW. However, ROW could be 

used by persons for recreational activities, subsistence activities such as hunting and 

gathering, and MnDOT personnel performing highway maintenance. In addition, the 

Project alternatives would span roads, railways, and water bodies that are travelled in 

the Study Area. 

Table 3.20-2 summarizes the suggested electric field guidelines from a number of these 

internationally recognized organizations. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

501 

3.20 Safety and Health 

Table 3.20-2: International Electric Field Strength Guidelines 

Electric Field (kV/m) Organization

General Public Occupational

Institute of Electrical and Electronic Engineers (IEEE) 5 20 

International Commission on Non-Ionizing Radiation Protection (ICNIRP) 4.2 8.3 

American Conference of Governmental Industrial Hygienists (ACGIH) — 25 

National Radiological Protection Board (NRPB) 4.2 — 

European Union (EU)) 4.2 — 

Source: California Electric and Magnetic Fields Program, 2000. 

Magnetic Fields 

Magnetic fields are created by electric current or flow (measured in amperes). Current 

passing through any conductive material, including a wire, produces a magnetic field in 

the area around that material. This field is expressed in units of magnetic flux density, 

expressed as gauss (G) or Teslas. For the purpose of measuring magnetic fields 

commonly found in the environment, milliGauss (mG) or micro Teslas (μT) commonly 

are used (one milliGauss = 10 micro Teslas). The greater the current, the stronger the 

magnetic field. Unlike electric fields, however, magnetic fields pass through most 

materials and are therefore more difficult to shield. 

Magnetic fields are not singularly associated with power lines. Every person is exposed 

to these fields to a greater or lesser extent throughout each day, whether at home, in 

schools, or in offices. The general wiring and appliances located in a typical home can 

produce an average background magnetic field of 0.5 to 4.0 mG. Table 3.20-3 contains 

field readings for a number of selected, commonly encountered items in the home and 

office. These represent median readings, meaning one might expect to find an equal 

number of readings above and below these levels. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

502 

3.20 Safety and Health 

Table 3.20-3: Magnetic Fields (milligauss) From Common Home and Business Appliances 

Distance From Source (in feet) Type 

0.5 1 2 4 

Computer Display 14 5 2 - 

Fluorescent Lights 40 6 2 - 

Hairdryer 300 1 - - 

Vacuum Cleaners 300 60 10 1 

Microwave Oven 200 40 10 2 

39.4 peak Conventional Electric Blanket 

21.8 average 

2.7 peak Low EMF Electric Blanket 

0.09 average 

Source: EPA, 1992 

Peak magnetic field levels as high as 70 mG have been measured directly below 

overhead distribution lines and as high as 40 mG above underground lines (NIEHS, 

2002). Magnetic fields directly beneath overhead distribution lines typically range from 

10 to 20 mG for main feeder lines and less than 10 mG for lateral lines (NIEHS, 2002). 

There are currently no state or federal standards establishing a threshold for magnetic 

fields produced by high voltage transmission lines. Some states have set magnetic field 

exposure standards (Table 3.20-4). The exposure limits established by Florida and New 

York were not based on potential human or environmental impact, but were intended to 

maintain electric transmission systems within current levels or as benchmarks for 

comparing different design alternatives. 

Table 3.20-4: State Magnetic Field Regulations or Guidelines 

State Magnetic Field at Edge of ROW at maximum load 

150 mGa

200 mGb

Florida 

250 mGc

New York 200 mG 

Notes: 

a. for lines of 69 – 230 kV 

b. for 500 kV lines 

c. for 500 kV lines in certain existing ROW 

In addition to the state guidelines identified above, there are a number of national and 

international boards, committees, and commissions that have recommended magnetic 

field exposure guidelines for both the general public and occupational exposure. 

Similar to guidelines established for electric fields, occupational exposure limits for 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

503 

3.20 Safety and Health 

magnetic fields take into account the higher potential for magnetic fields closer to the 

transmission line from the ground surface. Occupational exposure to magnetic fields 

from an HVTL is generally limited because of the short duration of routine 

maintenance activities and de-energizing of the transmission line before significant 

maintenance occurs. Magnetic field guidelines established for the general public 

assume a longer term exposure, such as exposure levels that could be experienced by a 

person walking, driving, engaging in recreational activities, working such as MnDOT 

personnel performing maintenance, or hunting and gathering beneath the 

transmission line. Table 3.20-5 summarizes the suggested magnetic field guidelines 

from a number of these internationally recognized organizations. The exposure 

guidelines established by the International Commission on Non-Ionizing Radiation 

Protection have typically been the guidelines adopted by most countries and 

organizations. 

Table 3.20-5: International Magnetic Field Guideline 

Magnetic Field (mG) Organization

General Public Occupational

Institute of Electrical and Electronic Engineers (IEEE) 9,040 27,100 

International Commission on Non-Ionizing Radiation Protection (ICNIRP) 830 4,200 

American Conference of Governmental Industrial Hygienists (ACGIH) — 10,000/1,000a

National Radiological Protection Board (NRPB) 830 4,200 

European Union (EU)) 830 — 

Note: a. For persons with cardiac pacemakers or other medical electronic devices 

Source: California Electric and Magnetic Fields Program, 2000. 

EMF Health Effects Overview 

Concerns about health effects of electric and magnetic fields (EMF) from power lines 

were first raised in the late 1970s. Since then, considerable research has been conducted 

to determine if exposure to magnetic fields, such as those from high-voltage power lines, 

causes biological responses and health effects. In summary: 

• Initial epidemiological studies done in the late 1970s showed a weak correlation 

between surrogate indicators of magnetic field exposure (such as wiring codes or 

distance from roads) and increased rates of childhood leukemia (Wertheimer et 

al., 1979); 

• More recent studies that used direct measurements of magnetic field exposure 

show either a very weak, or no statistical correlation with adverse health affects 

(Savitz et al., 1988); and 

• Toxicological and laboratory studies have not been able to show a biological 

mechanism between EMF and cancer or other adverse health effects. 

While there are numerous internet sites devoted to EMF dangers (whether from power 

lines, cell phones, or radio frequency signals), the vast majority of experts believe that 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

504 

3.20 Safety and Health 

EMF from power lines does not cause leukemia or any other health problem. In part, 

these experts argue the physical impossibility of any health effect due to such lowfrequency, low-energy magnetic fields. 

Currently, the USEPA states the following viewpoint of the associated health effects 

of EMFs on its website (USEPA: Electric and Magnetic Fields (EMF) Radiation from 

Power Lines, 2009): 

Much of the research about power lines and potential health effects is inconclusive. 

Despite more than two decades of research to determine whether elevated EMF 

exposure, principally due to magnetic fields, is related to an increased risk of 

childhood leukemia, there is still no definitive answer. The general scientific 

consensus is that, thus far, the evidence available is weak and is not sufficient to 

establish a definitive cause-effect relationship (USEPA: Electric and Magnetic 

Fields (EMF) Radiation from Power Lines, 2009). 

Currently, the WHO states the following viewpoint of the associate health effects of 

EMFs on its website (WHO, 2009): 

Extensive research has been conducted into possible health effects of exposure to 

many parts of the frequency spectrum. All reviews conducted so far have indicated 

that exposures below the limits recommended in the INNIRP (1998) EMF guidelines, 

covering the full frequency range from 0-300 GHz, do not produce any known 

adverse health effect. However, there are gaps in knowledge still needing to be filled 

before better health risk assessments can be made (WHO, 2009). 

Scientific review panels have generally concluded that the combined data show at best a 

weak association with ELF/EMF and at worst that the findings are mutually 

inconsistent and inconclusive. 

The study of cancer in relation to ELF electric and magnetic fields has been a topic of 

study since the late 1970s. Since that time there have been several epidemiological 

studies that have explored the possible association of not only cancer risks, but other 

potential human maladies (brain tumors, leukemia, breast cancer, and mental health 

issues). Studies have focused on both occupational exposures for individuals working 

in electrical industries and public exposures for children and adults living and working 

around common EMF sources (in-home wiring, transmission lines, home, and office 

appliances/equipment). Studies focused on occupational exposures for adults 

included those individuals working in electrical industries. Within the Study Area, 

especially portions of the Leech Lake Reservation, tribal members may use ROWs 

and surrounding areas for hunting and gathering opportunities. Throughout the 

entire Study Area, in locations where the Project parallels roadway ROWs, MnDOT 

maintenance personnel would be working in proximity to transmission lines. 

Although specific studies on the potential exposure to individuals engaged in these 

activities beneath a transmission line have not been conducted, the duration of 

exposure experienced would be similar to that experienced by someone with a home 

or workplace building at the edge of the ROW, which have been the focus of 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

505 

3.20 Safety and Health 

numerous EMF studies. The results of the various studies conducted over the last three 

decades, specifically those regarding the relationship between EMF and childhood 

leukemia and other cancer risks, have been mixed; some have found an association 

while others have not. 

Where there is association suggested in epidemiological studies, it is usually very near 

the statistical threshold of significance. However, when these studies are repeated in a 

laboratory, the results have not reproduced or identified a biological mechanism to 

support a link between childhood leukemia and magnetic fields. Researchers continue 

to look at magnetic fields until more certain conclusion can be reached. 

In fact, the World Health Organization (WHO), in 1996, launched a large 

multidisciplinary research effort to address growing public concerns over the possible 

health effects from exposure to EMF. In their conclusions WHO indicated that, “...in the 

area of biological effects and medical applications of non-ionizing radiation 

approximately 25,000 articles have been published over the past 30 years. Despite the 

feeling of some people that more research needs to be done, scientific knowledge in this 

area is now more extensive than for most chemicals.” 

Based upon in-depth review of scientific literature, the WHO concluded that, “...current 

evidence does not confirm the existence of any health consequences from exposure to 

low level electromagnetic fields. However, some gaps in knowledge about biological 

effects exist and need further research.” 

Leukemia is the most common childhood cancer worldwide for children from infancy to 

age 14, with approximately 2,600 cases diagnosed in the United States annually. 

Unfortunately, the exact cause of childhood leukemia is not known. Many suspected 

risk factors have been studied and evaluated, but ultimately most children with 

leukemia do not have any risk factors, and as stated above, the cause of their cancer is 

not known at this time. In the case of high-voltage power lines as a suspected risk 

factor, the WHO indicates that few children have time-averaged exposures to residential 

60 Hz magnetic fields in excess of the levels suspected to be associated with an increased 

incidence of childhood leukemia. Approximately one to 4 percent have mean exposures 

above 0.3 μT and only one to 2 percent have median exposures in excess of 0.4 μT. If 

there are any risks such as childhood leukemia associated with living near power lines, 

then it is clear those risks are very small, otherwise we should be witnessing an 

observable epidemic of childhood cancers. However, there is little, if any evidence of 

such an epidemic of childhood cancer. 

Continued Research on EMF Health Effects 

It is important to note that although expert panels and agencies, such as the ones 

discussed above, have not yet identified any viable cause and effect relationships 

between exposure to EMFs and adverse health effects, hypotheses have existed and 

continue to be researched. Some health studies in discussion include, but are not 

limited to, Dr. David Carpenter’s research hypothesis on the relationship between 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

506 

3.20 Safety and Health 

EMF and certain diseases and the Melatonin and Henshaw Effect hypotheses formed 

by Professor Denis Henshaw. 

Dr. David O. Carpenter, during the public hearing proceedings for the proposed 345 

kV transmission line from Brookings County, South Dakota to Hampton, Minnesota, 

provided pre-filed direct testimony regarding his findings on health effects associated 

with EMF. Dr. Carpenter is a public health physician and Director of the Institute for 

Health and the Environment at the University of Albany, SUNY. He researched and 

wrote a document titled, Setting Prudent Public Health Policy for Electromagnetic 

Field Exposures. Carpenter concludes “there is strong scientific evidence that 

exposure to magnetic fields from power lines greater than 4 mG is associated with an 

elevated risk of childhood leukemia” and that some studies have indicated that there 

is scientific evidence to suggest that exposures above 2 mG could increase leukemia 

risks. Carpenter goes on to suggest that “lifetime exposure to magnetic fields in 

excess of 2 mG is associated with an increased risk of neurodegenerative diseases in 

adults, including Alzheimer’s disease and amyotrophic lateral sclerosis (ALS).” 

(Carpenter, 2008) 

Additionally, during his recent testimony on the proposed 345 kV HVTL in response 

to whether EMF similar to power line exposure can affect biological tissue, he states 

the following (Carpenter, 2010): 

Any one of these actions [actions that alter cell tissue] might be responsible for 

the carcinogenic and/or neurodegenerative actions of EMFs. As with many 

environmental agents, however, assuming that only one mechanism of action 

exists would be a mistake, particularly where more than one disease is involved. 

It is more likely that multiple mechanisms of action would contribute to 

disease. 

The Melatonin hypothesis associates exposure to elevated magnetic fields to a 

decrease in the natural production of melatonin in the human body, a known natural 

anti-cancer agent produced by the pineal gland. The Henshaw Effect hypothesis 

postulates that transmission lines increase the amount of air pollution the human 

body retains when it is inhaled, thus creating a greater likelihood of developing 

cancer and/or other adverse health effects. This study examines high voltages, carried 

by transmission line cables, which have the ability to break up the air and separate 

electrons from individual air molecules (known as ionization). Ionization results in 

the creation of electrically charged particles, referred to as “corona ions.” The 

hypothesis states that the corona ions may be carried away from the immediate 

surrounding area by wind. The corona ions are considered to have a sticking ability 

to cling on to surfaces, similar to a dust particle, and are considered to stick to 

common air pollutants, such as vehicle exhaust pollution (air pollution associated 

with the Project is further discussed in Section 3.2, Air Quality and Climate). The 

theory further postulates that due to the stickiness of the corona ions, the particles 

also have a greater chance of becoming trapped in the human lung upon inhalation. 

The theory postulates that corona ions created by high voltages carried by 

transmission lines stick to air pollution particles and have a greater likelihood of 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

507 

3.20 Safety and Health 

sticking to the inside of the human lung upon inhalation, thus creating a greater 

chance of developing adverse health effects including cancer. 

Implantable Medical Devices 

Implantable medical devices such as pacemakers, defibrillators, neurostimulators, and 

insulin pumps may be subject to interference from strong electric and magnetic fields. It 

is important that their function is not impaired. Most of the research on electromagnetic 

interference and medical devices is related to pacemakers. According to a 2004 EPRI 

report, implantable cardiac devices are much more sensitive to electric fields than to 

magnetic fields. The earliest interference from magnetic fields in pacemakers was 

observed at 1,000 mG, far greater than the magnetic fields associated with high-voltage 

transmission lines. 

Therefore, the focus of research has been on electric field impacts. Possible effects of 

electric fields on pacemakers are: 

• rate increase; 

• erratic pacing; 

• switch to asynchronous pacing or fixed-rate pacing; 

• single beat inhibition (i.e. a single beat is missed by the pacemaker); and 

• total inhibition. 

These effects are usually temporary and normal function of the device resumes once the 

person is removed from the source of EMF. Older unipolar models of pacemakers are 

expected to be relatively more sensitive to electric fields, with interactions starting at 1.2-

1.7 kV/m. Modern bipolar devices are much less susceptible to interactions with electric 

fields, with interaction starting around 6 kV/m (see Figure 3.20-1). 

3.20.1.2. Construction Equipment and Activities 

Heavy equipment typically is used to construct any project involving transmission lines 

and substations. This equipment can include, but is not limited to, machinery for 

cutting vegetation and incidental stump removal, such as stump grinding equipment; 

flatbed trailers; rubber-tired or tracked cranes; rope machines; wire trailers; and wide 

track bombardiers (Otter Tail Power et al., 2008a). This type of equipment often requires 

the use oils and gas for fueling. As a result of these liquids, the potential for releases or 

spills from the equipment is present. The danger associated with a release or spill is that 

the material is toxic to either people and/or the environment, and if the material makes 

its way to a water source. 

Workers also are subject to typical construction related incidents including slips, trips, 

falls, wounds, and traumatic injuries. Additional safety issues relevant to this Project 

may result from the construction of tall structures and working with energized 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

508 

3.20 Safety and Health 

equipment. These types of incidents are generally well understood, and consequently, 

background information is not presented here. 

3.20.2. Direct/Indirect Effects 

This section identifies direct and indirect safety and health effects from the Project 

alternatives. Potential direct effects to safety and health include impacts to humans or 

animals from the following: 

• Electric and magnetic fields (EMFs) 

• Interference with medical devices 

• Stray voltage 

• Construction activities and equipment 

Potential indirect effects to safety and health include impacts resulting from decreased 

power reliability. 

Direct and indirect effects resulting from the Project would be similar for all Route 

Alternatives and Segment Alternatives. Likewise, effects for the Leech Lake Reservation 

and CNF would be similar to those for the entire length of the Route Alternatives and 

are not addressed separately. 

3.20.2.1. No-Build Alternative 

Because no structures would be installed and no existing rights-of-way would be 

expanded or new rights-of-way would be created, the No-Build Alternative would not 

directly impact health and safety in the Study Area. 

In comments to the Commission on the Applicants’ application for a Certificate of Need, 

the Energy Regulatory and Planning (ERP) division of the OES concluded that the NoBuild Alternative would entail maintaining unreliable service in the local area, resulting 

in a deleterious effect to public safety. 

3.20.2.2. Route Alternatives and Segment Alternatives 

Direct and indirect effects resulting from the Project would be similar for all Route 

Alternatives and Segment Alternatives. Direct and indirect effects resulting from the 

Project would include the introduction of electric and magnetic fields from construction 

of the Project. 

Electric fields are attenuated by objects, and are completely shielded by electrically 

conducting materials such as metal, the earth, or the surface of the body. Magnetic 

fields, on the other hand, penetrate most materials. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

509 

3.20 Safety and Health 

In comparison to transmission lines, typical voltage for power distribution lines in North 

America ranges from 4 to 24 kilovolts (kV). Figure 3.20-2 shows the typical EMF levels 

for power transmission lines. Electric field levels directly beneath overhead distribution 

lines may vary from a few volts per meter to 100 or 200 volts per meter. The estimated 

peak electric field level beneath the Project line is 2.6 kV per meter. 

Figure 3.20-2: Typical EMF Levels for Power Transmission Lines 

Source: NIEHS, 2002 

Electric Fields 

Estimates of the anticipated electric fields by structure type are shown in Table 3.20-6. 

Using the Corona and Fields Interactive 1989 Experimental (CFI8X) model developed by 

the Bonneville Power Administration, the Applicants have estimated electric fields for 

the Project. As shown in Table 3.20-6, the Project would have a peak magnitude of 

electric field density of approximately 2.6 kV/m underneath the conductors, 1 meter 

above ground level. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

510 

3.20 Safety and Health 

Table 3.20-6: Estimated Electric Fields (kV/meter) 

Structure type Typical Right-ofWay Width (feet) 

Edge of Right-ofWay (kV/m) Maximum Overall 

(kV/m) 

230 kV Single-Circuit – Single 

Pole Davit Arm 125 0.54 2.15 

230 kV Single-Circuit – 

H-Frame 125 0.84 2.63 

230/115 kV Double-Circuit - 

Single Pole Davit Arm 125 0.96 2.14 

230/69 kV Double-Circuit - 

Single Pole Davit Arm 125 0.93 2.31 

       Source: OES, 2009 

The predicted levels are significantly less than the maximum limit of 8.0 kV/m, which 

has been a permit condition imposed by the Commission in other transmission line 

application permits as well as other state regulations and international guidelines of 

identified in Tables 3.20-1 and 3.20-2. 

The standard was designed to prevent serious hazard from shocks when touching large 

objects, such as tractors, parked under HVTLs of 500 kV or greater. If the electric field 

from a transmission line couples with a conductive object, such as a vehicle or metal 

fence located in close proximity to the line, a voltage would be induced on the 

conductive object. The magnitude of the induced voltage is dependent upon a variety of 

factors including the shape, size, and orientation of the object, as well as weather 

conditions. If a person touches an object carrying the induced voltage, and that object is 

insulated or semi-insulated from the ground, then a small current would pass through 

the person’s body to the ground. This might be accompanied by a spark discharge and 

mild shock – similar to what can occur when a person walks across a carpet and touches 

another grounded person or object (OES, 2009). 

High intensity electric fields also have the potential to interfere with the operation of 

pacemakers and implantable cardioverter/defibrillators. Interference with implanted 

cardiac devices can occur if the electric field intensity is high enough to induce sufficient 

body currents to cause interaction. Modern bipolar devices are much less susceptible to 

interactions with electric fields. Medtronic and Guidant, manufacturers of implanted 

cardiac devices, have indicated that electric fields below 6 kV/meter are unlikely to 

cause interactions affecting operation of most of their devices (OES, 2009). 

Older unipolar designs are more susceptible to interference from electric fields. 

Research has indicated that the earliest evidence of interference was in electric fields 

ranging from 1.2 to 1.7 kV/meter. For older style unipolar designs, the electric field for 

some proposed structure types do exceed levels that may produce interference directly 

under the conductors, but not at the edge of the right-of way. In the unlikely event that 

a pacemaker is affected, the effect is typically a temporary asynchronous pacing 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

511 

3.20 Safety and Health 

(commonly referred to as reversion mode or fixed rate pacing). The pacemaker would 

return to its normal operation when the person moves away from the source of the 

interference (OES, 2009). 

Magnetic Fields 

Peak magnetic field levels can vary considerably depending upon the amount of current 

carried by the line. The estimated peak magnetic field level beneath the Project line is 

260 mG. 

The Applicants have estimated the anticipated magnetic fields for the structures being 

considered for the Project, as shown in Table 3.20-7. As shown in the table, the 

maximum estimated magnetic field, both overall and at the edge of the Project right-ofway (ROW), would occur when a 230 kV single-circuit H-frame structure was used. 

Table 3.20-7: Estimated Magnetic Fields (milligauss) 

Structure type Typical Right-ofWay Width (feet) 

Edge of Right-ofWay (mG) Maximum Overall 

(mG) 

230 kV Single-Circuit – Single 

Pole Davit Arm 125 42.38 160.92 

230 kV Single-Circuit – 

H-Frame 125 61.01 259.25 

230/115 kV Double-Circuit - 

Single Pole Davit Arm 125 27.16 116.84 

230/69 kV Double-Circuit - 

Single Pole Davit Arm 125 33.53 119.57 

 Source: OES, 2009 

Past scientific studies do not show any major risk of health effects from exposure to 

magnetic fields. Policy decisions have continued to support the construction of electric 

infrastructure, taking into consideration the most recent information available about the 

issue (OES, 2009). 

The Project would have a peak magnitude of magnetic field density of approximately 

260 mG directly underneath the conductors with a single-circuit H-frame structure. The 

magnetic field densities drop to approximately 61 mG at the edge of the ROW. These 

levels are significantly less than the magnetic field level standards established by other 

states and by international boards, as shown in Tables 3.20-4 and 3.20-5. These levels are 

also less the magnetic fields typically experienced by users of common household 

appliances such as hair dryers, vacuum cleaners or microwave ovens. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

512 

3.20 Safety and Health 

As discussed in Section 3.20.1.1, there is no evidence of magnetic field interference with 

implantable medical devices at levels associated with high-voltage transmission lines. 

None of the Route Alternatives or Segment Alternatives would have direct or indirect 

effects associated with magnetic fields. 

Stray Voltage 

Stray voltage is a condition that can occur at the electric service entrances to structures 

from distribution lines, not transmission lines. Stray voltage is a natural phenomenon 

that can be found at low levels between two contact points at any property where 

electricity is grounded (WPSC, 2009). More precisely, stray voltage is a voltage that 

exists between the neutral wire of the service entrance and grounded objects in 

buildings. Stray voltage may also occur in enclosed areas between two grounded 

objects. When an animal comes into contact with the earth between two grounded 

objects when a current is passing through the earth, this is commonly known as stray 

voltage. 

As required by code, electrical systems, including farm systems and utility distribution 

systems, must be grounded to earth to ensure continuous safety and reliability. 

Inevitably, some current flows through the earth at each point where the electrical 

system is grounded and a small voltage develops. This voltage is called neutral-to-earth 

voltage. When a portion of this neutral-to-earth voltage is measured between two 

objects that may be simultaneously contacted by an animal, it is frequently called stray 

voltage. Stray voltage is not electrocution, ground currents, EMF, or earth currents 

(OES, 2009). 

Stray voltage has been raised as a concern on some dairy farms because it may impact 

operations and milk production. In rural areas, livestock can receive electrical shocks 

from milking equipment. 

Problems with stray voltage are usually related to the distribution and service lines 

directly serving the farm or the wiring on a farm. In those instances when transmission 

lines have been shown to contribute to stray voltage, the electric distribution system 

directly serving the farm or the wiring on a farm was directly under and parallel to the 

transmission line (OES, 2009). 

Stray voltage may result from a damaged, corroded, or poorly connected wiring or 

damaged insulation. It also can develop on incoming metallic pipes, such as utility 

lines, through induction from transmission lines, if the transmission lines are in parallel 

with the utility lines over some distance (WPSC, 2009). 

The Project, as a transmission line, would not directly create stray voltage situations. To 

the extent that a Route Alternative or Segment Alternative exists on the same set of 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

513 

3.20 Safety and Health 

structures, or parallels distribution lines, the Project may indirectly induce stray voltage 

in certain locations. 

Construction Equipment and Activities 

Due to the use of heavy equipment, worker safety would be an important concern for 

both construction and operation for all of the alternatives. Indirect impacts may result 

from the construction activities including minor and major injuries. These types of 

injuries are associated with any type of construction project. 

In addition, the potential for a release or spill from the construction equipment is 

possible. Equipment would be brought to staging areas for the set-up of the 

transmission lines and substations, and may be used for maintenance activities. 

Compliance with NESC and OSHA regulations, as required by federal law, would 

minimize the potential for construction related injuries. Development of spill 

prevention and response procedures, such as those required in a Spill Prevention 

Control and Countermeasure (SPCC) plan and Storm Water Pollution Prevention Plan 

(SWPPP) under state and federal law, would minimize the likelihood of a release. Thus, 

these types of incidents are expected to be minimal for the construction and operation of 

this Project. 

3.20.3. Mitigation 

The following sections summarize the mitigation measures that could be implemented 

to reduce the potential impacts from construction equipment and activities, and from 

electromagnetic fields and stray voltages during operation. Many mitigation measures 

are incorporated in industry equipment design standards or electrical codes. 

Mitigation measures that are typically included in permits are noted. Cases where 

additional mitigation measures may be incorporated as a permit condition are also 

noted. 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 

3.20.3.1 Construction Equipment and Activities 

Several mitigation strategies are available to minimize the potential for spills or leaks 

from the equipment during construction. The following mitigation measures would be 

included as Best Management Practices in the Applicants’ Storm Water Pollution 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

514 

3.20 Safety and Health 

Prevention Plan (SWPPP), which would be required under the state general permit for 

storm water associated with construction related activities. 

• Frequent inspection of construction equipment to ensure hydraulic systems and 

oil pans were in good condition and free of significant leaks; 

• Requiring portable spill containment kits for each piece of construction 

equipment with the potential to discharge a significant amount of oil to the 

environment; 

• Ensuring that equipment operators would be present at the nozzle at all times 

when refueling was in progress; and 

• Prohibiting the refueling of equipment in wetlands. 

The Applicants have agreed to the above-identified mitigation measures to minimize the 

potential for spills and leaks. In the event of a spill, the source of the spill would be 

identified and contained immediately upon discovery. The spill and contaminated soils 

would be collected, treated, and disposed of in accordance with all applicable federal, 

state, and local requirements. If a significant spill were to occur to surface waters, 

methods to contain and recover released material, such as floating booms and skimmer 

pumps, would be used. Noticeably contaminated soils would be excavated and placed 

on and covered by plastic sheeting in bermed areas. An emergency response contractor 

would be secured, if necessary, to further contain and clean up a severe spill (Otter Tail 

Power et al., 2008a). Cleanup and remediation activities, if required, would be 

conducted to state-specific standards developed and enforced by the Minnesota 

Pollution Control Agency. 

To mitigate impacts to individual workers, Occupational Health and Safety 

Administration (OSHA) standards would be followed for all activities related to the 

construction of the transmission line and substations. 

During construction and operation, the transmission line would be equipped with 

protective devices to safeguard the public if an accident occurs, such as a structure or 

conductor falling to the ground. Protective safety measures to minimize potential health 

and safety effects to workers and the general public are incorporated in the industry 

design standards. The protective devices are breakers and relays located where the 

transmission line connects to the substation. The protective equipment would deenergize the transmission line should such an event occur. In addition, substation 

facilities would be fenced and access limited to authorized personnel as per industry 

practice (Otter Tail Power et al., 2008a). 

3.20.3.2 Electrical Safety 

The National Electrical Safety Code provides standards regarding clearance to ground, 

clearance to crossing utilities, clearance to buildings, strength of materials, and ROW 

widths. In addition, the United States Occupational Safety and Health Administration 

(OSHA) regulates worker safety in both construction and industrial settings and has 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

515 

3.20 Safety and Health 

developed and enforces regulations that are designed to protect workers from potential 

accidents. 

Industry design standards minimize potential impacts that may occur if accidents, such 

as structure failure or the disconnection of a conductor, occurs. Breakers and relays 

located at substations would de-energize a transmission line if an accident occurs. 

Substations typically are fenced, and access is limited to authorized personnel. Proper 

signage provides warning to the public of the risk of coming into contact with the 

energized equipment. 

To ensure that any electric discharge does not reach unsafe levels, the NESC requires 

that any discharge be less than 5 milliamperes (“ma”). 

HVTL permits specify a maximum electric field limit of 8 kV/meter measured 1 meter 

above the ground. The restriction was designed to prevent serious hazards from shocks 

when touching large objects like a bus or combine parked under high voltage 

transmission lines (OES, 2009). 

Impacts from electric fields could be minimized by grounding metal buildings, fences, 

or other large permanent conductive object in close proximity or parallel to the line to 

prevent excessive discharges. Vehicles, which may be parked under or adjacent to 

transmission lines, generally are grounded adequately through their tires. In some 

instances, such as vehicles with unusually old tires or those parked on dry rock, plastic, 

or other surfaces that insulate them from the ground, the vehicle can be grounded by 

attaching a grounding strap to the vehicle that is long enough to touch the earth. 

Minimizing the length of transmission line parallel to or co-located (through the use of 

structures that allow under-building of distribution lines) with distribution or local 

service conductors would minimize the potential for a transmission line to contribute to 

stray voltage. However, co-locating or paralleling existing distribution or local serving 

electric lines may be advantageous for minimizing other potential effects from the 

Project. 

Insulated electric fences used in livestock operations can pick up an induced charge 

from transmission lines. Usually, the induced charge would drain off when the charger 

unit is connected to the fence. When the charger is disconnected either for maintenance 

or when the fence is being built, shocks may result. Potential shocks can be prevented 

by shorting out one or more of the fence insulators to ground with a wire when the 

charger is disconnected or installing an electric filter to ground charges induced from a 

power line, while still allowing the charger to be effective. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

516 

3.21 Noise 

3.21. Noise 

This section provides a summary of the basic principles of noise, briefly summarizes the 

evolution of noise regulation in the United States, presents the current Minnesota noise 

standards and policies, and analyzes potential impacts and mitigation from noise 

produced during the construction and operation of the Project alternatives. 

Methodology and Sources of Information 

The projected noise levels from the transmission lines and substations were 

compared to noise control regulations contained within the Noise Control Act and 

Minnesota Rules, as enforced by the MPCA. Projected noise levels were estimated by 

the Applicants using transmission line noise level algorithms developed by the 

Bonneville Power Administration. 

3.21.1. Affected Environment 

Noise is typically defined as “unwanted sound.” It may be as mild as a general 

nuisance, such as a noise causing distraction or masking desired sounds, or severe 

enough to impede communication, affect behavior, and cause temporary or permanent 

hearing loss. Prior to the 1960s, noise was not officially recognized or regulated in the 

United States. In the National Environmental Policy Act in 1969 and the Noise Control 

Act in the early 1970s, the issue of noise abatement was taken up at the federal level. 

Today, many state, county, and local municipalities have also adopted noise ordinances 

to minimize noise issues at the local level. 

Noise is measured in units of decibels (dB) on a logarithmic scale. Because human 

hearing is not equally sensitive to all frequencies of sound, certain frequencies are given 

more “weight.” The A-weighted decibel (dBA) scale corresponds to the sensitivity 

range for human hearing. Noise levels capable of being heard by humans are measured 

in dBA. A noise level change of 3 dBA is barely perceptible to average human hearing. 

A 5 dBA change (either an increase or a decrease) in noise levels, however, is clearly 

noticeable. A 10 dBA change in noise levels is perceived as a doubling (if it is an 

increase in noise levels) or halving (if it is a decrease) of noise loudness. 

Noise levels also change depending upon the distance from a point or stationary source 

(e.g., factory operation). In general, for every doubling of the distance from the 

stationary source of noise, the sound level decreases by 6 decibels. Thus, a source of 

noise measured at 80 decibels from a distance of 50 feet would produce a sound level of 

74 decibels from 100 feet away. For line sources (e.g., highways), the sound level 

decreases by 3 decibels for every doubling of distance from the source of the sound. 

Table 3.21-1 provides the approximate decibel levels for some common noise sources 

that are experienced by people during everyday living. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

517 

3.21 Noise 

Table 3.21-1: Common Noise Sources and Levels 

Sound Pressure Level (dBA) Typical Sources 

120 Jet aircraft takeoff at 100 feet 

110 Same aircraft at 400 feet 

90 Motorcycle at 25 feet 

80 Garbage disposal 

70 City street corner 

60 Conversational speech 

50 Typical office 

40 Living room (without TV) 

30 Quiet bedroom at night 

 Source: Rau and Wooten, 1980 

The Minnesota noise regulations are administered by the Minnesota Pollution Control 

Agency (MPCA) under Minnesota Rule 7030.0050. This Rule lists various activity 

categories by their Noise Area Classification (NAC).2 NAC 1 refers typically refers to 

areas such as schools, residences, churches, hotels, and correctional institutions. NAC 2 

refers to railroad and airport terminal, retail and commercial business areas. Applicable 

areas under NAC 3 are locations at or near highways, industrial facilities, amusement 

parks, and forestry related activities. 

Table 3.21-2 identifies the established noise standards for daytime (7:00 a.m. to 10:00 

p.m.) and nighttime (10:00 p.m. to 7:00 a.m.) for each classification. The standards are 

expressed as a range of dBA (decibel – A weighted) within a one hour period; L50 is the 

dBA that is exceeded 50 percent of the time within an hour, while L10 is the dBA that is 

exceeded 10 percent of the time within the hour. 

Table 3.21-2: MPCA Noise Standards (dBA – Decibel, A-weighted) 

Daytime Nighttime Noise Area 

Classification 

L50 L10 L50 L10

1 60 65 50 55 

2 65 70 65 70 

3 75 80 75 80 

 Source: MPCA, 2008 

Under the Route Alternative 1, a majority of the route traverses over forest and to a 

lesser extent over shrubland or agricultural areas and would qualify under NAC 3. 

 

2 http://www.pca.state.mn.us/publications/p-gen6-01.pdf
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

518 

3.21 Noise 

Near the more developed areas in and around cities along the route, especially Bemidji, 

Cohasset, Grand Rapids, Deer River, and Zemple, there are residential areas that would 

be subject to the more stringent NAC 1 noise standard. Route Alternative 1 avoids the 

Cass Lake and Bena areas. 

Under Route Alternatives 2 and 4, there would be a higher percentage of areas subject to 

NAC 1 as this route passes through the all the cities in Route Alternative 1, but also 

includes Bena and Cass Lake. 

Under Route Alternative 3, many of the smaller cities impacted along Route 2 would be 

avoided. However, the cities of Tenstrike, Blackduck, Alvwood, and Bowstring would 

be affected. In general, 84% of the route is over forested, shrubland, or cropland which 

would be predominantly classified under NAC 3. 

 

The Leach Lake Reservation and Chippewa National Forest areas are both > 90% 

forested or shrub/cropland, and would fall predominantly under NAC 3 with the 

exception of areas designated for camping and picnicking, which are classified as NAC 

1. 

3.21.2. Direct/Indirect Effects 

This section identifies and discusses potential direct and indirect noise impacts for each 

of the Project alternatives. The direct and indirect effects of the No-Build Alternative are 

presented in Section 3.21.2.1 and noise impacts due to construction and operation of 

Route Alternatives 1 through 3 are discussed in Section 3.21.2.2. 

Potential direct effects from the Project include: 

• Increases in noise during construction of the Project 

• Increases in noise during operation of the Project 

Potential indirect effects from the Project include: 

• Increases in audible traffic noise due to the reduction of tree lines 

3.21.2.1. No-Build Alternative 

Under the No-Build Alternative, the Project would not be constructed. No new 

construction of transmission lines, substations, new access roads, or other Project related 

activities would occur. Under this alternative there would be no direct or indirect noise 

effects. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

519 

3.21 Noise 

3.21.2.2. Route Alternatives 1, 2, 3, and 4 and Segment Alternatives

Noise generated by construction equipment would likely constitute the greatest noise 

impact as a result of the Project. Earth moving machinery, such as bulldozers, or 

supporting equipment, such as air compressors or concrete mixers, would generate 

temporary noise. Table 3.21-3 provides noise levels experienced for typical construction 

equipment within 50 feet from the source of the noise. 

Table 3.21-3: Typical Noise from Construction Equipment (dBA) 

Sound Pressure Level (dBA) Typical Sources 

76 Pump 

80 Backhoe 

81 Air Compressor 

83 Mobile Crane 

85 Concrete Mixer 

88 Jack Hammer 

89 Paver 

98 Rock Drill 

101 Pile Driver 

Source: FTA, 2006 

Operational noise impacts could potentially occur along the transmission lines and at 

the substations. Transmission conductors and transformers at substations produce 

audible noise levels depending upon weather conditions and their design (e.g., 

conductor conditions and voltage levels). Table 3.21-4 provides expected noise levels 

under varying weather conditions. In general, under dry weather conditions, 

transmission lines are not expected to emit an audible noise above rural or residential 

background levels (30-45 dBA 50 feet from the source). As described in Table 3.21-4, the 

audible noise of a 230 kV line during fair weather would likely be very low (15-20 dBA) 

and seldom noticeable, even when standing directly under the line. 

However, in foggy, damp, rainy, or snowy weather conditions, power lines typically 

emit a subtle crackling sound due to the small amount of electricity ionizing the moist 

air near the wires. During periods of heavy rain, the audible noise of the transmission 

line more than doubles when the conductor is wet. However, the sound made by heavy 

rain (55-60 dBA) would be greater than that produced by the transmission lines (40-45 

dBA). During light rain, dense fog, snow, and other times when there is abundant 

moisture in the air, transmission lines could produce audible noise levels greater than 

rural background levels but similar to household background levels. During dry 

weather, audible noise from transmission lines could produce nearly imperceptible, 

sporadic crackling sounds. 

The audible noise levels of a transmission line also depend significantly upon the line’s 

geometry and operating voltage. The audible noise of a 230 kV line during fair weather 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

520 

3.21 Noise 

would likely be very low and seldom noticeable, even when standing directly under the 

line. 

Table 3.21-4 provides estimates for expected noise measurements at the edge of the 

ROW for different structure types. These estimates were calculated by the Applicants 

using transmission line noise level algorithms developed by the Bonneville Power 

Administration. All of the noise levels shown in Table 3.21-4 are below the lowest 

MPCA nighttime L50 limit of 50 dBA for Noise Area Classification 1. Transmission line 

structures used for Route Alternatives 1, 2, 3, and 4 would be similar and primarily 

consist of H-frame wood structures (Otter Tail Power et al., 2008a). As such, there 

would be no differences in the expected noise levels for Route Alternatives 1, 2, 3, and 4. 

Table 3.21-4: Transmission Lines - Expected Noise Calculations 

Noise at Edge of ROW (dBA) MPCA Noise Standards 

Classification Area 1 

Voltage Type Fair 

Conditions 

Wet 

Conditions 

L5 

Wet 

Conditions 

L50 

Daytime 

L50 

Daytime 

L10 

Nighttime 

L50 

Nighttime 

L10 

Single 

Pole 

Davit 

Arm 

16.5 45.0 41.5 60 65 50 55 

230 kV 

HFrame 15.4 43.9 40.4 60 65 50 55 

230 kV / 

115 kV 

Doublecircuit 

Single 

Pole 

Davit 

Arm 

17.6 46.1 42.6 60 65 50 55 

230 kV/ 69 

kV 

Doublecircuit 

Single 

Pole 

Davit 

Arm 

17.3 45.8 42.3 60 65 50 55 

Source: Otter Tail Power et al., 2008a 

The expected noise at the edge of the ROW is compared to MPCA Noise Standards for 

Classification Area 1, the most stringent category, in Table 3.21-4. For all Project 

transmission line designs and all Route Alternatives, transmission line noise impacts at 

the edge of the ROW would meet the MPCA noise standards. 

In the case of all route alternatives, an indirect effect from noise would be the loss of 

existing tree lines that act as sound barriers for roadway noise. In cases where the 

existing tree cover would parallel an existing roadway and was removed during 

construction, residents located immediately along the Project ROW could experience an 

increase in noise from roadway traffic. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

521 

3.21 Noise 

Because the Project would not be adding any transformers to either the Wilton or 

Boswell substations, no additional noise impacts are estimated from substation 

improvements to those sites. Depending upon the alternative selected, the Cass Lake 

Substation may either be expanded or a new substation may be constructed. In either 

scenario for the Cass Lake Substation, a 230/115 kV transformer would be installed. 

Transformers produce noticeable noise when active. Noise levels are highly dependent 

upon the size and voltage level of the transformer. Transformers associated with 

substation expansion or construction would be designed to meet National Electrical 

Manufacturers Association (NEMA) standards. Transformers rated greater than 70 

megavolt-amperes (MVA), would be designed to operate at the NEMA TR-1-1993 (2000) 

standard for noise, which limits the maximum sound level (from a distance of 1 foot 

from the wall surfaces of a transformer) to 77 dBA during operation, 79 dBA with stage 

1 fans running, and 80 dBA with stage 2 fans running (Elliot et al., 1997). Transformers 

rated less than or equal to 70 MVA would be designed to operate at maximum sound 

levels 10 dBA below the NEMA TR-1 standards. The maximum sound level from 

transformers rated at 70 MVA or less would be 67 dBA during operation, 69 dBA with 

stage 1 fans running, and 70 dBA with stage 2 fans running. All maximum sound levels 

assume that the transformer is operating at optimal conditions with the top oil 

temperature rise 65 degrees Celsius above the ambient air, and equipment (e.g., fans, 

pumps, and filters) operating to manufacturer’s specifications (Otter Tail Power et al., 

2009). 

Corona discharges along transmission lines are also a form of electrical interference 

caused when small electronic discharges from energized conductor electric fields ionize 

nearby air. Corona discharges are the result of conductor irregularity, which may 

consist of physical damage, dust buildup, or water buildup. The ionization of air results 

in an energy loss that creates audible noise, radio noise, light, heat, and small amounts 

of ozone. The extent of electrical interference from corona discharges on a 

communication signal is dependent upon the strength of the communication signal and 

the magnitude of the radio frequency noise. Typically, the strength of the radio or 

television broadcast signal within a broadcaster’s primary coverage area is strong 

enough to prevent interference from radio noise. Radio noise has the ability to cause 

interference with all radio reception, although it is noted that amplitude-modulated 

(AM) broadcast bands, 535 to 1,605 kHz and those stations broadcasting below 1,000 

kHz are mostly affected (OES, 2009). The FCC has stated that metal structures 

constructed within 0.5 mile of an omnidirectional AM antenna could result in 

interference with the AM broadcasting station. Frequency-modulated (FM) stations are 

rarely affected by corona discharges caused from transmission lines because radio 

frequency noise decreases in magnitude with increasing frequency. Similarly, 

interference with cellular phones is rare due to the high frequencies used. Digital 

reception is typically more tolerant of noise. Because television is broadcasted digitally, 

interference with television reception could be minimal. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

522 

3.21 Noise 

Route Alternative 1 and Associated Segment Alternatives 

The location of construction noise impacts from Project construction would vary by 

Route and Segment Alternatives. Route Alternative 1 and its associated Segment 

Alternatives pass farther south of the cities of Cass Lake and Bena, relative to Route 

Alternative 2. As such, anticipated construction noise impacts to Cass Lake and Bena 

from Route Alternative 1 would be less than those anticipated for Route Alternatives 2 

and 4. All four build alternatives begin near the city of Bemidji, where construction 

noise impacts would be similar for Route Alternatives 1, 2, 3, and 4. 

Route Alternative 1 would include construction of a new substation west of Cass Lake. 

The nearest residence to the proposed location for a new substation is approximately 

3,150 feet southwest of the new substation location. Because of this distance, no noise 

impacts to sensitive receptors are expected from construction or operation of the new 

substation. If Segment Alternatives A and D are used in the Cass Lake area, no new 

substation would be constructed and there would be no associated noise impacts. 

Route Alternative 2 and Associated Segment Alternatives 

Route Alternative 2 and its associated Segment Alternatives would be located within the 

cities of Cass Lake and Bena. Construction noise impacts to these areas would be the 

greatest for Route Alternatives 2 and 4. All four build alternatives begin near the city of 

Bemidji, where construction noise impacts would be similar for Route Alternatives 1, 2, 

3, and 4. 

Route Alternative 2 would include the expansion of the existing Cass Lake Substation 

through the construction of a new 230/115 kV transformer. The substation is located 

approximately 354 feet south of the nearest residential home. It is anticipated that 

temporary noise effects would be experienced during construction by residences in 

proximity of the Cass Lake Substation. During operation and maintenance, noise 

impacts would be similar to those already experienced by receptors from the existing 

Cass Lake Substation. No major incremental changes in operational noise, as 

experienced by the closest receptor, are expected from operation of the transformer. 

Route Alternative 3 and Associated Segment Alternatives 

Route Alternative 3 and its associated Segment Alternatives would be located within or 

near the cities of Tenstrike, Blackduck, and Deer River. Under Route Alternative 3, 

populations in these areas would experience temporary construction-related noise 

impacts. All three alternatives begin near the city of Bemidji, where construction noise 

impacts would be similar, with some mild variation by route. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

523 

3.21 Noise 

There are no proposed new substations or substation improvements for Route 

Alternative 3 (Otter Tail Power et al., 2008b). As such, there would be no noise impacts 

associated with substation construction or operation. 

Route Alternative 4 and Associated Segment Alternatives 

Route Alternative 4 and its associated Segment Alternatives would be located within 

the cities of Cass Lake and Bena. Construction noise impacts to these areas would be 

the greatest for Route Alternatives 2 and 4. All four build alternatives begin near the 

city of Bemidji, where construction noise impacts would be similar for Route 

Alternatives 1, 2, 3, and 4. 

Route Alternative 4 would include the expansion of the existing Cass Lake Substation 

through the construction of a new 230/115 kV transformer. The substation is located 

approximately 354 feet south of the nearest residential home. It is anticipated that 

temporary noise effects would be experienced during construction by residences in 

proximity of the Cass Lake Substation. During operation and maintenance, noise 

impacts would be similar to those already experienced by receptors from the existing 

Cass Lake Substation. No major incremental changes in operational noise, as 

experienced by the closest receptor, are expected from operation of the transformer. 

3.21.3. Mitigation 

The HVTL permit issued by the Commission would include a condition that requires the 

Project to meet Minnesota noise standards. Noise impacts associated with construction 

could be mitigated by limiting the hours of work to daytime hours. Heavy equipment 

used in construction could be equipped with sound attenuation devices, such as 

mufflers, to minimize the daytime noise levels. The primary mitigation measure for 

reducing noise from HVTLs is to route the lines away from sensitive noise receptors to 

the extent possible. 

Noise impacts from substations could be mitigated through substation design. In some 

cases, additional land beyond that required for the footprint of the substation may be 

acquired to ensure sufficient setbacks from sensitive noise receptors. Other design 

measures include layout and landscaping to increase noise attenuation to nearby 

receptors. Low noise transformers could be used to reduce noise generation from 

substation equipment. 

 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

524 

4. Cumulative Effects 

4. Cumulative Effects 

 This section identifies existing and proposed projects within the vicinity of the Study 

Area that, along with the Project build alternatives, may result in cumulative effects on 

existing resources. Projects identified and discussed herein were identified through 

public comments received during the scoping period for this Project and through 

information submitted by the Minnesota Department of Transportation (MnDOT) and 

Chippewa National Forest (CNF). 

The Council on Environmental Quality (CEQ) defines cumulative effects as “the impact 

on the environment which results from the incremental impact of the action when added 

to other past, present, and reasonably foreseeable future actions regardless of what 

agency (Federal or non-federal) or person undertakes such other actions” (40 CFR § 

1508.7). In 1997, the CEQ published Considering Cumulative Effects under the National 

Environmental Policy Act as a comprehensive guidance document for cumulative 

analyses. The methodologies recommended in this guidance document were used by 

the EPA in their Final Protocol to Assess Expanded Cumulative Effects on Native 

Americans (2007) and were recommended by the Minnesota Environmental Quality 

Board (MEQB) as providing “the best source of guidance on cumulative impacts.” 

Therefore, the 1997 CEQ guidance document was used in this EIS to assess the potential 

cumulative effects of the Project in combination with other past, present, and reasonably 

foreseeable future actions in the vicinity of the Study Area. 

This section is intended to provide an overall, synergistic analysis of the system-level 

cumulative effects resulting from the combined influence of the resource-specific effects 

to the Study Area and surrounding vicinity. 

4.1. Projects Evaluated 

The following projects were evaluated for the potential to result in cumulative effects 

with the Project build alternatives: Enbridge Energy pipeline expansions; MnDOT 

highway expansion; St. Regis Superfund Site; U.S. Forest Service projects; and utility 

upgrade projects. Table 4-1 provides a summary of the characteristics for each project 

considered in this cumulative analysis, to the extent that the information was readily 

available from existing sources, which is then followed by a brief narrative description 

about each project. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

525 

4. Cumulative Effects 

Table 4-1: Project Characteristics for Cumulative Effects Analysis

Project Characteristics 

Bemidji-Grand Rapids Transmission Line 

Enbridge – Alberta Clipper Pipeline 

Enbridge – Southern Lights Pipeline 

MnDOT – MN 197/U.S. 71 Widening 

USFS - Various Activities 

St. ReSuperSite 

Location (counties) 

Beltrami, Hubbard, Cass, and Itasca 

Through northern ND, MN, and WI: within the BGR Project area only - Beltrami, Hubbard, and Cass 

From Clearbrook, MN to Superior, WI; within the B-GR Project area only - Beltrami, Hubbard, and Cass 

Beltrami Beltrami, Cass, 

and Itasca 

Cass, part of of Cas

Length/Area 68-112 miles 327 miles (68-75 miles 

near B-GR ROW) 

175 miles (68-75 miles near B-GR ROW) 

6 miles Project 

management areas included in the cumulative effects analysis encompass 471,622 acres 

125 ac(Route Alternand 4 within adjacesouthethe sit

ROW Width/Area 

125 feet wide 75 feet wide of new ROW 

(140 feet temporary for construction), existing ROW up to 125 feet wide 

(part of Alberta Clipper) 70 feet wide of new 

road area, 50 feet wide of new ROW, reconstruct as a 4-lane divided highway 

n/a n/a 

Construction Period 

2010 – 2011 8 to 10 months total, 2 to 

3 months per segment, begin summer 2009 (4 spreads) and completed in early 2010 (2 spreads) 

8 to 10 months total, 2 to 3 months per segment, begin summer 2009 (4 spreads) and completed in early 2010 (2 spreads) 

2010 - 2011 unknown Ongoi

testing indicacleanuin 198

Construction Workforce 

75 300 (part of Alberta Clipper) unknown unknown unkno

Source: Enbridge Energy, 2009; Otter Tail Power et al., 2008; Otter Tail Power et al., 2010b; USFS 2008a-2008g, 2009a-2009c, and no date.
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

526 

4. Cumulative Effects 

4.1.1. Enbridge Energy Pipeline Expansions 

Enbridge Energy is constructing two new pipelines within the Study Area. The projects, 

referred to as the Alberta Clipper Project and Southern Lights Diluent Project, are 

expected to be co-located or adjacent to the existing Enbridge pipeline. 

The Alberta Clipper Project is an approximately 326.9-mile pipeline that would 

transport crude oil from the US-Canada border through 15 counties in North Dakota, 

Minnesota, and Wisconsin (USDS, 2009). Approximately 68 to 74.8 miles of the Alberta 

Clipper pipeline would be located in proximity to Alternatives 1, 2, and 4 of the BemidjiGrand Rapids Line. Route Alternative 3 would be located in the vicinity of the 

Enbridge pipeline at its western start near Bemidji and its eastern terminus near Deer 

River, although this Route Alternative would largely avoid the Enbridge ROW for 

much of its length. The Southern Lights Diluent Project is a 175-mile long, 20-inch 

diameter underground pipeline proposed for co-construction with the Alberta Clipper 

Project. 

Enbridge estimates a lay rate for the pipeline of 3,000 to 7,500 feet per day, dependent on 

conditions along the alignment. No more than 14,000 feet of the alignment would be 

open trench at any one time on each pipeline construction spread. As a result, the trench 

typically would be open no more than 2 days at a specific location, weather permitting. 

The pipelines are buried at least 36 inches deep (depth of soil over the pipelines) and 

could be as much as 54 inches deep, depending upon agreements with the agencies 

involved. 

The Alberta Clipper and Southern Lights Diluent pipeline routes closely follow the 

existing Enbridge pipeline right-of-way (ROW). As such, the affected environment and 

potential effects would be consistent with those described throughout the Final EIS for 

the existing Enbridge pipeline. Required mitigation measures would be consistent with 

those required for locating the Project near the existing Enbridge pipeline, including 

maintaining minimum distances from the pipelines to avoid electrical interference and 

allow for maintenance of the pipeline or transmission line if needed. 

Project Route Alternative 2 generally follows the existing U.S. Highway 2 ROW, much of 

which parallels the ROWs for four existing and two new Enbridge pipelines from Cass 

Lake to the Boswell Substation for a total of 48.1 miles. Portions of Route Alternatives 1 

and 4 would also follow the Enbridge pipeline ROW. The existing Enbridge ROWs 

vary in width up to 125 feet. The ROW required for the two new pipelines is up to 75 

feet wide, which would result in a total Enbridge ROW of 200 feet. If the Project is 

located adjacent to the Enbridge ROWs, total combined ROW width for the Project and 

pipelines would be 325 feet. 

Construction of the two new Enbridge pipelines is complete within the Study Area. 

As such, there are no anticipated construction-related compounding effects from the 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

527 

4. Cumulative Effects 

Enbridge project and the transmission line Project. However, construction-related 

effects would be prolonged for the Study Area. Where the Enbridge projects required 

new ROW in addition to the existing cleared Enbridge ROW, the project resulted in 

additional loss of wetlands, agricultural land and prime farmlands, forests, vegetation, 

and wildlife habitat in or near the Project Study Area. 

4.1.2. MnDOT Roadway Expansion 

MnDOT is reconstructing MN Highway 197/US Highway 71 as a four-lane divided 

highway on the south side of Bemidji (State Project 0409-12). Construction began on 

June 14, 2010 and is expected to end June 15, 2011. The highway improvement project 

involves widening the existing highway by an estimated 70 feet of new road area and 

approximately 40 to 50 feet of new ROW along the east side of existing MN Highway 

197/US Highway 71 (Frisco, 2008). The project extends approximately 6 miles in 

length. The project includes additions of right and left turn lanes, increasing capacity 

from two to four lanes over a 3 mile section, and constructing a new bridge over U.S. 

Highway 2. Route Alternatives 1, 2, 3, and 4 cross MN Highway 71 near the bridge 

over U.S. Highway 2. 

As discussed in Section 3.19.1 of the EIS, MnDOT has identified at least two 

additional long-term improvements along US Highway 2. No additional MnDOT 

projects are evaluated in this document, as timelines and final design information is 

not available for projects other than the MN Highway 197/US Highway 71 project. 

Construction of the Project during roadway expansion would result in compounding 

effects on a number of resource areas. Similar to the Enbridge projects, if the roadway 

expansion projects required new easements, the project could result in additional loss of 

wetlands, agricultural land and prime farmlands, forests, vegetation, and wildlife 

habitat. Although typical, these effects would be greater in non-developed areas not 

already developed with a highway. 

4.1.3. U.S. Forest Service Projects 

A number of existing and proposed U.S. Forest Service projects are located within the 

CNF, as shown in Figure 4.1-1 (USFS, 2009). The following provides a brief summary of 

the existing and proposed U.S. Forest Service projects in the CNF that are included in 

the cumulative effects analysis for the Project.

The areas within the CNF surrounding Project Alternatives 1, 2, and 4 and along 

Segments N and O (see Figure 4.1-1), are now mainly used for timber production. There 

are a number of undefined future projects identified along Segment N and north of 

Project Alternative 2. Remaining undefined future projects are located north of Project 

Alternative 2, east of Segment O and just past Lake Winnibigoshish. Project Alternative 

3 has a number of undefined, unaccomplished projects along the route located north of 

the Spring Lake area. The following past, present, and reasonably foreseeable U.S. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

528 

4. Cumulative Effects 

Forest Service projects, provided by the Chippewa National Forest, were included in 

the cumulative effects analysis. 

4.1.3.1. Cuba Hill Resource Management Project 

The Cuba Hill Resource Management Project (RMP) was developed to implement the 

Land and Resource Management Plan for the Chippewa National Forest (2004). The 

Cuba Hill RMP includes management activities needed to move existing vegetation 

conditions towards the objects and desired conditions for fire, forest vegetation, 

wildlife habitat, and large forest patches identified in the Forest Plan (USFS, 2008d). 

The Cuba Hill RMP area encompasses approximately 46,756 total acres, including 

30,465 acres of National Forest System (NFS) lands. The project is located entirely 

within the boundaries of the Leech Lake Reservation and Cass County. An 

Environmental Assessment was prepared for the Cuba Hill RMP in September 2008. 

Table 4-2 summarizes selected effects of the Cuba Hill RMP. 

Table 4-2: Approximate Acres/Miles/Sites Affected on NFS Land by Cuba Hill RMP 

Effects from Cuba Hill RMP 

Acres Harvested 1,498 

Volume Harvest (in CCF) 13,146 

Acres of Conversion of Forest Type 214 

Miles of Roads Decommissioned and Closed 17.42 

Acres of Prescribed Burn and Fuels 

Activities 

645 

Acres of Wildlife Opening Maintenance 13 

Number of Culverts Repaired 19 

Acres of Partial Removal within High 

SIO/Highway 2 Corridor 

37 

Acres of Vegetative Management within the 

LLBO’s Area of High Interest 

2,033 

Source: USFS 2008b; USFS 2008d 

A Finding of No Significant Impact (FONSI) for the Cuba Hill Resource Management 

Plan was issued in November 2008. 

4.1.3.2. Lower East Winnie Vegetation Management Project 

The Lower East Winnie Vegetation Management Project (VMP) was developed to 

implement the Land and Resource Management Plan for the Chippewa National 

Forest (2004). An Environmental Assessment of the Lower East Winnie VMP was 

published June 2008. The purpose of the Lower East Winnie VMP is to 1) manage 

hazardous fuel levels; 2) move towards achieving Dry-mesic Pine-Oak Landscape 

Ecosystem objectives for vegetation composition, age class distribution, and tree 

species diversity; and 3) provide timber products consistent with the 2004 Forest Plan 

(USFS, 2008e). 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

529 

4. Cumulative Effects 

The Lower East Winnie VMP area encompasses approximately 127,000 total acres, 

including 49,600 acres of National Forest System (NFS) lands. The project is located 

within the Leech Lake Reservation and Itasca and Cass counties. Table 4-3 

summarizes selected effects of the Lower East Winnie VMP. 

Table 4-3: Approximate Acres/Miles/Sites Affected on NFS Land by Lower East Winnie VMP 

Effect from Lower East Winnie VMP 

Acres Harvested 3,142 

Volume Harvest (in CCF) 32,000 

Acres of Conversion of Forest Type 741 

Acres of Broadcast Burning 560 

Acres of Fuel Pile and Pile Burning 10 

Acres of Removal of Fuels from Along 

Roads 

341 

Miles of Roads Decommissioned/Closed 13.6 

Number of Openings Receiving Maintenance 

and Plantings 

87 

Number of Wildlife Impoundments to be 

Decommissioned 

2 

Source: USFS 2008c; USFS 2008e 

A Finding of No Significant Impact (FONSI) for the Lower East Winnie Vegetation 

Management Plan was issued in September 2008. 

4.1.3.3. Boy River 2 Resource Management Project 

The Boy River 2 Resource Management Project (RMP) was developed to implement 

the Land and Resource Management Plan for the Chippewa National Forest (2004). 

An Environmental Assessment of the Boy River 2 RMP was published July 2009. The 

RMP includes timber harvest and non-harvest management activities, prescribed 

burns, seeding/planting, riparian improvements, road repair and removal, culvert 

repair, and invasive species treatment (Otter Tail Power et al., 2010). The Boy River 2 

RMP area encompasses approximately 124,717 total acres, including 43,013 acres of 

National Forest System (NFS) lands. The project is located within the Leech Lake 

Reservation and Cass County. Table 4-4 summarizes selected effects of the Boy River 

2 RMP. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

530 

4. Cumulative Effects 

Table 4-4: Approximate Acres/Miles/Sites Affected on NFS Land by Boy River 2 RMP 

Effect from Boy River 2 RMP 

Acres Harvested 2,997 

Volume Harvest (in CCF) 31,212 

Acres of Seeding/Planting in Openings 10 

Acres of Wildlife Opening Maintenance 170 

Acres of Riparian Nonstructural 

Improvements 

7 

Miles of Roads Removed 22 

Miles of Roads Removed that are Already 

Closed to OHVs 

14 

Number of Culvert Repair to Removal 5 

Acres to Construct One Enclosure 1 

Miles of Temporary Roads Constructed 0.6 

Source: USFS 2009c 

A Finding of No Significant Impact (FONSI) for the Boy River 2 Resource 

Management Project was issued in 2009. 

4.1.3.4. Upper East Winnie Vegetation Management Project

The Upper East Winnie Vegetation Management Project (VMP) was developed to 

implement the Land and Resource Management Plan for the Chippewa National 

Forest (2004). An Environmental Assessment of the Upper East Winnie VMP was 

published June 2009. The purpose of the Upper East Winnie VMP is to 1) move 

towards achieving Dry-mesic Pine-Oak Landscape Ecosystem objectives for 

vegetation composition and age class distribution; 2) move toward restoring 

conditions more representative of native vegetation communities; 3) maintain or 

enhance gathering opportunities; 4) maintain or enhance large mature upland patches; 

5) provide timber products in a manner consistent with the Forest Plan; 6) manage 

hazardous fuel levels; and 7) provide wildlife enhancement projects. 

The Upper East Winnie VMP area encompasses approximately 46,000 total acres, 

including 34,500 acres of National Forest System (NFS) lands. The project is located 

within the boundaries of the Leech Lake Reservation and Itasca County. Table 4-5 

summarizes selected effects of the Upper East Winnie VMP. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

531 

4. Cumulative Effects 

Table 4-5: Approximate Acres/Miles/Sites Affected on NFS Land by Upper East Winnie VMP 

Effect from Upper East Winnie VMP 

Acres Harvested 2,375 

Volume Harvest (in CCF) 18,900 

Acres of Forest Conversion 370 

Acres of Planting/Seeding 422 

Acres of Fuel Treatments 454 

Acres of Prescribed Burning 516 

Miles of Roads Decommissioned/Closed 12.1 

Acres of Openings Maintained 21 

Acres Harvested in Area of High Interest to 

LLBO for Gathering 

1,355 

Source: USFS 2008g; USFS 2009a 

A Finding of No Significant Impact (FONSI) for the Upper East Winnie Vegetation 

Management Project was issued in August 2009. 

4.1.3.5. Continental Divide Resource Management Project 

The Continental Divide Resource Management (CDRM) Project was developed to 

implement the Land and Resource Management Plan for the Chippewa National 

Forest (2004). An Environmental Assessment of the project was published on March 

26, 2009. The project includes objectives for the following areas: 

• Meeting landscape ecosystem objectives in the Forest Plan for Decade 2 and 

thereby providing wood fiber to the local community and other forest 

products for traditional gathering; 

• Maintaining suitable wildlife habitats; 

• Maintaining conditions suitable for social uses of the CRDM area; 

• Protecting soil and water resources; and 

• Managing an efficient transportation system. 

The CDRM project area encompasses approximately 93,481 total acres, including 

36,946 acres of National Forest System (NFS) lands. The project is located between 

Blackduck, Alvwood, and Kitchi Lake, and encompasses portions of Beltrami and 

Itasca counties. Table 4-6 summarizes selected effects of the CDRM project. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

532 

4. Cumulative Effects 

Table 4-6: Approximate Acres/Miles/Sites Affected on NFS Land by CDRM Project 

Effect from CDRM Project 

Acres Harvested 2,620 

Volume Harvest (in CCF) 23,472 

Acres of Seeding 446 

Acres of Planting Harvested Stands 156 

Acres of Forest Conversion 353 

Miles of Temporary Roads 3.3 

Miles of Road Decommissioning/Deleting 11 

Miles of Road Additions to System 7.6 

Miles of Trail Additions to System 0.4 

Miles of Roads being Gated or Bermed 2.5 

Changes to OHV Use Map/Roads Numerous 

Acres of Planting Wildlife Openings 69 

Acres of Maintaining Wildlife Openings 234 

Acres of Letting Wildlife Openings 

Regenerate Naturally to Mixed Northern 

Hardwoods 

63 

 Source: USFS 2009b 

4.1.3.6. NNIS Plant Management Program 

A Non-Native Invasive Species Management Program is under development by the 

U.S. Forest Service for the Chippewa National Forest. An Environmental Assessment 

has not yet been prepared for the program. The program would identify weed control 

treatments to be used along access roads, utility ROW, and other project areas for 

undesirable plants. The program would be conducted over a 10 year time frame and 

include mechanical, chemical, or manual weed control techniques. 

4.1.3.7. Lydick Resource Management Project 

The Lydick Resource Management Project (RMP) was developed to implement the 

Land and Resource Management Plan for the Chippewa National Forest (2004). The 

project includes objectives for the following areas: 

• Meeting landscape ecosystem objectives in the Forest Plan for Decade 2 and 

thereby providing wood fiber to the local community and other forest 

products for traditional gathering; 

• Maintaining suitable wildlife habitats; 

• Maintaining conditions suitable for social uses of the LRDM area; 

• Protecting soil and water resources; and 

• Managing an efficient transportation system. 

The Lydick RMP area encompasses approximately 31,808 total acres, including 24,994 

acres of National Forest System (NFS) lands. The project is located entirely within 

the boundaries of the Leech Lake Reservation and Cass County. An Environmental 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

533 

4. Cumulative Effects 

Assessment of the project was published in August 2008. Table 4-7 summarizes 

selected effects of the Lydick RMP. 

Table 4-7: Approximate Acres/Miles/Sites Affected on NFS Land by Lydick RMP 

Effect from Lydick RMP 

Acres Harvested 3,620 

Volume Harvest (in CCF) 31,414 

Acres of Forest Conversion 905 

Miles of Temporary Roads 0.1 

Miles of Road Decommissioning/Deleting 14.5 

Miles of Road Additions to System 9.5 

Miles of Roads Decommissioned that Could 

Limit Access to Traditionally Gathered 

Resources 

3.9 

Acres of Prescribed Burning 1,427 

Acres of Maintaining Wildlife Openings 74 

Acres of Letting Wildlife Openings 

Revegetate 

13 

 Source: USFS 2008a; USFS 2008f; USFS, No date. 

A Finding of No Significant Impact (FONSI) was issued for the Lydick Resource 

Management Plan. 

4.1.3.8. North Winnie Semi-private Non-motorized Area Boundary Change 

and Trail Project 

The North Winnie Semi-private Non-motorized Area Boundary Change and Trail 

Project was proposed to adjust the boundary of the North Winnie Semi-private nonmotorized area south to FR 2171, thereby adding 1,860 acres to the area. In addition, 

the project includes the construction of the following resources: approximately 4.32 

miles of new trails; seven new parking areas at trailheads; four hitching posts for dogsled teams; seven new trailhead signs; five new trailhead gates; and two new 

dispersed campsites (USFS, 2009d). The development of trails would require seven 

wetland crossings by boards and bridges totaling 7,500 square feet. A total of 7,740 

square feet of wetland would be restored under the project through road 

decommissioning (USFS, 2009d). The area is located within Itasca County. 

4.1.4. St. Regis Superfund Site 

The St. Regis Paper Company Superfund Site is located on approximately 125 acres in 

the city of Cass Lake, within the boundaries of the Leech Lake Reservation and adjacent 

to Chippewa National Forest lands. A portion of the site is located within the 1,000-footwide route identified for Project Alternatives 2 and 4. The Applicants have proposed an 

expanded route width (Segment F) in the Cass Lake area, which could allow placement 

of the 125-foot ROW to the south of the administrative boundaries of the St. Regis Site, 

largely avoiding interference with the site. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

534 

4. Cumulative Effects 

The St. Regis Site was used for wood treatment between the 1950s and 1980s. Historic 

operations included the pretreatment of lumber with creosote, pentachlorophenol (PCP), 

and copper chromium arsenate. Wastewater generated from the process was discharged 

to on-site disposal ponds. Starting in 1957, wastewater and sludge from the disposal 

ponds was removed from the site and burned at the city dump. The site was placed on 

the National Priorities List (NPL) for contamination of soil and groundwater with 

dioxin, pentachlorophenol, and polycyclic aromatic hydrocarbons. 

Remediation at the St. Regis Site has been ongoing since 1984. Remedial actions 

completed in the 1980s and 1990s included the excavation of soil and sludge that was 

placed in an on-site vault, and operation of a groundwater extraction and treatment 

system. In 2001 and 2003, soil sampling revealed dioxin contamination that had not 

been addressed during earlier remediation activities. Over 4,000 tons of contaminated 

soils were removed from the site between 2004 and 2006. Additional monitoring wells 

were installed at the site in 2008 to investigate the discovery of a tax plume. Current 

contaminants of concern are arsenic, benzo(a)pyrene equivalents, dioxins, and 

polycyclic aromatic hydrocarbons (PAHs) present as dust in residential houses 

surrounding the area. A feasibility study was completed for the site in 2009. A public 

hearing on the study is expected for 2010, after which the EPA would determine the 

remedial action plan for additional cleanup of the site. 

Project Alternatives 2 and 4 could potentially be located within or adjacent to the St. 

Regis Superfund Site. Alternatives 1 and 3 are not located near the St. Regis Site. The 

Applicants have proposed an expanded route width (Segment F) in the Cass Lake area, 

which would allow placement of the 125-foot ROW to the south of the largest portion of

the St. Regis Site. However, Segment Alternative F would cross the St. Regis Site in 

two locations near its western and eastern boundaries. Along the western leg of 

Segment Alternative F, surficial soils in the St. Regis Superfund Site have elevated 

levels of dioxin, pentachlorophenol, and PAHs (USEPA, 2010). On the eastern leg of 

Segment Alternative F, a contaminated groundwater plume is present (USEPA, 2010). 

If the ROW is located within the St. Regis Site, construction may interfere with 

remediation activities. Disruption of soil or groundwater during pole placement could 

result in new contamination or health and safety concerns at the site. 

4.1.5. Utility Upgrade Projects 

The Applicants have proposed two utility upgrade projects in the Study Area, 

consisting of a thermal upgrade project for approximately 21 miles of existing 115 kV 

transmission lines in the Study Area and construction of a Nary Breaker Station at the 

existing Nary Junction. 

Independent of the construction of the Project and the Route Alternative selected, the 

Applicants have stated that the existing 115 kV transmission lines between Cass 

Lake–Nary and Nary–Helga–Bemidji require improvements to increase the thermal 

limit of the lines. Increasing the thermal limit will allow the lines to handle increased 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

535 

4. Cumulative Effects 

thermal flows during contingencies. The Applicants have stated that these 

improvements would eventually be warranted, most likely in response to load 

growth, at which time the Applicants would obtain the necessary regulatory and 

environmental review of the improvements. 

Two methods would be use to increase the thermal limit of the existing lines under 

the proposed thermal upgrade project. For the Cass Lake-Nary 115 kV line, the 

existing 115 kV conductor would be replaced with a larger 115 kV conductor capable 

of handling increased thermal flows. The larger conductor would not require 

replacement of the pole structures, but could require additional bracing and guying 

(Weiers, 2010). For the Nary-Helga-Bemidji 115 kV line, an increase in the existing 

conductor-to-ground clearance is required to increase the thermal limit. To increase 

the thermal limit along the Nary-Helga-Bemidji line, existing pole structures would 

need to be raised 5 feet from their current height of between 65 and 70 feet to a new 

height of between 70 and 75 feet (Otter Tail Power et al., 2010b). Increasing the 

structure height could be accomplished through replacement of existing pole 

structures with taller pole structures or through a technique known as phase raising, 

which would involve cutting the existing structures close to the ground and inserting 

steel spacers for added height (Weiers, 2010). 

The Applicants have stated that all improvements to the thermal limits of the existing 

115 kV lines can be accomplished within the existing ROW. No new ROW would be 

required for either the Cass Lake-Nary or Nary-Helga-Bemidji 115 kV transmission 

line thermal upgrades. (Weiers, 2010) 

Construction of a Nary Breaker Station is included in the proposed Project if Route 

Alternative 1 is selected and Segment Alternative A is used in connection with the 

Route. However, the Applicants have stated that a new Nary Breaker Station may be 

required for the Study Area, regardless of which Route Alternative and Segment 

Alternatives are selected as the final route. The new Nary 115 kV breaker station 

would be located adjacent to the existing Nary Switch, at the intersection between the 

existing Nary to Cass Lake 115 kV, the Bemidji to Nary 115 kV, and the Nary to 

LaPorte 115 kV transmission lines (Guthrie Township, T144N, R33W). The Nary 115 

kV Breaker Station would be located on a site of approximately 2.5 acres and consist 

of a fenced area of approximately 225 by 225 feet, with an additional cleared area of 

approximately 100 feet around the perimeter. An improved access road and small 

parking lot would also be required to move equipment to the site. Potential impacts 

from the construction and operation of a new Nary Breaker Station are discussed in 

relation to Segmental Alternative A in applicable sections of the EIS. 

It is assumed that utility upgrade projects would occur after Project construction in 

2010-2011. Because no new ROW is required for the thermal upgrade project, there 

are no anticipated long-term adverse impacts of the project. Long-term impacts from 

the Nary Breaker Station would include a loss of approximately 2.5 acres of woody 

vegetation. Temporary impacts from both projects could include disruptions of land 

use and an increase in constructed-related effects including noise, dust, traffic, 

compaction and erosion of soils, and minor impacts to wetlands and vegetation from 

use of heavy equipment. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

536 

4. Cumulative Effects 

4.2. Cumulative Effects Methodology and Analysis 

The 1997 CEQ guidelines recommend analyzing cumulative effects according to a tiered 

approach among specific resources, interconnected systems, and human communities. 

This hierarchical approach allows for a quantitative, resource-specific analysis as well as 

a synergistic, additive discussion of the system-level influence of regional actions. 

The cumulative effects analysis presented in this Section is resource-specific. The 

temporal and spatial boundaries used for the cumulative effects analysis are specific 

to each resource area. For those resources where the spatial boundary is defined as 

the Study Area, this includes the 1,000-foot wide route identified for each Route and 

Segment Alternative. For those resources where the temporal boundary is defined as 

the lifetime of the Project, this is estimated to be 50 years. If the Project is not 

expected to result in direct or indirect impacts on a resource, then that resource was 

eliminated from the cumulative effects evaluation. 

4.2.1. Aesthetics 

Aesthetic impacts from the Project include the introduction of a visual intrusion in 

the Study Area and change in the visual landscape from the clearing of vegetation 

within the ROW. Indirect impacts include a diminished experience for those using 

the ROW, including those engaged in hunting and gathering activities and 

recreational activities. Due to the heights of the Project structures, it is estimated that 

aesthetic impacts would be localized to the Study Area and a 0.1 mile buffer 

extending from the Study Area. The spatial boundary for the cumulative effects 

analysis is defined as the Study Area and a 0.1 mile buffer extending from the Route 

Alternatives. The temporal boundary is defined as the lifetime of the Project. 

The Project transmission line and poles would add a vertical, man-made feature to the 

landscape. Generally, the Enbridge Energy pipelines, U.S. Forest Service projects, 

MnDOT highway expansion, and utility upgrade projects would not introduce an 

aboveground visual intrusion to the visual landscape extending above the ground 

surface, except in isolated locations where the Enbridge Energy pipeline valves would 

be located aboveground, construction of equipment and structures at a Nary Breaker 

Station, and U.S. Forest Service projects that include construction of building 

structures. The thermal upgrade project would consist of the increase of existing pole 

structure heights by approximately 5 feet. The increase in height may increase the 

visibility of the existing poles in certain areas. The thermal upgrade project would be 

co-located with the Project if Segment Alternatives A, L, and/or M are included in the 

route selected. 

The Project would result in the loss of trees and devaluation of high-value or sensitive 

scenic resources. The Enbridge Energy pipeline projects, MnDOT highway 

expansion, Nary Breaker Station, and U.S. Forest Service project would also involve 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

537 

4. Cumulative Effects 

the loss of trees through ROW clearing and timber harvesting. Tree clearing is not 

anticipated during active remediation at the St. Regis Superfund Site, although 

ongoing remediation activities may represent a visual intrusion to those living, 

working, and traveling through the area. 

Co-location of the Project with Enbridge pipeline expansion projects would result in 

compounding effects to the viewshed in the overlapping 68 to 75-mile long Study Area 

within Route Alternatives 1, 2, and 4, with tree clearing to widen the existing 125-foot 

Enbridge ROW to the combined existing and new ROWs totaling 325 feet. Use of 

existing Enbridge ROW and other cleared areas for Project staging could minimize 

the amount of new clearing required. Within existing cleared areas, the construction 

of the 230 kV H-frame is a departure from the existing, cleared setting. The poles would 

be clearly visible and would add a vertical component to the landscape. This would 

compound the existing effect by creating an additional break within the landscape, 

especially in forested areas, where additional trees would need to be removed. Viewers’ 

attention would be drawn both to the clearing, as well as the transmission lines and 

poles. The combination of the parallel utility lines and repeated pattern of pole 

placement increases the visual dominance of the transmission structures against the sky 

and their contrast with the horizontal line of the background trees and other low-lying 

vegetation. 

Cumulative effects associated with the addition of the transmission line to areas adjacent 

to the pipeline ROW, however, would not further impact the SIO ratings of high, 

moderate, and low for a particular resource. As indicated in Section 3.1, the SIO rating 

is based on the overall quality and characteristics associated with a resource. For this 

reason, the cumulative effects would be localized and would not alter the overall rating 

of a resource. 

4.2.2. Air Quality 

Potential impacts to air quality from the Project are primarily limited to temporary

degradation of air quality from the fugitive emission of air pollutants and dust during 

the operation of construction equipment and vehicles. As such, the temporal boundary 

for the cumulative effects analysis is defined as the construction period for the 

Project. Because ambient air is not restricted to physical boundaries and any impacts 

to ambient air are likely to travel within and beyond the Study Area, the spatial 

boundary for the cumulative effects analysis is defined as Beltrami, Cass, Hubbard, 

and Itasca counties. 

Potential impacts to air quality from the Enbridge Energy pipeline expansions, 

MnDOT highway expansion, U.S. Forest Service projects, and utility upgrade projects 

are also limited to fugitive emissions or air pollutants and dust from heavy 

equipment during construction. Potential air impacts from the St. Regis Superfund 

Site would also be limited to fugitive emissions and dust from heavy equipment used 

during remediation activities. Cumulative effects to air quality in the four-county 

region would occur if construction of the projects or active remediation using heavy 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

538 

4. Cumulative Effects 

equipment at the St. Regis Superfund Site occurred during the Project construction 

period. The earliest construction could begin on the Project is fall 2010. Construction 

of the Enbridge pipeline projects began in 2009 and was completed prior to the start of 

construction of the Project. Construction of the Project would likely coincide with the 

MnDOT highway expansion and U.S. Forest Service projects (specifically timber 

harvesting that would require use of heavy equipment). Impacts to air quality from 

these projects and cumulative effects during overlapping construction periods would 

be minimized through use of best management practices for dust control and upkeep 

of heavy equipment and vehicles. Dust suppression and equipment/vehicle emission 

controls are incorporated into federal, state, and local regulations. Cumulative effects 

would occur along each of the Project Route Alternatives, all of which have the 

potential to be co-located with the projects included in the cumulative effects 

analysis, although in most cases a temporal overlap would not occur. 

4.2.3. Geology and Soils 

The Project would disturb surface soils through site clearing, grading, and excavation 

activities at structure locations, pulling and tensioning sites, setup areas, and during the 

transport of crews, machinery, materials, and equipment over access routes (primarily 

along the transmission ROW). The vast majority of impacted acreage, from 882 acres for 

Project Alternative 1 to 1,378 acres for Alternative 3, would be temporary in nature 

primarily due to equipment access. Depending upon the alternative, approximately 3 to 

5 acres would undergo long-term impacts due to the installation of pole structures. 

Long-term impacts include the loss of use of soils in specific locations used for pole 

structures. The spatial boundary for the cumulative effects analysis is defined as 

Beltrami, Cass, Hubbard, and Itasca counties. The temporal boundary for the 

cumulative effects analysis is defined as the lifetime of the Project. 

Construction of the Enbridge Energy pipelines likely disturbed soils, resulting in 

increased potential for erosion, compaction, and mixing of topsoil; damage to 

agricultural drainage tiles; and introduction of rock to the soil. Construction on 

adjacent ROW and use of the same temporary access roads for the Enbridge Energy 

pipelines and Route Alternatives 1, 2, and 4, could increase the likelihood of soil 

compaction, erosion, or damage. These impacts would primarily be temporary and 

ROWs returned to their original condition following construction. Long-term impacts 

to agricultural land and undeveloped land from the Enbridge Energy pipeline 

expansions are estimated at 220.6 acres across Beltrami, Cass, Hubbard, and Itasca 

counties. No known impacts to soils would result from U.S. Forest Service Projects. 

Construction of a new Nary Breaker Station would require the long-term loss of 

approximately 2.5 acres of soil; the area proposed for the new Nary Breaker Station 

currently consists of woody vegetation. The St. Regis Superfund Site is 

approximately 125 acres in size; soils throughout the site are contaminated and have 

use restrictions. The MnDOT highway expansion project would result in new road 

paving of 70-feet wide for a length of 6 miles, resulting in a total long-term impact of 

51 acres from soils paved with asphalt. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

539 

4. Cumulative Effects 

Table 4-8 summarizes the potential temporary and long-term effects to soils in 

Beltrami, Cass, Hubbard, and Itasca counties. 

Table 4-8: Total Effects to Soils from Projects in the Cumulative Effects Area of Analysis 

Temporary 

Impacts to Soils 

(Acres) 

Long Term 

Impacts to Soils 

(Acres) 

Project 879-1,373 3 – 5 

Enbridge 769 221 

USFS 0 0 

Superfund 125 125 

MnDOT 51 51 

Utility Upgrade 

Projects 

2.5 2.5 

Total Acres 1,827 – 2,321 403 - 405 

Source: Enbridge Energy, 2009; Otter Tail Power et al., 2008; Otter Tail Power et al., 2010b; 

USFS 2008a-2008g, 2009a-2009c, and no date. 

4.2.4. Water Resources and Floodplains 

Temporary or long-term direct impacts to surface water resources or floodplains from 

the Project are unlikely to occur to PWI basins or watercourses. In areas where surface 

water features are present, it is anticipated that Project ROW alignments could be 

directed to avoid surface water or that water bodies could be spanned. There are no 

water bodies that are wider than the maximum span along the alternatives, such that 

complete avoidance would not be feasible. If pole placement were to occur within a 

water basin or watercourse, temporary direct impacts may include soil erosion along the 

shoreline and sedimentation caused by construction. Fuel or chemical spills from 

construction equipment could degrade storm water runoff quality. Impacts to surface 

water quality could result from the use of herbicides or pesticides in maintaining the 

transmission line ROW during operation. However, conditions in the High Voltage 

Transmission Line (HVTL) and Storm Water permit would reduce the likelihood and 

include mitigation measures for these potential impacts. 

Due to the nature of water resources and floodplains in the Study area, the spatial 

boundary for the cumulative effects analysis is defined as the watersheds in which 

the Project would be located: Mississippi Headwaters Watershed and Leech Lake 

River Watershed. The temporal boundary for the cumulative effects analysis is 

defined as the lifetime of the Project. The Mississippi River Watershed is 

approximately 1,961 square miles in size and contains 180,286 acres of lake habitat 

and 196,522 acres of wetland habitat (Enbridge Energy, 2009). The Leech Lake River 

Watershed is approximately 1,335 square miles in size and contains 168,807 acres of 

lake habitat and 139,650 acres of wetland habitat (Enbridge Energy, 2009). 

There are no anticipated impacts to water bodies or floodplains for the MnDOT 

highway expansion, utility upgrade projects, or U.S. Forest Service projects. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

540 

4. Cumulative Effects 

Although the existing 115 kV line involved in the thermal upgrade project crosses 

several water bodies, no new crossings would be required for the upgrade project. As 

such, there are no anticipated impacts to water bodies or floodplains from the project. 

The Enbridge pipeline projects involve a total of 76 perennial and 86 intermittent 

crossings in Minnesota (15 additional crossings were not surveyed). The Enbridge 

Energy pipelines cross 55.4 miles of the Mississippi Headwaters Watershed and 24.4 

miles of the Leech Lake River Watershed (Enbridge Energy, 2009). Construction of the 

pipelines could result in temporary or short-term impacts due to increased 

sedimentation, degradation of aquatic habitat from in-stream construction activities, 

increased runoff and erosion, changes in channel morphology and stability, temporary 

reductions in flow during hydrostatic testing activities, alteration of aquatic habitat, and 

temporary to short-term surface water quality degradation during or after construction 

from disposal of materials and equipment or vehicle spills and leaks. But, overall, it is 

not anticipated that groundwater or surface water quality would be greatly affected 

during pipeline construction or operation. 

In locations where the Enbridge pipelines are adjacent to the Project ROW (Route 

Alternatives 1, 2, and 4), compounding temporary impacts to water resources may 

occur through soil erosion, sedimentation, and spills from construction related 

activities. 

Table 4-9 summarizes the potential effects of the Project on water resources within 

the Mississippi River Headwaters and Leech Lake River Watersheds. 

Table 4-9: Total Effects to Water Resources from Projects in the Cumulative Effects Area of Analysis 

Number of New 

PWI Water 

Crossings 

Project 9 – 36 

Enbridge 26 

USFS 0 

Superfund 0 

MnDOT 0 

Utility Upgrade 

Projects 

0 

Total 35 – 62 

Acreage in 

Watersheds 

349,093 acres 

Notes: * Includes impacts to wetlands 

Source: Enbridge Energy, 2009; Otter Tail Power et al., 2008; Otter Tail Power et al., 2010b; USFS 

2008a- 2008g, 2009a-2009c, and no date. 

4.2.5. Wetlands 

Potential impacts resulting from construction and maintenance of the Project could 

include a loss of wetlands and/or wetland functions, conversion of wetlands, change in 

water quality and water recharge, loss of habitat, and impacts from construction and 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

541 

4. Cumulative Effects 

maintenance access. Conversion of wetland type would occur where the clearing of 

forested wetland areas would be required within the ROW. Approximately 15 acres of 

wetland would be affected for each mile of ROW crossing through a wetland or wetland 

complex. 

The spatial boundary for the cumulative effects analysis is defined as the watersheds 

in which the Project would be located: Mississippi Headwaters Watershed and Leech 

Lake River Watershed. The temporal boundary for the cumulative effects analysis is 

defined as the lifetime of the Project. The Mississippi River Watershed is 

approximately 1,961 square miles in size and contains 180,286 acres of lake habitat 

and 196,522 acres of wetland habitat (Enbridge Energy, 2009). The Leech Lake River 

Watershed is approximately 1,335 square miles in size and contains 168,807 acres of 

lake habitat and 139,650 acres of wetland habitat (Enbridge Energy, 2009). 

The greatest potential impacts to wetlands from the Project would result from 

conversion of wetlands, ranging from 166 acres of wetland conversion for Route 

Alternative 2 to 269 acres of wetland conversion for Route Alternative 3. There are no 

known impacts to wetlands for the MnDOT highway expansion, utility upgrade 

projects, or U.S. Forest Service projects. Although the existing 115 kV line involved 

in the thermal upgrade project crosses identified wetlands, no new wetland crossings 

or new structure placements within wetlands would be required for the upgrade 

project. As such, there are no anticipated impacts to wetlands from the project. 

Conversion of wetlands and long-term impacts from structure placement within 

wetlands would occur for the Enbridge Energy pipelines. The predominant wetland 

types that would be crossed by the Enbridge pipelines are forested and scrub-shrub 

communities. In addition, the Enbridge pipelines are expected to cause a slight 

increase in water temperatures where the pipelines would cross through wetlands. 

The FEIS developed for the Alberta Clipper Project states that effects would be most 

pronounced in small ponds and wetlands, while heat would be more quickly 

dissipated in larger waterbodies. The Enbridge Energy pipelines cross 16.40 miles of 

wetlands within the Leech Lake Reservation, of which 14.40 miles are also within the 

boundaries of the Chippewa National Forest. The Enbridge Energy pipelines cross a 

total of 517 wetland complexes in the State of Minnesota. (Enbridge Energy, 2009) 

Cumulative effects from the Project and Enbridge Energy pipelines could be 

experienced for all of the Route Alternatives, each of which would result in 

conversion of wetland type. Cumulative impacts to the watershed would consist of a 

loss of wetland resources and conversion of wetland type, which could result in 

effects on habitat and water quality. 

Table 4-10 below summarizes the potential temporary and long-term effects of the 

Project on impacts to wetlands within the Mississippi River Headwaters and Leech 

Lake River Watersheds. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

542 

4. Cumulative Effects 

Table 4-10: Total Effects to Wetlands from Projects in the Cumulative Effects Area of Analysis 

 Number of New 

Wetland 

Crossings (not 

spanned) 

Temporary 

Impacts to 

Wetlands (Acres) 

Long Term 

Impacts to 

Wetlands (Acres) 

Project 93-120 59-101 167-270* 

Enbridge 517** 645*** 435*** 

USFS 0 0 0 

Superfund 0 0 0 

MnDOT 0 0 0 

Utility Upgrade 

Projects 

0 0 0 

Total 610 - 637 704-746 602-705* 

Notes: * Includes wetland type conversion 

** Crossings within entire State of Minnesota 

*** Includes impacts to surface water bodies 

Source: Enbridge Energy, 2009; Otter Tail Power et al., 2008; Otter Tail Power et al., 2010b; USFS 

2008a-2008g, 2009a-2009c, and no date. 

The estimated number of wetland crossings in Table 4-10 includes only those crossing 

that cannot be spanned such that temporary and long-term wetland impacts would be 

completely avoided. Long term impacts to wetlands includes long-term loss of 

wetlands through the placement of pole or other structures within the wetland 

complex and total acreage of wetland type conversion, including conversion of 

forested wetlands. 

4.2.6. Biological Resources and Species of Concern 

This section identifies potential cumulative impacts to vegetation and fauna, including 

species of concern. The spatial boundary for the cumulative effects analysis is 

defined as the Study Area and surrounding habitat for vegetation and fauna, 

including the Chippewa National Forest, Leech Lake Reservation, Bemidji Slough 

WMA, and five state forests (Big Fork, Blackduck, Bowstring, Buena Vista, and Welsh 

Lake). The temporal boundary for the cumulative effects analysis is defined as the 

lifetime of the Project. 

4.2.6.1. Vegetation 

The primary impacts to vegetation from construction of the Project would be cutting, 

clearing, or removing the existing vegetation within the construction work area, and the 

potential introduction of noxious weeds. The primary long-term impact of the Project 

on vegetation is the conversion of existing vegetation communities to managed 

grassland or shrub land within the transmission line ROW. Maintenance of these areas 

would preclude recovery of natural vegetation for the lifetime of the Project. The 

magnitude of impacts relates to the type of vegetation that would be converted: 

conversion of unmanaged upland shrub and grassland communities is much less than 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

543 

4. Cumulative Effects 

impacts to forest communities because of the magnitude of change that occurs. The 

Applicants routed the alternatives to take advantage of adjacent utility corridors and 

existing access roads to the extent practicable, which has reduced the area of natural 

vegetation that would be lost as a result of the Project and minimized fragmentation of 

natural habitats adjacent to the ROW. 

Non-motile plant species of concern could potentially be impacted if Project 

transmission structures and the Enbridge pipelines were sited on top of, or 

immediately adjacent to, the known locations of these species or if individuals or 

populations would be destroyed during clearing and/or long-term maintenance of the 

ROW. To the extent practicable, the ROWs could be sited to avoid known locations 

of these species or, in the event that known occurrences of species cannot be avoided, 

to ensure that project features (i.e., transmission line poles and support structures) are 

not located on top of, or immediately adjacent to, these species. 

The Enbridge Energy pipeline projects and MnDOT highway expansion project 

require clearing of vegetation during creation of ROW. If existing ROW has been revegetated beneath the thermal upgrade project transmission line, temporary clearing 

may be required for the thermal upgrade project to allow vehicles and maintenance 

personnel to access the transmission line; however, the clearing required would likely 

be less than a new ROW. Approximately 2.5 acres of woody vegetation would be 

cleared and the land developed for a new Nary Breaker Station. Clearing of 

vegetation may be required at the St. Regis Superfund Site during active remediation 

consisting of soil excavation or installation of ground water wells; acreage of active 

remediation requiring vegetation clearing is unknown. 

Table 4-11 summarizes the potential vegetative clearing associated with project 

evaluated in the cumulative effects analysis. 

Table 4-11: Total Effects to Vegetation from Projects in the Cumulative Effects Area of Analysis 

 Acreage of Vegetation Cleared 

(Temporary) 

Project 1,018 – 1,759 

Enbridge 1,457.9** 

USFS 16,252* 

Superfund NA 

MnDOT 29 

Utility Upgrade 

Projects 

NA 

Total 18,757 – 19,498 

Notes: NA – Not Available 

*Represents total acres harvested. Actual net impacts would be less because 

most U.S. Forest Service projects evaluated also include planting and seeding 

activities. 

**Acreage of vegetation cleared developed from temporary impacts to agricultural, 

forested, and open land. 

 

 Source: Enbridge Energy, 2009; Otter Tail Power et al., 2008; Otter Tail Power et al., 

 2010b; USFS 2008a-2008g, 2009a-2009c, and no date. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

544 

4. Cumulative Effects 

The U.S. Forest Service projects include timber harvesting, maintenance of wildlife 

management areas, prescribed burning, and planting and seeding activities. While 

certain activities increase the amount of cleared vegetation, others introduce new 

vegetation to the CNF. The activities approved through the U.S. Forest Service plans 

are required to administer the objectives of the 2004 Forest Plan. 

Clearing of vegetation may result in changes in wildlife habitat and habitat 

fragmentation, changes in the visual landscape, and a change in the type of species 

available for tribal gathering activities. Compounding effects would occur in areas 

where the Project is co-located with vegetation clearing for the Enbridge Energy, 

MnDOT, St. Regis Site, or thermal upgrade projects, which includes Route 

Alternatives 1, 2, and 4. Additionally, clearing of ROW for the project and movement 

of vehicles throughout the area may increase the potential for the spread of noxious 

weeds. 

4.2.6.2. Fauna 

Potential cumulative effects to wildlife include an increase in the direct or indirect loss 

or conversion of habitats, increased habitat fragmentation, and the potential risk of avian 

collisions with aboveground structures and equipment. The Project, Enbridge Energy 

pipelines, and MnDOT expansion would expand the existing ROWs or create new 

ROWs that would convert woodlands to grass/shrub. In addition U.S. Forest Service 

project that involve timber harvesting would result in conversion of woodlands. 

Species that rely upon forested habitat would generally be displaced in favor of grass or 

shrub land adapted species. The U.S. Forest Service projects include timber 

harvesting, maintenance of wildlife management areas, prescribed burning, and 

planting and seeding activities. While certain activities increase the amount of 

cleared vegetation and fragmentation of wildlife habitat, others include the 

maintenance and improvement of wildlife openings. The activities approved through 

the U.S. Forest Service plans are required to administer the objectives of the 2004 

Forest Plan. 

Because the ROWs for the thermal upgrade project and the St. Regis Superfund Site are 

already cleared, there would be no cumulative effects from these projects on forest lands 

in the associated localized habitats. The area surrounding the Nary Breaker Station 

site is developed with an existing electrical switch referred to as Nary Junction. 

Clearing of 2.5 acres for the Nary Breaker Station would result in a minimal effect to 

wildlife habitat. 

More motile species, such as birds and mammals, would likely avoid the Project and 

Enbridge pipeline ROWs during the construction periods and move into surrounding, 

undisturbed habitats. The habitats impacted are relatively common within the region 

and that State; therefore, compatible habitat is likely located near the ROWs. While this 

migration may increase short-term competition for resources, it is unlikely that the 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

545 

4. Cumulative Effects 

region is overpopulated with these species such that short-term migration would lead to 

adverse effects on state-wide populations. 

Long-term impacts from habitat conversion within the ROWs could cause localized 

impacts to bird and mammal species dependent upon mature forests for foraging or 

nesting such as the Bald Eagle, Great Blue Heron, Osprey, Connecticut Warbler, and 

Black-backed Woodpecker, Canada Lynx, and Gray Wolf. However, impacts to bird 

species can be minimized by avoiding known nesting sites during the breeding season 

by approximately one-eighth of a mile (660 feet) for large raptors and colonial 

waterbirds (e.g., Bald Eagles, Great Blue Herons, and Osprey) and maintaining 

approximately 200 feet around known nesting sites for smaller species such as 

Connecticut Warbler, Black-backed Woodpecker, and Olive-sided Flycatcher. 

Table 4-12 lists the number of federally-listed and state and LLDRM-listed species 

determined to be affected by the projects evaluated under this cumulative effects 

analysis. Federally listed species include the Gray Wolf, Canada Lynx, and Bald 

Eagle, which were federally-listed at the time of the preparation of BA/BEs for the 

projects listed. Although the bald eagle has been de-listed from the Endangered 

Species List, the species is protected by the Migratory Bird Treaty Act and Bald and 

Golden Eagle Protection Act, and is included in the count for federally listed species 

in Table 4-12. The table displays those species for which projects were determined to 

potentially affect individuals, but not likely to result in a loss of viability to the 

community population. The potential of the transmission line Project to jeopardize 

the viability of the one-flowered broomrape within Route Alternative 1 is the only 

instance within the projects evaluated for which such a determination was made. It is 

not expected that co-location of the Project ROW with ROW for the projects included 

for evaluation would change the determinations made for potential impacts to species 

of concern. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

546 

4. Cumulative Effects 

Table 4-12: Number of Species Determined to be Affected by 

Projects in the Cumulative Effects Area of Analysis 

Federally Listed 

Species 

State and LLDRM Listed Species

Number of Species 

for which 

Individuals may be 

Affected 

Number of Fauna 

Species for which 

Individuals may be 

Affected 

Number of Plant 

Species for which 

Individuals may be 

Affected 

Number of Species 

for which the 

Community may be 

Affected 

BemidjiGrand Rapids 

Project 

3 29 30 1* 

Enbridge 

Energy 

0 0 13 0 

Thermal 

Upgrade 

0 0 0 0 

St. Regis 

Superfund 

Site 

0 0 0 0 

MnDOT NA NA NA NA 

Cuba Hill 2 3 10 0 

CDRM 3 8 11 0 

Lydick 2 6 9 0 

Lower Winnie 2 6 9 0 

North 0 1 0 0 

Upper Winnie 3 4 10 0 

Source: Enbridge Energy, 2009; Otter Tail Power et al., 2008; Otter Tail Power et al., 2010a; Otter Tail Power et 

al., 2010b; USFS 2008a-2008g, 2009a-2009c, and no date. 

Notes: * MnDNR and LLDRM have determined Route Alternative 1 would jeopardize the only known oneflowered broomrape population in Northern Minnesota. 

4.2.7. Cultural Resources 

The construction of Project transmission line facilities could affect recorded and 

currently unknown cultural resources within the Study Area. The transmission line, 

with its pole installation and substation modification, has the potential to disturb 

archaeological sites. The Project could alter the setting and viewsheds of historic 

structures or landscapes, or the setting of and access to Traditional Cultural Properties. 

Due to the localized effect on cultural resources through siting of the transmission 

line structures and substation modifications, the spatial boundary for the cumulative 

effects analysis is defined as the Area of Potential Effect (APE), as discussed in 

Section 3.9, which consists of the Study Area. The temporal boundary for the 

cumulative effects analysis is defined as the lifetime of the Project. 

For all projects involving construction or subsurface activities, including the Project, 

Enbridge Energy pipelines, Nary Breaker Station, MnDOT highway expansion, and 

St. Regis Superfund Site, unrecorded archaeological sites or traditional cultural 

properties may be disturbed. Cumulative loss of cultural resources would occur if 

archaeological site or traditional cultural properties are disturbed on multiple sites. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

547 

4. Cumulative Effects 

Historic buildings or other sites may be impacted, as well, in that construction of 

structures may impact the historic viewshed in which above-ground archaeological and 

historic resources are located. Impacts to cultural resources, including historic 

structures, archaeological sites, and traditional cultural properties, would be considered 

significant if they result in adverse effects to historic properties that are eligible for 

listing on the NRHP. Cumulative effects would consist of a loss of cultural resources 

to the area. Route Alternatives 1, 2, and 4 are located within the vicinity of the 

Enbridge Energy pipelines, MnDOT expansion, and St. Regis Superfund Site, all of 

which require subsurface disturbance. 

In addition to the potential Project impacts, the principal types of impacts the Enbridge 

pipelines could have on cultural resources include physical destruction or damage 

caused by pipeline trenching, related excavations, or boring; introduction of visual, 

atmospheric, or audible elements during construction that diminish the integrity of the 

property’s significant historic features by short-term pipeline construction or 

construction of aboveground appurtenant facilities and roads; and change of the 

character of the property’s use or of physical features within the property’s setting that 

contribute to its significance. Enbridge’s main method of mitigation for potential 

impacts to cultural resources is avoidance and no impacts to cultural resources are 

anticipated. 

Impacts to natural resource use, such as wild rice harvesting, maple sugaring, sweet 

grass harvesting, or berry picking, would depend upon the specific locations of the 

projects and siting of Project transmission line structures. Game animal populations 

are not anticipated to be affected by the Project and no cumulative effects are 

anticipated. 

Because the ROW for the thermal upgrade project was previously disturbed and 

developed, there likely would be no additional cumulative effects on cultural resources 

where this project is in proximity to the Project and Enbridge ROWs. 

4.2.8. Land Use 

Potential Project impacts include the incompatibility with local land use and zoning, 

incompatibility with planned development, and loss of use to landowners. Land uses 

might be affected long-term only in areas where trees need to be cleared (i.e., outside of 

existing ROWs and utility lines). In these instances, a portion of land would be cleared 

for access and maintenance; the overall use of the parcel, and hence the land use 

designation, would not typically be altered. Due to the potential to impact local land 

use and planned development, the spatial boundary for the cumulative effects 

analysis is defined as Beltrami, Cass, Hubbard, and Itasca counties. The temporal 

boundary is defined as the lifetime of the Project. 

Landowners may experience both a temporary and long-term cumulative loss of use in 

areas where land would be needed for the Project ROW, Enbridge ROW, Nary 

Breaker Station, or MnDOT highway expansion ROW. New ROW would not be 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

548 

4. Cumulative Effects 

required for the thermal upgrade project. Land use within the St. Regis Superfund 

Site is previously restricted, and no additional restrictions are expected. Land 

associated with U.S. Forest Service projects would be located on CNF-managed land, 

and thus impacts would be limited to users of CNF lands. A compounding loss of 

land use would be experienced by those land owners with multiple easements on a 

single property. 

The temporary loss of use for landowners would occur during construction while 

equipment and vehicles are located within the ROW. Staggering of the Project and 

Enbridge construction schedules could result in prolonged impacts in locations where 

the ROWs would be co-located. 

Creation of new ROW for the Project and Enbridge Energy pipeline projects may 

increase public access to private lands, creating the potential for increased trespassing 

and unauthorized use of such lands. 

The long-term loss of land use would result from placement of aboveground 

structures, including Project pole structures, Nary Breaker Station, Enbridge 

aboveground valves, and new highway from MnDOT improvement projects. Table 4-

13 displays the approximate long-term loss of land use from projects in Beltrami, 

Cass, Hubbard, and Itasca counties. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

549 

4. Cumulative Effects 

Table 4-13: Total Effects to Land Use Types from Projects in the Cumulative Effects Area of Analysis 

Temporary 

Agricultural 

Long-Term 

Agricultural 

Temporary 

Urban/ 

Developed 

Land 

Long-Term 

Urban/ 

Developed 

Land 

Temporary 

Forested Land 

Long-Term 

Forested Land 

Tempo

Gras

Open

Shrub L

Project 31 – 119 0.3 – 2 3 - 70 0 0 432 - 812 174 - 3Enbridge 296 117 809 33.8 809 404 352 USFS 0 0 0 0 16,252 2,583 NA Superfund 0 0 0 0 0 0 0 MnDOT 29* 29* 0 0 29* 29* 29* Utility Upgrade Projects 

NA 0 0 0 2.5 2.5 NA 

Total 356 – 444 147 - 148 812 - 879 33.8 17,093 3,451 – 3,831 555 - 7Notes: * Represents a worst case scenario, under which all new ROW required for the project is categorized as the specified land use typ

 NA: Not Available 

Source: Enbridge Energy, 2009; Otter Tail Power et al., 2008; Otter Tail Power et al., 2010b; USFS 2008a-2008g, 2009a-2009c, and no date.
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

550 

4. Cumulative Effects 

4.2.9. Socioeconomics 

Potential positive impacts from the Project on socioeconomics include a short-term 

influx of income for counties and cities within the Study Area during construction 

and an increased tax base during operation of the Project. Potential adverse effects 

include a decrease in property values, potential to affect residents through loss of 

land use, and loss of forest available for timber harvesting. In addition, subsistence 

activities could be affected by conversion and fragmentation of habitat. The spatial 

boundary for the cumulative effects analysis is defined as Beltrami, Cass, Hubbard, 

and Itasca counties. The temporal boundary for the cumulative effects analysis is 

defined as the lifetime of the Project. 

The following sections describe the potential cumulative socioeconomic (e.g., 

employment, income, and business) impacts during construction and operation of the 

projects included for analysis. 

4.2.9.1. Construction 

Potential cumulative socioeconomic impacts include impacts to homes and businesses 

from residential and business losses, landowner compensation, and property values, 

and also from impacts to local, regional, and subsistence-based economies during 

construction of the Project. 

Construction of the Project would require approximately 75 temporary but full-time 

employees to construct the transmission line and additional workers would be required 

for the substation modifications. Other projects under construction during the recent 

past, present, or reasonably foreseeable future include the construction of the Enbridge 

pipelines,, which required 300 people over its entire 327 miles, and construction of the 

MnDOT highway expansion, utility upgrade projects, and ongoing cleanup at the St. 

Regis Superfund Site. These construction jobs would not create new long-term jobs in 

the Study Area. In addition, the Enbridge pipeline construction was completed in the 

Study Area before construction of the Project. To the extent that local contractors are 

used for portions of the construction, total direct wages and salaries paid to contractors 

and workers in surrounding counties would result in a cumulative benefit to the total 

personal income of the region. These construction jobs would provide a cumulative 

short-term influx of income to the area. Construction expenditures made for equipment, 

energy, fuel, operating supplies, and other products and services would benefit 

businesses in the local communities to the extent that the products and services are 

purchased locally. Additional a cumulative benefit to personal income would be 

generated for residents in the region and the State by circulation and recirculation of 

dollars paid out by the project owners as business expenditures and State and local 

taxes. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

551 

4. Cumulative Effects 

Short-term indirect positive economic cumulative impacts would result from these 

construction activities. Revenue likely would increase for some local businesses, such as 

hotels, restaurants, gas stations, and grocery stores, due to increased spending from 

workers associated with construction of the projects in the four-county area. 

Potential negative cumulative effects to the four-county area would include a potential

loss of income from a decrease in recreational users of the area during construction. 

Impacts to the subsistence-based economy could result from loss of acreage for 

subsistence activities, fragmentation of habitat, and introduction/spread of invasive 

species due to increased disturbance/new corridors. These impacts would primarily be 

limited to projects located on the LLR where LLBO tribal members have hunting and 

gathering rights. 

4.2.9.2. Operation 

Potential cumulative socioeconomic impacts include impacts to homes and businesses 

from residential and business losses, landowner compensation, and property values, 

and also from impacts to local, regional and subsistence-based economies during 

operation of the Project. 

Operation of the Project would not require an increase in full-time or part-time 

employees. The Enbridge Energy pipeline project is expected to require 6 new full 

time employees during operation. It is expected that these individuals would result 

in a negligible affect on the local economy. Other projects under operation during the 

present or reasonably foreseeable future are not anticipated to require an increase in 

employees during operation. 

The Project Applicants have stated a preference to avoid the displacement of 

individuals from homes and businesses through route flexibility. Under the feasible 

alignments developed by the Applicants, between three and 25 residences would be 

located within 0 to 62.5 feet of the transmission line depending on the Route 

Alternative selected; in practice displacement of homes for transmission lines is rare. 

Enbridge has been involved in easement negotiations with the owners of 21 residences 

that would be within 50 feet of the construction ROW along the 326.9-mile pipeline. 

Displacement of homes or businesses is not anticipated for the MnDOT highway 

expansion, U.S. Forest Service, St. Regis Superfund Site, and utility upgrade projects. 

Placement of new or expanded ROW associated with the Project on residential 

property may affect the property value, as discussed in Section 3.11.2. The 

Environmental Impact Statement conducted for the Enbridge Energy pipelines 

concludes that it is unlikely that property value of land would be adversely impacted 

by the creation of an easement and presence of the pipeline (Enbridge Energy, 2009). 

As such, cumulative effects to property values are not anticipated. 

A summary of the effects to long-term land use appears in Table 4-13. Long term 

cumulative loss of agricultural and forested land could result in a loss of cumulative 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

552 

4. Cumulative Effects 

income from agricultural production and timber harvests. Long term cumulative loss 

of grass land and shrub land could affect subsistence gathering conducted on those 

lands. Additionally, long-term cumulative loss of urban land could limit future 

commercial or residential development. 

4.2.10. Environmental Justice 

The Project crosses the homeland of a minority community, the Leech Lake 

Reservation. A loss of land use in the Study Area would result in long term loss of 

gathering lands. During construction, temporary disruption to hunting and gathering 

activities may occur. The visual intrusion of the Project would represent a long term 

aesthetic affect and may indirectly affect the cultural experience of a minority 

community. The spatial boundary for the cumulative effects analysis is defined as 

Beltrami, Cass, Hubbard, and Itasca counties. The temporal boundary for the 

cumulative effects analysis is defined as the lifetime of the Project. 

During construction, the multiple projects in the four-county area likely would provide 

an opportunity for temporary employment for members of the minority and low-income 

communities in the area. 

The Project, Enbridge pipelines, and highway project, all of which require new ROW, 

would impact food resources used by those conducting subsistence hunting, fishing, 

and gathering activities. Some temporary disruptions may occur if access is limited, for 

safety purposes, to areas typically used for hunting and gathering, or if wildlife 

patterns are altered due to noise and dust generated during construction. The 

Enbridge Energy pipeline construction is completed in the Study Area. As such, 

disruptions to subsistence activities would not be cumulative in terms of impacted 

acreage, but access limitations would be prolonged. Additionally, any off-site 

contamination from the St. Regis Superfund site could make some subsistence resources 

unfit for consumption. 

Negative impacts to subsistence-based economies may occur from the operation and 

maintenance of the projects as a result of loss of acreage for subsistence activities, 

fragmentation of habitat, and introduction/spread of invasive species due to increased 

disturbance/new corridors. These impacts would primarily be limited to projects 

located on the LLR where LLBO tribal members have hunting and gathering rights. 

U.S. Forest Service projects include portions of the Chippewa National Forest that are 

located within the boundaries of the Leech Lake Reservation. Certain projects 

include land management activities within areas determined to be of high 

significance to the LLBO. U.S. Forest Service activities include land clearing and 

timber harvests, as well as seeding, plantings, and maintenance of openings used for 

gathering. The U.S. Forest Service has a tribal trust responsibility to the LLBO as 

discussed in Section 1.3.3. As such, U.S. Forest Service plans evaluate and include 

mitigation to lands of tribal significance, such that impacts to these resources are not 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

553 

4. Cumulative Effects 

significant. Thus, there are no long-term cumulative effects from the Project and U.S. 

Forest Service project. 

4.2.11. Recreation and Tourism 

Recreational activities in the Study Area primarily occur within the Chippewa 

National Forest, Leech Lake Reservation, state forests, and Bemidji Slough WMA. 

The spatial boundary for the cumulative effects analysis is defined as the Study Area 

and surrounding land within the Chippewa National Forest, Leech Lake Reservation, 

state forests (Big Fork, Blackduck, Bowstring, Buena Vista, and Welsh Lake), and 

Bemidji Slough WMA. The temporal boundary for the cumulative effects analysis is 

defined as the lifetime of the Project. 

Removal of forested land for the Project, clearing of ROW for the Enbridge Energy 

pipeline project and MnDOT highway expansion, and timber harvests conducted 

under U.S. Forest Service projects, have the potential to result in a compounding loss 

of forested areas, which could limit opportunities for passive recreational activities 

and hunting. Potential impacts to forested land are discussed in Section 4.2.13. 

Cumulative effects would be greater in areas without existing corridor. Constructing 

of the Project transmission line and Enbridge pipelines adjacent to an existing linear 

utility corridor would not significantly change the recreational uses of the area, because 

the corridor was previously disturbed and the existing visual spectrum includes a linear 

type feature. However, the Project would add a vertical man-made feature to the 

existing corridor, and may affect the viewshed of those engaged in recreational 

activities. 

During construction of the projects and timber harvesting, noise, dust, and traffic 

delays may deter visitors to the area. Staggering of construction projects and use of 

heavy equipment on harvesting and improvement projects would lessen the 

magnitude but prolong the duration of cumulative effects from construction on noise, 

dust, and traffic delays. 

The creation of new ROW under the Project and Enbridge Energy pipeline 

expansions may encourage the increased use of OHVs on new corridor. This use of 

the ROWs would be a negative impact in sensitive areas and the CNF, where 

unauthorized OHV use is prohibited, while it would be a positive impact to 

recreational opportunities in areas where this type of use is allowed. The addition of 

new ROW from the projects would allow for the possibility of creating more 

connections between existing trails, as well as providing new trails for users. 

Recreational activities also have a passive use value, through observation of wildlife and 

birds, and attendance at outdoor or forest-related events. These areas primarily include 

forested lands contained within the CNF. In these instances, people anticipate an 

uninterrupted view of forest cover or other natural setting and not the presence of 

structures associated with the transmission lines or pipeline ROWs. People who prefer 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

554 

4. Cumulative Effects 

this type of recreation, therefore, are impacted indirectly by the addition of new 

transmission and pipelines. 

4.2.12. Agriculture 

Although heavily forested as a whole, the Study Area also contains agricultural areas, 

particularly at the western and eastern edges and along the northern portion along 

Route Alternative 3. During construction of the Project, utility equipment may damage 

crops, compact the soil, require grading and the temporary relocation of livestock 

fencing, and temporarily interrupt some farming activities (see Section 3.14). 

Operational impacts would include the loss of farmland once the project features are in 

place. All Project build alternatives would result in long-term and temporary impacts to 

agricultural and prime farm lands. 

For the purpose of the cumulative effects analysis specific to agricultural impacts, the 

spatial boundary is defined as Beltrami, Cass, Hubbard, and Itasca counties. The 

spatial boundary was determined to be the four county area because ownership of 

farm and agricultural land by individual land owners likely extends across county 

lines and cumulative effects to agricultural resources have the potential to impact 

agricultural production from the region. Due to the potential for long-term impacts 

from the placement of Project structures on agricultural and prime farm lands, the 

temporal boundary specific to agricultural impacts is defined as the lifetime of the 

Project. 

Long-term impacts to agricultural and prime farm lands would occur through the 

placement of aboveground structures on these lands. For the Project, aboveground 

structures consist of transmission line poles. For the Enbridge Energy projects, 

aboveground structures include aboveground valves and access points associated 

with the belowground pipelines. The pipelines themselves would likely be buried 

deep enough (a minimum of 36 to 54 inches deep from the top of the pipeline to ground 

level) that traditional farming activities could continue after construction. The footprint 

of the St. Regis Superfund Site is not expected to expand onto agricultural land or 

prime farm lands. If contamination were detected outside of the current site 

boundaries, agricultural land use within the new boundaries of the site would likely 

be suspended. The MnDOT expansion project requires up to 40 feet of new ROW 

along a 6 mile length of Highway 71/197. Agricultural land is located along Highway 

71/197 and could be affected by the project, although the acreage of temporary and 

permanent impacts is unknown. At most, if the new ROW required 100 percent 

existing agricultural or prime farm land, 29 acres could be affected. However, the 

actually acreage of impact would likely be much less due to the location of 

residential, commercial, forested, and vacant land located adjacent to the existing 

ROW that may be converted for placement of the expanded ROW. 

Temporary cumulative effects to agricultural and prime farms lands would occur 

during construction, during which heavy equipment and necessary access roads could 

disrupt farming activities, cause crop damage, and compact soils. All projects 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

555 

4. Cumulative Effects 

requiring access through agricultural or prime farm lands have the potential for these 

temporary impacts. If the construction schedules for the Project and Enbridge Energy 

projects are staggered and the Project Route Alternative is co-located with portions of 

the Enbridge pipelines on agricultural lands, it is possible that the projects could 

result in prolonged temporary impacts to the same areas of agricultural and prime 

farm land. Where the Project is co-located with the Enbridge pipeline, impacts could 

be compounded or prolonged. For all other projects, it is not anticipated that the 

Project would use the same acreage of agricultural land, and impacts would be 

additive. 

Table 4-14 below summarizes the potential effects to agricultural and farm lands in 

Beltrami, Cass, Hubbard, and Itasca counties. 

Table 4-14: Total Effects to Agricultural Land and Prime Farmland from Projects in the Cumulative 

Effects Area of Analysis 

Temporary Impacts 

to Agricultural Land 

(Acres) 

Long Term Impacts 

to Agricultural Land 

(Acres) 

Temporary 

Impacts to Prime 

Farmland (Acres) 

Long Term 

Impacts to Prime 

Farmland (Acres) 

Project 31-119 0.3-2.0 NA 0.7-1.3 

Enbridge 296 117 205 NA 

USFS 0 0 0 0 

Superfund 0 0 0 0 

MnDOT 29* 29* 29* 29* 

Utility 

Upgrade 

Projects 

NA 0 NA 0 

Total 356 – 444 147 – 148 234 30 

Notes: * Represents a worst case scenario, assuming 100 percent of new ROW is developed on agricultural 

or prime farm land and future use is limited. 

 NA: Not Available 

Source: Enbridge Energy, 2009; Otter Tail Power et al., 2008; Otter Tail Power et al., 2010b; USFS 2008a-2008g, 

2009a-2009c, and no date. 

4.2.13. Forestry 

Construction of the Project would require the conversion of forested lands within the 

ROW to managed shrub and grasslands. Conversion of forested land could result in 

interference with forestry/logging activities, loss or change in wildlife habitat, and 

changes in recreational uses. The spatial boundary for the cumulative effects analysis 

is defined as the portions of the Chippewa National Forest, Leech Lake Reservation, 

state forests (Bowstring and Blackduck/Buena Vista), and private forested land within 

Beltrami, Cass, Hubbard, and Itasca counties. The temporal boundary is defined as 

the lifetime of the Project. 

Impacts to forested cover types would occur during clearing of new ROW for the 

Enbridge Energy pipelines, Nary Breaker Station, and MnDOT highway expansion. 

It is not expected that forested land would be impacted by the St. Regis Superfund 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

556 

4. Cumulative Effects 

Site or thermal upgrade projects, which do not require expanded ROW. A total of 

16,252 acres of forested land would be included in harvests on U.S. Forest Service 

land. Stands cut in timber sales would be regenerated. However, some forest 

conversion would occur as a result of harvesting. A total of 2,583 acres of forested 

land are expected to undergo conversion of forest type under the U.S. Forest Service 

management projects. 

Co-location of the Project and roadway or pipeline expansions on adjacent easements 

may result in compounding loss of forest, which could affect potential for future timber 

production and fragment wildlife or vegetation populations. Similar compounding 

effects may occur if the Project is located adjacent to existing or future CNF forest 

projects, some of which require a certain amount of forested acreage to study wildlife, 

vegetation, and fire suppression. 

Table 4-15 displays the total estimated conversion of forested land for the projects 

evaluated. 

Table 4-15: Total Effects to Forested Land from Projects in the Cumulative Effects Area of Analysis 

Conversion of Forested Land 

(Acres) 

Project 432 – 812 

Enbridge 404 

USFS 2,583 

Superfund 0 

MnDOT 29* 

Utility Upgrade 

Projects 

2.5 

Total 3,451 – 3,831 

Notes: * Represents a worst case scenario, under which 100 percent of new 

ROW consists of previously forested land. 

 NA: Not Available 

Source: Enbridge Energy, 2009; Otter Tail Power et al., 2008; Otter Tail Power et al., 

2010b; USFS 2008a-2008g, 2009a-2009c, and no date. 

Conversion of forested land could result in compounding interference with 

forestry/logging activities, loss or change in wildlife habitat, and changes in 

recreational uses. 

4.2.14. Mining 

Because there are no direct or indirect effects anticipated from the Project, there are no 

cumulative impacts to mining. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

557 

4. Cumulative Effects 

4.2.15. Community Services 

Because there are no anticipated long-term direct or indirect effects from the Project, 

there are no cumulative impacts to community services. 

4.2.16. Public Utilities 

The majority of potential impacts from the Project on surrounding utility systems 

would be reduced or eliminated through the Project design. The primary effects of 

the Project on utility systems would include interruptions in service during 

construction and maintenance, and potential interference with communications 

systems. 

Interruptions and interference with utility systems are expected to be localized in 

nature. The spatial boundary for the cumulative effects analysis is defined as the 

Study Area. The temporal boundary is defined as the lifetime of the Project. 

Interference with omnidirectional and unidirectional signals is not expected from the 

Enbridge pipeline projects, roadway expansion projects, U.S. Forest Service projects, 

or utility upgrade activities. As such, no cumulative effects associated with 

interference of utility systems are expected. 

Interruptions in television, internet, phone, electric, and natural gas service could 

occur if construction of the projects identified require relocating existing cables, 

pipelines, or transmission lines or other activities that would require a temporary 

shut down in service. Scheduled shut downs of utility systems could be scheduled to 

minimize prolonged outages in the Study Area. Unscheduled shut downs could occur 

during all construction projects and invasive remediation activities at the St. Regis 

Superfund Site, resulting in an increase in the number and length of service 

disruptions. 

4.2.17. Traffic and Transportation 

Short-term impacts to traffic and transportation may occur during Project construction, 

due to detours or traffic delays caused by construction vehicles crossing roads, 

delivering materials, setting guard poles, or stringing conductors. Long-term impacts to 

traffic and transportation would result if the Project limited highway expansion 

projects, occupied highway clear zones, or resulted in the removal of living snow 

fences, which could result in an increased hazard to motorists. 

Due to the potential for temporary and long-term effects, the temporal boundary for 

the cumulative effects analysis is defined as the lifetime of the Project. The spatial 

boundary for the cumulative effects analysis is defined as Beltrami, Cass, Hubbard, 

and Itasca counties because highways and roads within the Study Area extent out 

from the Study Area throughout the four-county area. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

558 

4. Cumulative Effects 

In locations where the Project is sited in proximity to other cumulative effects projects, 

especially in locations where the Project would closely following existing pipeline or 

roadway ROWs that are undergoing construction during the timeframe of Project 

construction (along Route Alternatives 1, 2, and 4), road closures and delays could 

result in compounding traffic delays. Construction of the Enbridge pipeline projects is 

completed in the Study Area. No significant road closures are anticipated for the 

other cumulative effects projects, with the exception of MnDOT improvement 

projects. U.S. Forest Service projects would involve the decommissioning or closing 

of approximately 105 miles of roads in the CNF; however, forest service roads are 

generally not heavily travelled and any resulting traffic delays from lane closures 

from other projects are expected to be minimal. 

The longest delays in traffic would occur on roads with high traffic volumes, including 

U.S. 2, U.S. 71, and MN 371. However, complete road closures and related detours 

would likely last for only short periods of time (a period of hours, as opposed to a 

period of days), and could likely be anticipated and advertised well in advance for all 

projects. Some lane closures may be longer-term in nature, particularly where the 

Project closely parallels a road that is under construction or is located in proximity to 

construction of a pipeline or other cumulative effects project. Each of the Route 

Alternatives has the potential to affect the planned MN 197/U.S. 71 expansion because 

they cross MN 197. In this location, construction of the Project could interfere with and 

slow highway expansions projects. Multiple construction vehicles in the area could 

increase traffic delays. Highway construction on MN 197/U.S. 71 began in June 2010 

and is expected to continue into 2011. It is likely that construction of the Project 

would overlap with the MN 197/U.S. 71 expansion construction schedule. Potential 

impacts could be reduced by coordinating daily construction schedules with MnDOT. 

Although Route Alternative 3 is the longest of the Route Alternatives and could follow 

or parallel roadways for the longest distance, the Route Alternative is largely outside of 

cumulative effects projects identified, including the Enbridge pipelines, the Superfund 

Site, and the majority of CNF projects. Thus, fewer cumulative effects to traffic and 

transportation would be anticipated for Route Alternative 3 than Route Alternatives 1, 2, 

and 4. 

Long-term cumulative impacts could result if projects were co-located adjacent to 

existing roadway ROWs and resulted in the placement of structures within the ROW 

or removal or living snow fences, both of which could result in hazardous driving 

conditions. The Applicants have stated that no structures would be placed within 

highway ROW. In locations where the Project would be co-located with the pipeline 

or roadway expansion project, vegetation bordering roadway ROWs may be cleared, 

resulting in the removal of living snow fences. This could occur along Route 

Alternatives 1, 2, and 4. Co-location or expansion of multiple ROWs in a single area 

would increase the amount of cleared vegetation, resulting in increased snow blowing 

onto adjacent roadways until re-vegetation of cleared ROW occurs. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

559 

4. Cumulative Effects 

4.2.18. Safety and Health 

Increased construction in the Study Area could result in increased spills and releases of 

construction-type materials (such as gasoline, diesel, and lubricating and hydraulic 

fluids); most result from vehicle and construction equipment fueling and maintenance in 

construction staging areas or along the ROW. Due to the localized nature of resulting 

contamination from spills and releases, the spatial boundary for the cumulative 

effects analysis is defined as the Study Area. The temporal boundary for the 

cumulative effects analysis is defined as the lifetime of the Project. 

Spills and releases to the environment could occur during construction of each of the 

infrastructures projects (the Project, Enbridge Energy pipelines, utility upgrades, and 

MnDOT highway expansion). In addition, use of heavy equipment during U.S. 

Forest Service project activities, especially timber harvesting, has the potential to 

cause releases to the environment. Releases during operation are possible along the 

Enbridge pipelines, although the reliability and safety of the proposed pipelines would 

meet or exceed industry standards, reducing the potential for releases. 

The St. Regis Superfund Site is a contaminated property located within the Study 

Area, as described in Section 3.20. Existing contamination at the St. Regis Superfund 

Site represents a health and safety concern to residents and those working in 

contaminated areas that may be exposed to contaminated media. If a spill or release 

occurred from additional projects in the Study Area, potential health effects on 

persons living and working within the Study Area, specifically the Cass Lake area 

near the St. Regis Superfund Site, could be compounded. Interference of the projects 

with the St. Regis Superfund Site is not anticipated. The Applicants have stated that 

the transmission line alignment could avoid the Site. The Enbridge Energy pipelines 

are located 1,000 feet north of the northern boundary of the St. Regis Superfund Site. 

Although low in probability, a simultaneous leak on the pipeline and fault on the 

transmission line could result in ignition if the Project is not located at a minimum 

safe distance from natural gas and crude oil pipelines. To result in ignition, a gas leak 

would need to occur and a plume form before the pipeline sensor shut down at the 

compressor station. A fault would need to occur on the transmission line in the 

location of the natural gas plume before the natural gas dissipated into the 

atmosphere. The probability of all events occurring simultaneously and resulting in 

ignition would be extremely low, and modeling to ensure the safe distance between 

the Project and pipeline would further mitigate potential cumulative effects to health 

and safety through co-location of the utilities. 

Because no direct or indirect effects are expected from electric and magnetic fields 

associated with this Project, no cumulative effects from electric and magnetic fields are 

expected. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

560 

4. Cumulative Effects 

4.2.19. Noise 

The primary impacts to noise levels from the Project would be temporary increases in 

noise experienced during construction. Noise impacts from the Project would be 

limited to the construction area. As such, the spatial boundary defined for the 

cumulative effects analysis is defined as the Study Area. The temporal boundary 

defined for the cumulative effects analysis is defined as the construction period. 

Noise generated by construction equipment is likely to constitute the greatest temporary 

noise impact as a result of the cumulative projects. Earth moving machinery such as 

bulldozers or supporting equipment like air compressors or concrete mixers will 

generate temporary noise above ambient background noise levels. Use of heavy 

equipment would be required for each of the project evaluated. Where construction 

schedules coincide, cumulative effects on ambient noise levels would occur. The 

Project is expected to overlap with construction schedules for the MnDOT highway 

expansion and the U.S. Forest Service timber harvesting. Where the project would be 

co-located with the Enbridge Energy pipeline, staggered construction schedules are 

anticipated (Route Alternatives 1, 2, and 4). In these locations, the duration of 

temporary noise impacts would be pro-longed. 

4.3. Cumulative Effects Summary 

A summary of cumulative effects from the Project and other past, present, and 

reasonably foreseeable projects located within the spatial boundaries defined for each 

resource area is presented in Table 4-16. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

561 

4. Cumulative Effects 

Table 4-16: Summary of Cumulative Effects 

Resource Spatial Boundary Temporal 

Boundary 

Cumulative Effects Summary 

Aesthetics Study Area plus 

0.1 mile buffer 

Lifetime of Project 

Co-location of the Project with Enbridge pipeline expansion projects wocompounding effects to the viewshed in the overlapping 68 to 75-mile loAlternatives 1, 2, and 4. This would result from tree clearing to widen thEnbridge ROW to the combined existing and new ROWs totaling 325 fee

Air Emissions Beltrami, Cass, 

Hubbard, and Itasca counties 

Construction Period 

Construction of the Project at the same time as the highway expansion 

Service timber harvesting, or active remediation at the Superfund Site, m

compounding effects from fugitive dust and air emissions from constru

Soils and Geology Beltrami, Cass, 

Hubbard, and Itasca counties 

Lifetime of Project 

Construction of the Project at the same time as the roadway expansion 

increased temporary disruption to surface soils and the increased potencompaction. Long-term cumulative effects would be a loss of available aboveground structures associated with the Project and Enbridge pipelStation, existing contamination at the Superfund Site, and road paving a

MnDOT highway expansion. Cumulative temporary effects to soils are estimated between 1,827 and 

long-term effects to soils are estimated between 403 and 405 acres. 

Water and Floodplains Mississippi River 

Headwaters and Leech Lake River Watersheds 

Lifetime of Project 

No direct cumulative effects are expected. The Project is expected to spresources and floodplains in the watersheds may be indirectly affected 

effects of soil erosion. Temporary effects to water resources would occthe Project and Enbridge Energy pipelines. There are no anticipated imfrom the U.S. Forest Service, MnDOT, utility upgrade projects, or SuperfThe Project and Enbridge pipelines would require between 35 and 62 crbodies. 

Wetlands Mississippi River 

Headwaters and Leech Lake River Watersheds 

Lifetime of Project 

Co-location of the Project and Enbridge pipelines may result in compouwetlands, including changes in sedimentation, turbidity, and runoff; cha

long-term loss of wetlands; and wetland type conversion. There are no a

wetlands from the U.S. Forest Service, MnDOT, thermal upgrade, or SupThe Project and Enbridge pipelines would require between 610 and 637 cannot be spanned. Temporary impacts to wetlands from the two proje

to 746 acres. Long term cumulative effects would include wetland type 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

562 

4. Cumulative Effects 

602 and 705 acres. 

Biological Resources and Species of Concern 

Study Area plus CNF; LLR; five state forests (Big Fork, Blackduck, Bowstring, Buena Vista, and Welsh Lake); and Bemidji Slough WMA 

Lifetime of Project 

Potential cumulative effects to wildlife include an increase in the direct 

conversion of habitats, increased habitat fragmentation, and the potentwith aboveground structures and equipment. The Project, Enbridge EnMnDOT expansion would expand the existing ROWs or create new ROWwoodlands to grass/shrub. In addition U.S. Forest Service project that i

would result in conversion of woodlands. Species that rely upon forestgenerally be displaced in favor of grass or shrub land adapted species. Clearing of vegetation may result in cumulative effects to wildlife habita

gathering activities. Additionally, clearing of ROW for the project and m

throughout the area may increase the potential for the spread of noxiouwould result in a total of between 18,757 and 19,498 acres of vegetation within the Study Area and surrounding resource areas. 

Cultural Resources and Values 

Area of Potential Effect 

Lifetime of Project 

For all projects involving construction or subsurface activities, includinEnergy pipelines, Nary Breaker Station, MnDOT highway expansion, and 

Site, unrecorded archaeological sites or traditional cultural properties mCumulative loss of cultural resources would occur if archaeological site properties are disturbed on multiple sites. 

Land Use Beltrami, Cass, 

Hubbard, and Itasca counties 

Lifetime of Project 

Landowners may experience both a temporary and long-term loss of us

would be needed for the Project ROW, Enbridge ROW, Nary Breaker Sta

expansion ROW. A compounding effect of loss of land use would be exowners with multiple easements on a single property. Creation of new R

Enbridge Energy pipeline projects may increase public access to privat

potential for increased trespassing and unauthorized use of such landsThe temporary loss of use for landowners would occur during construcvehicles are located within the ROW. Staggering of the Project and Enb

schedules could result in prolonged impacts in locations where the ROW

The following temporary and long-term impacts to land use would be exCass, Hubbard, and Itasca counties as a result of the projects included analysis: Temporary – Agricultural Land: 356-444 acres  Urban Land: 812-879 acres  Forest Land: 17,093 acres 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

563 

4. Cumulative Effects 

 Grass/Shrub/Open Land: 555-701 acres Long-term – Agricultural Land: 147-148 acres  Urban Land: 34 acres  Forest Land: 3,451-3,831 acres  Grass/Shrub/Open Land: 133 acres 

Socioeconomics Beltrami, Cass, 

Hubbard, and Itasca counties 

Lifetime of Project 

Wages and salaries paid to contractors and workers in the counties woubenefit to the total personal income of the region. These construction jo

cumulative short-term influx of income to the area. Construction expenequipment, energy, fuel, operating supplies, and other products and serbusinesses in the local communities to the extent that the products and locally. Additional a cumulative benefit to personal income would be gethe region and the State by circulation and recirculation of dollars paid as business expenditures and State and local taxes. Short-term indirect positive economic cumulative impacts would result activities. Revenue likely would increase for some local businesses, sugas stations, and grocery stores, due to increased spending from worke

construction of the projects in the four-county area. Potential negative cumulative effects to the four-county area would inclincome from a decrease in recreational users of the area during constru

subsistence-based economy could result from loss of acreage for subsfragmentation of habitat, and introduction/spread of invasive species du

disturbance/new corridors. These impacts would primarily be limited to tribal members engage in hunting and gathering. 

Environmental Justice Beltrami, Cass, 

Hubbard, and Itasca counties 

Lifetime of Project 

Enbridge Energy pipeline construction is completed in the Study Area. subsistence activities would not be cumulative in terms of impacted acrlimitations would be prolonged. Additionally, any off-site contamination Superfund site could make some subsistence resources unfit for consuNegative impacts to subsistence-based economies may occur from the maintenance of the projects as a result of loss of acreage for subsistencfragmentation of habitat, and introduction/spread of invasive species dudisturbance/new corridors. These impacts would primarily be limited to tribal members engage in hunting and gathering.

Recreation Study Area plus 

CNF; LLR; five 

Lifetime of Project 

Removal of forested land from the Project, clearing of ROW for the Enbrproject and MnDOT highway expansion, and timber harvests conducted 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

564 

4. Cumulative Effects 

state forests (Big Fork, Blackduck, Bowstring, Buena Vista, and Welsh Lake); and Bemidji Slough WMA 

Service projects, have the potential to result in a compounding loss of fcould limit opportunities for passive recreational activities and hunting. forested land are discussed in Section 4.2.13. Cumulative effects would without existing corridor. Constructing of the Project transmission line adjacent to an existing linear utility corridor would not significantly chaof the area, because the corridor was previously disturbed and the existincludes a linear type feature. During construction of the projects and timber harvesting, noise, dust, adeter visitors to the area. Staggering of construction projects and use oharvesting and improvement projects would lessen the magnitude of bueffects from construction on noise, dust, and traffic delays. 

The creation of new ROW under the Project and Enbridge Energy pipeli

encourage the increased use of OHVs on new corridor. This use of the 

negative impact in sensitive areas and the CNF, where unauthorized OH

it would be a positive impact to recreational opportunities in areas wher

allowed. 

Agriculture Beltrami, Cass, 

Hubbard, and Itasca counties 

Lifetime of Project 

The Project, MnDOT highway expansion, and Enbridge pipelines would loss of agricultural land and prime farmland within Beltrami, Cass, Hubb

Temporary cumulative impacts would include prolonged or compoundinagricultural production. Long-term cumulative effects to agricultural pr

from placement of aboveground structures of agricultural and prime far

limit agricultural use of the land. There are no anticipated impacts to agfrom the U.S. Forest Service or St. Regis Superfund Site. No long-term 

from the utility upgrade projects; some temporary impacts may occur if 

ROW consist of agricultural or prime farmland, although the amount of The Project, Enbridge pipelines, and MnDOT highway expansion could rtemporary effect on between 356 and 444 acres of agricultural land and 

farmland. The projects would result in long-term effects on between 14agricultural land and 30 acres of prime farmland. 

Forestry Study Area plus 

CNF; LLR; and state forests in vicinity of Study Area (Bowstring 

Lifetime of Project 

Co-location of the Project and roadway or pipeline expansions on adjacresult in compounding loss of forest through conversion, which could atimber production and fragment wildlife or vegetation populations. Simmay occur if the Project is located adjacent to existing or future CNF forwhich require a certain amount of forested acreage to study wildlife, veg
Bemidji – Grand Rapids Transmission Line 

Final EIS 

565 

4. Cumulative Effects 

and Blackduck/Buena Vista) 

suppression. Total forest conversion for the projects would be between 

Mining No effects of the Project expected; thus, cumulative effects not evaluated. Community Services No effects of the Project expected; thus, cumulative effects not evaluated. Utility Systems Study Area Lifetime of 

Project 

Interruptions in television, internet, phone, electric, and natural gas servconstruction of the projects identified require relocating existing cables

transmission lines or other activities that would require a temporary shuScheduled shut downs of utility systems could be scheduled to minimiz

the Study Area. Unscheduled shut downs could occur during all constr

invasive remediation activities at the St. Regis Superfund Site, resulting number and length of service disruptions. 

Traffic and Transportation 

Beltrami, Cass, Hubbard, and Itasca counties 

Lifetime of Project 

Construction of the projects at the same time could result in compound

closures and traffic delays. Staggered construction of projects in the S

prolonged road closures and delays. Long-term cumulative impacts could result if projects were co-located aroadway ROWs and resulted in the placement of structures within the Rsnow fences, both of which could result in hazardous driving conditionsstated that no structures would be placed within highway ROW. In loca

would be co-located with the pipeline or roadway expansion project, vegroadway ROWs may be cleared, resulting in the removal of living snow along Route Alternatives 1, 2, and 4. Co-location or expansion of multipwould increase the amount of cleared vegetation, resulting in increased adjacent roadways until re-vegetation of cleared ROW occurs. 

Safety and Health Study Area Lifetime of 

Project 

Spills and releases to the environment could occur during construction infrastructures projects and timber harvesting has the potential to causenvironment. Releases during operation are possible along the Enbridgreliability and safety of the proposed pipelines would meet or exceed inreducing the potential for releases. Existing contamination at the St. Rerepresents a health and safety concern to residents and those working that may be exposed to contaminated media. If a spill or release occurr

projects in the Study Area, potential health effects on persons living and 

Study Area, specifically the Cass Lake area near the St. Regis Superfuncompounded. Direct interference of the projects with the St. Regis Supeanticipated. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

566 

4. Cumulative Effects 

Noise Study Area Construction 

Period 

Where construction schedules coincide, compounding effects on ambieof heavy equipment would occur. The Project is expected to overlap wi

schedules for the MnDOT highway expansion and U.S. Forest Service ti

the project would be co-located with the Enbridge Energy pipeline, stagschedules are anticipated. In these locations, the duration of temporary pro-longed. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

567 

5. Comparison of Alternatives 

5. Comparison of Alternatives 

This section summarizes the comparative impacts of the No-Build Alternative and Route 

Alternatives 1, 2, 3, and 4. Due to the differences in length and function of the various segment 

alternatives, the potential impacts of the proposed Segment Alternatives are not directly 

comparable and are not discussed herein. This Section defines the Federally Preferred 

Alternative for the Project, which has been identified by the lead federal agency, Rural 

Utilities Service. The section summarizes potential mitigation for the direct and indirect effects 

identified in Section 3.0 and the potential irreversible and irretrievable commitment of resources 

under the build alternatives. Finally, the section discusses the relationship between short-term 

uses of the environment and the maintenance and enhancement of long-term productivity. 

5.1. Comparative Impacts of Alternatives 

Five main alternatives were carried forward for analysis in the environmental impact statement 

(EIS): Route Alternative 1; Route Alternative 2; Route Alternative 3; Route Alternative 4; and 

the No-Build Alternatives. Segment Alternatives identified by the Applicants (Otter Tail Power 

et al., 2008a; Otter Tail Power et al., 2008b) were also included for analysis in the EIS. In 

general, potential impacts do not vary greatly between the build alternatives. Route Alternative 

3 is significantly longer than Route Alternatives 1, 2, and 4; as such, more acreage would be 

affected for resources located along Route Alternative 3 than Alternatives 1, 2, and 4. The 

nature and extent of potential impacts to the Leech Lake Reservation (LLR) and Chippewa 

National Forest (CNF) lands would be similar to those for the entire lengths of Route 

Alternatives 1, 2, 3, or 4. Route Alternative 3 was designed to avoid the LLR as much as 

possible; as such, impacts to resources within the LLR boundaries would be much less for Route 

Alternative 3 than for Route Alternatives 1, 2, and 4. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

568 

5. Comparison of Alternatives 

Table 5-1: Comparative Impacts of Route Alternatives 

Resource Route Alternative 1 and 

associated Segment 

Alternatives 

Route Alternative 2 and 

associated Segment 

Alternatives 

Route Alternative 3 and 

associated Segment 

Alternatives 

Route Alternative 4 and 

associated Segment 

Alternatives 

Treaty Trust ResourcesDirect impacts Long-term loss of an 

important gathering area for tribal members. 

Some long-term loss of gathering opportunities for tribal members. 

Minimal loss of gathering opportunities for tribal members due to avoidance of the LLR. 

Some long-term loss of gathering opportunities fotribal members. 

AestheticsDirect impacts Loss of scenic resources; 

loss of trees would change view; contrast to surrounding landscape. Conversion of 580 acres of forested area. Impact to spiritual and significant cultural area of the Leech Lake Band of Ojibwe; Aniishiinaabe cultural and spirituality is tied to land and the surrounding environment so any disturbance to this visual or aesthetics of Route Alternative 1 corridor would have a direct affect to the Leech Lake People. Impacts to Ten Section management area 

Loss of scenic resources; loss of trees would change view; contrast to surrounding landscape. Conversion of 432 acres of forested area. Alternative 2, which follows U.S. 2, would be visible to visitors and residents due to less forest cover to shield views and would be located near more recreational areas. The Route Alternative largely avoids areas of significant and cultural importance, including the portion of the Ten Section management area used for gathering and other tribal activities. 

Loss of scenic resources; loss of trees would change view; contrast to surrounding landscape. Conversion of 812 acres of 

forested area. The Route Alternative largely avoids areas of significant spiritual and cultural importance. 

Loss of scenic resources; loss of trees would changview; contrast to surrounding landscape. Conversion of 575 acres oforested area. Alternative 4, which follows U.S. 2 from Cass Lake to Ball Club, would be visible to visitors and residents due to less forest cover to shield views and would be located near more recreational areas. The Route Alternative largely avoids areas of significant spiritual and cultural importance, including the portion of the Ten Section management area used fogathering and other tribal activities. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

569 

5. Comparison of Alternatives 

Resource Route Alternative 1 and 

associated Segment 

Alternatives 

Route Alternative 2 and 

associated Segment 

Alternatives 

Route Alternative 3 and 

associated Segment 

Alternatives 

Route Alternative 4 and 

associated Segment 

Alternatives 

Air Quality and Climate Direct Impacts Fugitive dust and vehicle 

emissions during construction. 

Fugitive dust and vehicle emissions during construction. 

Fugitive dust and vehicle emissions during construction. Alternative 3 would result in the greatest duration of construction effects due to its length. 

Fugitive dust and vehicle emissions during construction. 

Indirect Impacts Minor decrease in carbon 

sequestration potential due to loss of existing trees. 

Minor decrease in carbon sequestration potential due to loss of existing trees. 

Minor decrease in carbon sequestration potential due to loss of existing trees, although potential loss of trees and carbon sequestration is approximately twice the anticipated loss of trees and carbon sequestration potential for Route Alternatives 1, 2, or 4. 

Minor decrease in carbon sequestration potential due to loss of existing trees. 

Geology and SoilsTopography No effect. No effect. No effect. No effect. Geology No effect. No effect. No effect. No effect. Soils Soils would be disturbed 

during construction; erosion and compaction are possible. 

Soils would be disturbed during construction; erosion and compaction are possible. 

Soils would be disturbed during construction; erosion and compaction are possible. 

Soils would be disturbed during construction; erosion and compaction are possible. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

570 

5. Comparison of Alternatives 

Resource Route Alternative 1 and 

associated Segment 

Alternatives 

Route Alternative 2 and 

associated Segment 

Alternatives 

Route Alternative 3 and 

associated Segment 

Alternatives 

Route Alternative 4 and 

associated Segment 

Alternatives 

Temporary soil impacts from transmission line structures for entire route are 879 acres 

and long-term impacts are 3 acres. 

Temporary soil impacts from transmission line structures for entire route are 919 acres 

and long-term impacts are 3 acres. 

Temporary soil impacts from transmission line structures for entire route are 1,373acres and long-term impacts are 5 acres. 

Temporary soil impacts from transmission line structures for entire route are 904 acres and longterm impacts are 3 acres. 

Temporary soil impacts to LLR from transmission line structures are 618 acres and long-term impacts are 2 acres. 

Temporary soil impacts to LLR from transmission line structures are 632 acres and long-term impacts are 2 acres. 

Temporary soil impacts to LLR from transmission line structures are 4 acres and long-term impacts are 0 acres. 

Temporary soil impacts to LLR from transmission linstructures are 636 acres and long-term impacts are 2 acres. 

Temporary soil impacts to CNF from transmission line structures are 531 acres and long-term impacts is 1 acre. Long-term impacts from substation construction and expansion could range up to 7.8 acres. 

Temporary soil impacts to CNF from transmission line structures are 486 acres and long-term impacts is 1 acre. Long-term impacts from substation construction and expansion are 3.5 acres. 

Temporary soil impacts to CNF from transmission line structures are 837 acres and long-term impacts are 3 acres. Long-term impacts from substation construction and expansion are 1.3 acres. 

Temporary soil impacts to CNF from transmission line structures are 538 acres and long-term impacts is 1 acre. Long-term impacts from substation construction and expansion are 3.5 acres.

Water Resources

No major effect. If water bodies cannot be spanned, shore erosion, sedimentation, and changes in turbidity may occur. 

No major effect. If water bodies cannot be spanned, shore erosion, sedimentation, and changes in turbidity may occur. 

No major effect. If water bodies cannot be spanned, shore erosion, sedimentation, and changes in turbidity may occur. 

No major effect. If water bodies cannot be spannedshore erosion, sedimentation, and changes in turbidity may occur. 

Crosses 4 water basins and 6 water courses along entire route. 

Crosses 2 water basins and 7 water courses along entire route. 

Crosses 9 water basins and 27 water courses along entire route. 

Crosses 5 water basins and 10 water courses along entire route. 

Surface Water 

Crosses 3 water basins and 5 water courses on the LLR. 

Crosses 1 water basins and 3 water courses on the LLR. 

Avoids the LLR. Crosses 4 water basins 

and 4 water courses on thLLR. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

571 

5. Comparison of Alternatives 

Resource Route Alternative 1 and 

associated Segment 

Alternatives 

Route Alternative 2 and 

associated Segment 

Alternatives 

Route Alternative 3 and 

associated Segment 

Alternatives 

Route Alternative 4 and 

associated Segment 

Alternatives 

Crosses 4 water basins and 5 water courses on CNF. 

Crosses 2 water basins and 2 water courses on CNF. 

Crosses 8 water basins and 15 water courses on CNF. 

Crosses 4 water basins and 1 water course on CNF. 

Groundwater No major effect. No major effect. No major effect. No major effect. Floodplains

No major effect. If water bodies cannot be spanned, erosion or sedimentation may result in a loss of surrounding floodplains. 

No major effect. If water bodies cannot be spanned, erosion or sedimentation may result in a loss of surrounding floodplains. 

No major effect. If water bodies cannot be spanned, erosion or sedimentation may result in a loss of surrounding floodplains. 

No major effect. If water bodies cannot be spannederosion or sedimentation may result in a loss of surrounding floodplains. 

Direct Effects 

Possible location of 8 structures in the FEMA designated areas. 

Possible location of 4 structures in the FEMA designated areas. 

Possible location of 46 structures in the FEMA designated areas with 16 in the CNF. 

Possible location of 8 structures in the FEMA designated areas. 

Wetlands

Potential loss or conversion of wetlands. 

Potential loss or conversion of wetlands. 

Potential loss or conversion of wetlands. The highest amount of wetland type conversion would occur for Alternative 3. 

Potential loss or conversion of wetlands. 

Direct Effects 

Potential effects to NWI wetlands: temporary impacts to 83 acres, wetland conversion of 209 acres, and <1 acre of long-term impacts along entire route. 

Potential effects to NWI wetlands: temporary Impacts to 59 acres, wetland conversion of 166 acres, and <1 acre of long-term impacts along entire route. 

Potential effects to NWI wetlands: temporary Impacts to 101 acres, wetland conversion of 269 acres, and <1 acre of long-term impacts along entire route. 

Potential effects to NWI wetlands: temporary Impacts to 91 acres, wetland conversion of 226 acres, and <1 acre of longterm impacts along entire route. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

572 

5. Comparison of Alternatives 

Resource Route Alternative 1 and 

associated Segment 

Alternatives 

Route Alternative 2 and 

associated Segment 

Alternatives 

Route Alternative 3 and 

associated Segment 

Alternatives 

Route Alternative 4 and 

associated Segment 

Alternatives 

113 structures are estimated in NWI wetlands. 

93 structures are estimated in NWI wetlands. 

120 structures are estimated in NWI wetlands. 

112 structures are estimated in NWI wetlands

Indirect Effects 

Conversion of wetland types may result in a change in wildlife species composition, diversity, and abundance. 

Conversion of wetland types may result in a change in wildlife species composition, diversity, and abundance. 

Conversion of wetland types may result in a change in wildlife species composition, diversity, and abundance. 

Conversion of wetland types may result in a change in wildlife species composition, diversity, anabundance. 

Biological ResourcesDirect Effects Conversion of existing 

vegetation communities (1,048 acres). Disturbance of intact diverse native plant communities. Introduction or spread of noxious weeds in cleared ROWs. Short-term impacts to wildlife from conversion of forested habitat. Long-term conversion of wildlife habitat in areas that remain cleared and increased long-term fragmentation and edge effect (5.2 miles of new corridors). Would establish a long-term ROW in canopy forest. 

Conversion of existing vegetation communities (1,018 acres). Disturbance of intact diverse native plant communities. Introduction or spread of noxious weeds in cleared ROWs. Short-term impacts to wildlife from conversion of forested habitat. Long-term conversion of wildlife habitat in areas that remain cleared and increased long-term fragmentation and edge effect (2.6 miles of new corridors). 

Conversion of existing vegetation communities (1,759 acres). Disturbance of intact diverse native plant communities. Introduction or spread of noxious weeds in cleared ROWs. Short-term impacts to wildlife from conversion of forested habitat. Long-term conversion of wildlife habitat in areas that remain cleared and increased long-term fragmentation and edge effect (5.1 miles of new corridors). 

Conversion of existing vegetation communities (1,064 acres). Disturbance of intact diverse native plant communities. Introduction or spread of noxious weeds in cleared ROWs. Short-term impacts to wildlife from conversion oforested habitat. Long-term conversion of wildlife habitat in areas that remain cleared and increased long-term fragmentation and edge effect (7.7 miles of new corridors).
Bemidji – Grand Rapids Transmission Line 

Final EIS 

573 

5. Comparison of Alternatives 

Resource Route Alternative 1 and 

associated Segment 

Alternatives 

Route Alternative 2 and 

associated Segment 

Alternatives 

Route Alternative 3 and 

associated Segment 

Alternatives 

Route Alternative 4 and 

associated Segment 

Alternatives 

Species of ConcernDirect Effects Potential for habitat 

conversion. Destruction of non-motile plant species, if located within ROW. Disturbance of intact diverse native plant communities. Affect to Ten Section Area by converting forested land and resulting in habitat conversion and edge effect. 

MnDNR and LLDRM have determined Route Alternative 1 would jeopardize the only known one-flowered broomrape population in Northern Minnesota.. 

Potential for habitat conversion. Destruction of non-motile plant species, if located within ROW. Disturbance of intact diverse native plant communities. Affects periphery of Ten Section Area by converting forested land and resulting in habitat conversion and edge effect. 

Potential for habitat conversion. Destruction of non-motile plant species, if located within ROW. Disturbance of intact diverse native plant communities. 

Potential for habitat conversion. Destruction of non-motile plant species, if located within ROW. Disturbance of intact diverse native plant communities. Affects periphery of Ten Section Area by convertinforested land and resulting in habitat conversion and edge effect. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

574 

5. Comparison of Alternatives 

Resource Route Alternative 1 and 

associated Segment 

Alternatives 

Route Alternative 2 and 

associated Segment 

Alternatives 

Route Alternative 3 and 

associated Segment 

Alternatives 

Route Alternative 4 and 

associated Segment 

Alternatives 

Cultural Resources and Values including TCPsDirect Effects Potential loss or disturbance 

of cultural resources or sites Total of 41 known cultural properties located within route (14 historic; 25 prehistoric; 2 multicomponent). Potential impacts on the viewshed of historical structures or landscapes. Potential to disturb unrecorded archaeological sites. Long-term loss of TCPs and locations where they are gathered. Impact to the vitality of the spiritual well-being of tribal residents who use TCPs. Presence of transmission line would alter cultural experience in areas identified as culturally significant, including Ten Section and Guthrie Till Plain areas. 

Potential loss or disturbance of cultural resources or sites Total of 38 known cultural properties located within route (25 historic; 11 prehistoric; 2 multicomponent). Potential impacts on the viewshed of historical structures or landscapes. Potential to disturb unrecorded archaeological sites. Long-term loss of TCPs and locations where they are gathered. Impact to the vitality of the spiritual well-being of tribal residents who use TCPs. 

 Potential loss or disturbance of cultural resources or sites Total of 33 known cultural properties located within route (27 historic; 6 prehistoric; 0 multicomponent). Potential impacts on the viewshed of historical structures or landscapes. Potential to disturb unrecorded archaeological sites. 

Potential loss or disturbance of cultural resources or sites Total of 19 known cultural properties located within route (8 historic; 10 prehistoric; 1 multicomponent). Potential impacts on the viewshed of historical structures or landscapes. Potential to disturb unrecorded archaeologicasites. Long-term loss of TCPs and locations where they are gathered. Impact to the vitality of the spiritual well-being of tribal residents who use TCPs.
Bemidji – Grand Rapids Transmission Line 

Final EIS 

575 

5. Comparison of Alternatives 

Land Use

Temporary and long-term loss of land use by private owners. 

Temporary and long-term loss of land use by private owners. 

Temporary and long-term loss of land use by private owners. 

Temporary and long-term loss of land use by private owners. 

Temporary and long-term land impacts within ROW: 882 acres of which 580

acres of forested land will have long-term impacts. 

Temporary and long-term land impacts within ROW: 922 acres of which 432acres of forested land will have long-term impacts. 

Temporary and long-term land impacts within ROW: 1,378 acres of which 812acres of forested land will have long-term impacts. 

Temporary and long-term land impacts within ROW: 907 acres of which 575 acres of forested land will have long-term impacts. 

Conversion of 4 acres for new Cass Lake substation. Additional acreage may be required for possible expansion at Nary Junction. 

Conversion of 2.2 acres for expansion of Cass Lake Substation. Acreage is owned by Otter Tail Power. 

 Conversion of 2.2 acres fo

expansion of Cass Lake Substation. Acreage is owned by Otter Tail Power

Total LLR temporary and long-term impacts: 620 acres; 433 acres of longterm forested land impacts. 

Total LLR temporary and long-term impacts: 634acres; 338 acres of longterm forested land impacts. 

Total LLR temporary and long-term impacts: 4 acres; 1 acre of long-term forested land impacts. 

Total LLR temporary and long-term impacts: 638 acres; 420 acres of longterm forested land impacts. 

Direct Effects 

Total CNF temporary and long-term impacts: 532

acres; 389 acres of longterm forested land impacts. 

Total CNF temporary and long-term impacts: 487

acres; 275 acres of longterm forested land impacts. 

Total CNF temporary and long-term impacts: 840 acres; 581 acres of longterm forested land impacts. 

Total CNF temporary and long-term impacts: 539 acres; 383 acres of longterm forested land impacts. 

Indirect Effects Potential for increased 

trespassing through creation of easements. 

Potential for increased trespassing through creation of easements. 

Potential for increased trespassing through creation of easements. 

Potential for increased trespassing through creation of easements. 

SocioeconomicsDirect Effect Short-term influx of income 

during construction and increased tax base (property taxes from the Applicant) during operation of the project. 

Short-term influx of income during construction and increased tax base (property taxes from the Applicant) during operation of the project. 

Short-term influx of income during construction and increased tax base (property taxes from the Applicant) during operation of the project. 

Short-term influx of income during construction and increased tax base (property taxes from the Applicant) during operation of the project. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

576 

5. Comparison of Alternatives 

 Economic benefit to 

businesses and surrounding communities through increased electrical capacity and reliability. Potential decrease in property values. 3 homes located within feasible ROW evaluated; 26 homes located within 200 feet of either side of the feasible centerline evaluated. 580 acres of forest land lost 

from timber harvesting. Greatest potential for impacts to subsistence uses from conversion and fragmentation of habitat and introduction of invasive species. Potentially affects up to 664 acres of total ROW within the LLR. 

Economic benefit to businesses and surrounding communities through increased electrical capacity and reliability. Potential decrease in property values. 15 homes located within feasible ROW evaluated; 69 homes located within 200 feet of either side of the feasible centerline evaluated. 432 acres of forest land lost from timber harvesting. Moderate potential for impacts to subsistence uses from conversion and fragmentation of habitat and introduction of invasive species. Potentially affects up to 656 acres of total ROW 

within the LLR. 

Economic benefit to businesses and surrounding communities through increased electrical capacity and reliability. Potential decrease in property values. Greatest potential to directly affect residences. 25 homes located within feasible ROW evaluated; 127 homes located within 200 feet of either side of the feasible centerline evaluated.812 acres of forest land lost from timber harvesting. Least potential for impacts to subsistence uses from conversion and fragmentation of habitat and introduction of invasive species. Potentially affects up to 4 acres of total ROW within the LLR. 

Economic benefit to businesses and surrounding communities through increased electrical capacity and reliability. Potential decrease in property values. Least potential to directly affect residences. No homes located within feasible ROW evaluated; 15 homes located within 200 feet of either side of the feasible centerline evaluated. 575 acres of forest land lost from timber harvesting. Moderate potential for impacts to subsistence uses from conversion and fragmentation of habitat and introduction of invasive species. Potentially affects up to 672 acres of total ROW within the LLR. 

Indirect Effects Increased timber sales in the 

vicinity of the project during construction, but loss of future timber resources. 

Increased timber sales in the vicinity of the project during construction, but loss of future timber resources. 

Increased timber sales in the vicinity of the project during construction, but loss of future timber resources. 

Increased timber sales in the vicinity of the project during construction, but loss of future timber resources. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

577 

5. Comparison of Alternatives 

Environmental JusticeDirect Effects Indirect Effects 

Crosses the homeland of Minority Community. Will result in long-term loss of gathering lands and temporary disruption to hunting and gathering will occur during construction. Long-term aesthetic impacts to a Minority Community. Aesthetic intrusion would alter cultural experience in areas identified as culturally significant, including Ten Section and Guthrie Till Plain areas. 

Crosses the homeland of Minority Community. Will result in long-term loss of gathering lands and temporary disruption to hunting and gathering will occur during construction. Long-term aesthetic impacts to a Minority Community. 

Largely avoids the LLR. Will result in loss of a small amount of gathering lands and temporary disruption to hunting and gathering will occur during construction. 

Crosses the homeland of Minority Community. Will result in long-term loss of gathering lands and temporary disruption to hunting and gathering will occur during constructionLong-term aesthetic impacts to a Minority Community.

Recreation and TourismDirect Effects Removal of forested land 

within the LLR and CNF. Possible location of the ROW within the Bemidji Slough or Bemidji State Game Refuge. Potential Bemidji Slough impacts: 5 acres temporarily and 675 square feet longterm. Potential Bemidji State Game Refuge impacts: 65 acres temporarily and 0.2 acres long-term. 

Removal of forested land within the LLR and CNF. Possible location of the ROW within the Bemidji State Game Refuge. Potential Bemidji State Game Refuge impacts: 124 acres temporarily and 0.3 acres long-term. 

Removal of forested land within the LLR and CNF. Possible location of the ROW within the Bemidji Slough or Bemidji State Game Refuge. Potential Bemidji Slough impacts: 4.3 acres temporarily and 561 square feet long-term. Potential Bemidji State Game Refuge impacts: 111 acres temporarily and 0.3 acres long-term. 

Removal of forested land within the LLR and CNF. Possible location of the ROW within the Bemidji Slough or Bemidji State Game Refuge. Potential Bemidji Slough impacts: 5 acres temporarily and 675 square feet long-term. Potential Bemidji State Game Refuge impacts: 65 acres temporarily and 0.2 acres long-term.
Bemidji – Grand Rapids Transmission Line 

Final EIS 

578 

5. Comparison of Alternatives 

Indirect Effects Changes to vegetation and 

land cover within easement may impact wildlife habitat and affect hunting areas. Creation of easements may increase the opportunities for OHV/snowmobile trails outside the CNF. Within the CNF, opportunities for OHV/snowmobile trails would be identified on a forest-wide basis as connectors to other routes. It is not anticipated that any of the Route Alternatives would provide connector routes.

Unexpected noise levels (during construction) or viewshed changes may affect non-motorized recreational activities. 

Changes to vegetation and land cover within easement may impact wildlife habitat and affect hunting areas. Creation of easements may increase the opportunities for OHV/snowmobile trails outside the CNF. Within the CNF, opportunities for OHV/snowmobile trails would be identified on a forest-wide basis as connectors to other routes. It is not anticipated that any of the Route Alternatives would provide connector routes.Unexpected noise levels (during construction) or viewshed changes may affect passive recreational activities. 

Changes to vegetation and land cover within easement may impact wildlife habitat and affect hunting areas. Creation of easements may increase the opportunities for OHV/snowmobile trails outside the CNF. Within the CNF, opportunities for OHV/snowmobile trails would be identified on a forest-wide basis as connectors to other routes. It is not anticipated that any of the Route Alternatives would provide connector routes.

Unexpected noise levels (during construction) or viewshed changes may affect passive recreational activities. 

Changes to vegetation and land cover within easement may impact wildlife habitat and affect hunting areas. Creation of easements may increase the opportunities for OHV/snowmobile trails outside the CNF. Within the CNF, opportunities for OHV/snowmobile trails would be identified on a forest-wide basis as connectors to other routes. It is not anticipated that any of the Route Alternatives would provide connector routes. Unexpected noise levels (during construction) or viewshed changes may affect passive recreationaactivities.
Bemidji – Grand Rapids Transmission Line 

Final EIS 

579 

5. Comparison of Alternatives 

AgricultureDirect Effects Loss of agricultural land (52 

acres temporarily and 0.7 acres long-term) and prime farmland (1.3 acres longterm). Largest loss of agricultural and farmland on LLR. Potential interference with agricultural activities (maneuvering equipment around poles and aerial spraying). 

Loss of agricultural land (31 acres temporarily and 0.3 acres long-term) and prime farmland (0.7 acres longterm). Potential interference with agricultural activities (maneuvering equipment around poles and aerial spraying). 

Loss of agricultural land (119 acres temporarily and 2 acres long-term) and prime farmland (3.6 acres longterm). No affect to agricultural/farmland on LLR. 

Potential interference with agricultural activities (maneuvering equipment around poles and aerial spraying).

Loss of agricultural land (47 acres temporarily and 0.6 acres long-term) and prime farmland (0.3 acres long-term). Potential interference with agricultural activities (maneuvering equipment around poles and aerial spraying). 

Forestry

Long-term loss of forested land and timber resources. 

Long-term loss of forested land and timber resources. 

Long-term loss of forested land and timber resources. 

Long-term loss of forested land and timber resources

Conversion of about 580acres of forested area to managed shrub and grasslands along entire route; 433 acres in LLR; 389

acres in CNF. 4 acres of forest land lost for new Cass Lake substation. 

Conversion of about 432acres of forested area to managed shrub and grasslands along entire route; 336 acres in LLR; 275

in CNF. 

Conversion of about 812

acres of forested area to managed shrub and grasslands along entire route; 1 acre in LLR; 581acres in CNF. 

Conversion of about 575 acres of forested area to managed shrub and grasslands along entire route; 420 acres in LLR; 383 acres in CNF. 

Lost opportunity for silvicultural research in Pike Bay Experimental Forest. 

Direct Effects 

Affect to Ten Section Area by converting forested land and result in loss of old growth. 

Affect to Ten Section Area by converting forested land and result in loss of old growth. 

Affect to Ten Section Area by converting forested land and result in loss of old growth. 
Bemidji – Grand Rapids Transmission Line 

Final EIS 

580 

5. Comparison of Alternatives 

Mining No major effect. No major effect. No major effect. No major effect. Community Services

No major effect. No major effect. No major effect. No major effect. 

Utility SystemsDirect Effects Potential interference with 

omnidirectional and unidirectional antenna, resulting in TV and radio interference. Electrical interference on underground pipelines. 

Potential interference with omnidirectional and unidirectional antenna, resulting in TV and radio interference. Electrical interference on underground pipelines. 

Potential interference with omnidirectional and unidirectional antenna, resulting in TV and radio interference. Electrical interference on underground pipelines. 

Potential interference with omnidirectional and unidirectional antenna, resulting in TV and radio interference. Electrical interference on underground pipelines.

Traffic and TransportationDirect Effects Short-term road traffic and 

rail delays during construction. Electrical interference to railroads. 

Short-term road traffic and rail delays during construction. Electrical interference to railroads. 

Short-term road traffic and rail delays during construction. Electrical interference to railroads. 

Short-term road traffic and rail delays during construction. Electrical interference to railroads.

Indirect Effects Loss of living snow fences 

along highways, resulting in snow drift for drivers. Follows 25 miles of existing highway ROW. Potential conflicts with future roadway expansion. 

Loss of living snow fences along highways, resulting in snow drift for drivers. Follows 60 miles of existing highway ROW. Potential conflicts with future roadway expansion. 

Loss of living snow fences along highways, resulting in snow drift for drivers. Follows 32 miles of existing highway ROW. Potential conflicts with future roadway expansion. 

Loss of living snow fences along highways, resulting in snow drift for drivers. Follows approximately 34 miles of existing highway ROW. Potential conflicts with future roadway expansion

Safety and Health

No effect. No effect. No effect. No effect. 

NoiseDirect Effects Noise generated from 

operation of construction equipment. 

Noise generated from operation of construction equipment. 

Noise generated from operation of construction equipment. 

Noise generated from operation of construction equipment. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

581 

5. Comparison of Alternatives 

5.2. Federally Preferred Alternative 

NEPA requires identification of a preferred alternative by the lead federal agency. 

RUS is the lead federal agency for the Project, with the other federal agencies acting 

as cooperating agencies. A preferred alternative is not identified in the EIS under the 

state process. 

Based on the information in the Draft and Final EIS documents, RUS has identified 

Route Alternative 4 as the federally preferred alternative. Route Alternative 4 is also 

the environmentally preferred alternative, as discussed below. Route Alternative 4 is 

consistent with Purpose and Need of this Project and is in compliance with the 

Chippewa National Forest Land and Resource Management Plan as well as other 

appropriate laws and regulations across land ownerships. See Appendix C and D for 

maps of Route Alternative 4. Route characteristics and potential impacts of the 

alternate routes are compared in Section 5.1, Comparison of Alternatives, and 

throughout the EIS. 

Under Section 404 of the Clean Water Act, the least environmentally damaging 

practicable alternative is the only alternative eligible for Corps of Engineers 

authorization. As a cooperating agency, the Corps of Engineers has assisted the lead 

federal agency in identifying and reviewing potential alternatives. As such, the Corps 

has provided information and review directly related to aquatic resources impacts and 

regulatory review. The Corps of Engineers has determined that the preferred 

alternative is likely to be the least environmentally damaging practicable alternative 

for Clean Water Act 404 permitting. 

 The preferred Route Alternative 4 is a combination of segments from Route 

Alternatives 1 and 2. The west and east ends of Route Alternative 4 follow Route 

Alternative 1, while the central portion of Route Alternative 4 follows Route 

Alternative 2. Beginning at the Wilton Substation west of Bemidji, Route Alternative 

4 follows Route Alternative 1 along the Great Lakes pipeline. At Hubbard County 

Highway 45, Route Alternative 4 diverts to the northeast from the Great Lakes 

pipeline to parallel the Enbridge pipelines, running east to Route Alternative 2 at the 

Cass Lake Substation. From the Cass Lake Substation, Route Alternative 4 follows 

Route Alternative 2 along the Enbridge pipelines to a point 4.7 miles east of Bena, 

Minnesota. At this location, Route Alternative 1 is south of US Highway 2, while 

Route Alternative 2 is north of the highway. Route Alternative 4 turns south to 

generally follow Route Alternative 1 on the south side of the highway to the Boswell 

Substation in Cohasset, Minnesota. 

The following summarizes some of the main reasons Route Alternative 4 is the 

federally preferred alternative. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

582 

5. Comparison of Alternatives 

As compared to Route Alternative 3: 

• Route Alternative 4 is approximately 70 miles long (as are both Route 

Alternatives 1 and 2), while Route Alternative 3 is approximately 116 miles 

long. Because it is shorter, Route Alternative 4 is superior to Route 

Alternative 3 in terms of electrical performance. The shorter distance of Route 

Alternative 4 also reduces the Project’s potential environmental impacts and 

construction costs. 

• Both Route Alternatives 3 and 4 parallel existing rights-of-way for nearly their 

entire length. Route Alternative 4 requires approximately 1,064 acres of new 

ROW while Route Alternative 3 requires approximately 1,759 acres, thereby 

having 50% greater impact on new ROW than Route Alternative 4. Route 

Alternative 3 also has a greater impact on all wetlands (including forested 

wetlands), all forestlands (including forestland within the CNF), and 

agricultural lands. 

• Route Alternative 3, which parallels an existing transmission line for most of 

its length, was developed in response to the LLBO’s desire to avoid the Leech 

Lake Reservation (LLR), thereby minimizing impacts to LLBO lands, which 

have cultural, spiritual, and economic value to the LLBO. While Route 

Alternative 3 avoids the LLR, thereby having less impact than Route 

Alternative 4 on lands within the boundaries of the LLR, the length of the 

Route Alternative 3 causes more impacts to wetlands, water bodies, water 

courses, soils, forested areas, and biological resources. Since the LLBO has 

resource rights on many of the lands included in Route Alternative 3, impacts 

to those lands are also important to the LLBO. Incorporating the mitigation 

measures discussed in Tables ES-3 and 5-2 would lessen the impact of Route 

Alternative 4 on the LLBO. Route Alternative 4 also has the fewest known 

archaeological sites at this time. 

• While Route Alternative 3 does meet the need for the Project, locating the 

Project in Route Alternative 3 would not address a separate reliability issue 

identified in the Cass Lake area since the route does not run through or near 

Cass Lake. Resolution of these issues would require the additional future 

construction of a 115 kV line to connect to the Cass Lake Substation if Route 

Alternative 3 were selected. Impacts related to 115 kV construction have not 

been identified or included in the environmental impact analysis of Route 

Alternative 3, but would increase the environmental impacts of Route 

Alternative 3 beyond those identified within this EIS. 

• The negative impacts associated with Route Alternative 3 outweigh its 

benefits, especially when compared to the other alternatives available. 

As compared to Route Alternative 1: 

• The Forest Service had concerns about Route Alternative 1 because it crosses 

the Pike Bay Experimental Forest, where the research branch of the Forest 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

583 

5. Comparison of Alternatives 

Service conducts long term and ongoing research. The Forest Plan states that 

generally no new special use permits are allowed through the Pike Bay 

Experimental Forest. Additionally, Route Alternative 1 includes a Goblin 

Fern study area and critical habitat for Goshawk nesting. Another 

consideration is that this alternative primarily parallels the Great Lakes Gas 

pipeline, which to date has been managed to have a minimal footprint and 

thus retains the character of a closed forest canopy. Expanding this pipeline 

corridor by selecting Alternative 1 for the Project would result in a loss of the 

closed forest canopy. Selection of Route Alternative 4, on the other hand, is 

consistent with Forest Service concerns since it avoids impacts to these 

important areas. 

• LLBO also had concerns about Route Alternative 1. Portions of the route 

contain spiritually and culturally significant areas for the LLBO, particularly 

the Ten Section and Cuba Hill areas. Selection of Route Alternative 4 is 

consistent with LLBO’s concerns since it avoids impacts to these important 

areas. 

• While environmental impacts and costs are roughly comparable among Route 

Alternatives 4, 1, and 2 when considered in their entirety, use of Route 

Alternative 4 (or 2) through the CNF and Leech Lake Reservation is supported 

by key stakeholders in the area because it places the Project in an already 

relatively highly disturbed corridor which significantly blunts its overall 

impact on the area. 

As compared to Route Alternative 2: 

• On the west end, Route Alternative 4 has reduced impacts to residences 

between the Wilton Substation and Cass Lake than Route Alternative 2. 

• Through the LLR and CNF, Route Alternative 4 also reduces impacts to the 

visual corridor along US Highway 2 in comparison to Route Alternative 2. 

The feasible ROW evaluated for Alternative 4 would be south of the Enbridge 

pipeline, maintaining a buffer between the highway and the transmission 

line. The feasible ROW analyzed for Route Alternative 2 would be north of 

the Enbridge pipeline and closer to U.S. Highway 2. 

• Route Alternative 4 follows an existing Minnesota Power 115 kV line from CR 

11, just east of Deer River, to the Boswell Substation. Much of the property in 

this area is owned by Minnesota Power, thereby reducing the amount of 

easements that would need to be purchased from other landowners, both 

public and private, as compared to Route Alternative 2. 

As compared to all the Route Alternatives: 

• Route Alternative 4 has advantages over the other Route Alternatives because 

it best responds to comments, issues, and concerns from the public and 

agencies, while minimizing impacts to resources to the extent practicable. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

584 

5. Comparison of Alternatives 

Specifically, approximately half of the length of Alternative 4 would be 

constructed adjacent to the Enbridge pipeline. Enbridge recently completed 

temporary clearing for a pipeline project, and this clearing accounts for 

approximately half of the ROW required for the Project along the pipeline. 

Temporary clearings and access roads developed by Enbridge during recent 

construction of the pipeline are not included in land cover type information 

obtained from MnDNR and are not accounted for in the cover type impact 

calculations that appear throughout Section 3. The impact acreage in Section 3 

assumes impacts to pre-Enbridge construction land cover for all Route 

Alternatives. 

5.3. Mitigation of Impacts 

The HVTL route permit would require certain mitigation measures to prevent or 

minimize both short-term and long-term impacts on resources from construction and 

operation of the Project. Additional mitigation measures were agreed to by the 

Applicants in the Application for a Route Permit (Otter Tail Power et al., 2008a), 

submitted in June 2008. Mitigation measures for each resource area are discussed in 

detail in Section 3.0 and summarized in Table 5-2. 

Mitigation measures that would be required by federal agencies as permitting 

conditions would be included in the Record of Decision (ROD) issued by each federal 

permitting agency. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

585 

5. Comparison of Alternatives 

Table 5-2: Summary of Mitigation Measures 

Resource Mitigation Measures 

Limits imposed in the HVTL permit for the removal of vegetation and trees. 

HVTL permit requirements for cleanup of construction waste. 

HVTL permit requirement to span water bodies when possible. 

ROW, access roads, temporary work spaces, and other private lands restoration required by the 

HVTL permit and as agreed upon in the vegetative management plan. 

Communication with landowners regarding specific pole placement. 

Use of uniform structure designs to the extent practicable that blend into the natural 

environment (i.e., wooden structures). 

Placement of structures to minimize their visibility from highways, waterways, and trail 

crossings.

Limit number and placement of construction staging areas. Use Enbridge cleared ROW when

possible. 

Cross water bodies in the same location as existing transmission lines. 

Double-circuit the Project with existing transmission or distribution lines to the extent 

practicable and consistent with engineering or system reliability criteria. 

Parallel existing transmission line and pipeline easement to the extent possible. 

Reduce height of the structures, as feasible, to minimize impacts within areas of high scenic 

importance. Use of H-frame structures for the Mississippi River crossing near Ball Club would 

have a lower profile than single pole structures. 

Mitigation specific to maintaining Scenic Integrity Objectives on CNF lands, including 

planting to reduce visibility of the corridor from roadways, maintaining a “no mow” zone 

at the edge of the ROW, and removal of mitigation vegetation from outside the ROW 

while retaining the appearance of remaining plants. 

Special landscaping/plantings will be considered at trails and other recreational uses 

where aesthetics can be improved. 

Aesthetics 

Assist CNF and LLDRM with dump site cleanup in areas of concern. 

Use of Best Management Practices (BMPs) to control fugitive dust during construction: monitor 

dust generation; operate vehicles at reduced speeds; and use of water and dust abatement 

methods. 

Maintain construction vehicles consistent with EPA requirements to use ULSD fuel in all 

on/off road construction equipment. 

Limit burning of vegetative and construction debris for the entire project. Use alternative 

methods such as chipping the debris for mulching, for use as a fuel source, or other uses. 

No burning of slash or construction piles on or near the boundaries of the Leech Lake 

Reservation,in order to reduce the potential for Black Carbon and other emissions, absent a 

burning permit from the appropriate authorities. 

Restoration of the natural landscape would commence shortly upon cessation of construction 

activities, as is typically required as a condition of the HVTL permits issued by the Commission. 

Air Quality and 

Climate 

Decreases in terrestrial carbon sequestration from the clearing of ROW could be 

substantially offset by the re-planting of new growth vegetation. 

HVTL permit requirement to re-grade areas disturbed to construction to reflect topography 

existing before construction. 

Avoid disturbance of soils and excavation in steeply sloped areas. 

Soil and Geology 

Implementation of Soil Erosion and Sediment Control Plan, required by the HVTL permit. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

586 

5. Comparison of Alternatives 

Resource Mitigation Measures 

Development of BMPs under a Storm Water Pollution Prevention Plan (SWPPP), including 

installation of silt fencing, weed-free straw bales or ditch blocks and/or covering bare soils with 

weed-free mulch, plastic sheeting, or fiber rolls to protect drainage ways and streams from 

sediment runoff from exposed soils.

Restore compacted soils to their native state through tillage operations. 

Limit setup and staging sites to previously disturbed areas to the extent practicable. 

Identification of wet organic soils through mapping and, if necessary on-site investigations and 

soil borings. 

To the extent practicable, complete construction in the wet organic soils when the ground is 

frozen. 

Develop procedures for the proper storage and disposal of all hazardous and non-hazardous 

wastes generated during construction. 

Use controlled staging areas for refueling and hazardous material loading/unloading. 

Revegetate all disturbed areas once construction is complete. Seed mixes could be specified 

based upon site characteristics and in accordance with regulatory permits. 

If topsoil is removed from the CNF, which may affect surficial topography, it must be 

salvaged and reused in accordance with the 2004 Forest Plan. 

In the event that previously contaminated soils are discovered during construction, the 

Applicants could stop work immediately, contact the appropriate state or tribal agency, and 

consult with the agency with respect to an acceptable plan of action. 

HVTL permit requirement to span all water bodies to the extent possible. 

Plant or seed non-agricultural areas disturbed by transmission line structures to prevent runoff. 

Ensure that native seed mixes from the plants already indigenous to the immediate area of 

disturbance are used for the seeding. 

HVTL permit could require the Project to co-locate with existing transmission facilities along 

certain segments of a permitted route. 

Development of BMPs under a SWPPP or Section 404 permit, including location of structures 

and disturbed areas away from water bodies; location of fueling activities and fuel and chemical 

storage away from water bodies; installation of sediment and erosion control; use of turbidity 

control methods; spread topsoil and seed in a timely manner; avoid use of fertilizer, pesticides, 

or herbicides near water bodies; implement procedures to minimize and control inadvertent fluid 

returns during horizontal direction drilling (if used). 

Compensatory mitigation if required under the Section 404 permit could include the restoration, 

establishment, enhancement, or preservation of wetlands or other aquatic resources to off-set 

Project impacts. 

Water Resources 

The license to cross state lands and public waters issued by MnDNR may require 

adherence to MnDNR invasive species standards, restriction of the use of certain 

pesticides, use of native species for revegetation, avoidance of in-stream work during 

fish spawning times, and creation of access roads to state lands if they become isolated 

as a result of the Project. 

HVTL permit requirement to return floodplain contours to their pre-construction profile if 

disturbed during construction. 

Floodplains 

HVTL permit requirement to span all water bodies and associated floodplains to the extent 

possible. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

587 

5. Comparison of Alternatives 

Resource Mitigation Measures 

Plant or seed non-agricultural areas disturbed by transmission line structures to prevent runoff. 

Use native seed mixes from the indigenous plants and plant indigenous plants located in the 

immediate disturbed soil area; ensure seeding and/or plantings are done in a time congruent 

with seeding and growth of the area, not during a time that would preclude germination or 

rooting. 

Use construction techniques to minimize run-off into floodplains during construction. 

HVTL permit requirement to span wetlands to the extent possible. 

Development of BMPs under a SWPPP, NPDES permit, License to Cross Public Waters permit, 

Public Waters work permit, Section 404 Clean Water Act permit, and Section 10 permit, 

including location of fueling activities and fuel and chemical storage away from water bodies; 

installation of sediment and erosion control; use of turbidity control methods; spreading of 

topsoil and seed in a timely manner; avoiding use of fertilizer, pesticides, or herbicides near 

wetlands; implementing procedures to minimize and control inadvertent fluid returns during 

horizontal direction drilling (if used). 

Schedule construction during frozen ground conditions. 

Access wetlands through the shortest route resulting in the least amount of physical impact to 

the wetland during construction. 

Assemble structures on upland areas before transporting into wetlands. 

Use of construction mats and specially designed all terrain vehicles to minimize impacts within 

wetlands when construction during winter (frozen) months is not possible. 

Wetlands 

Restore wetlands as required by the USACE St. Paul District to replace wetland functions and 

values lost due to regulated activities pursuant to Section 404 of the Clean Water Act and St. 

Paul District Policy for Wetland Compensatory Mitigation in Minnesota, and in concert with other 

district policies and guidance. 

Reseed disturbed areas following construction with a LLDRM/CNF/MnDNR approved native 

species seed mix to restore native vegetation cover. Seed mix will be developed in conjunction 

with appropriate resource agencies taking into consideration culturally important species. 

Develop a LLDRM/CNF/MnAg approved noxious weed management program, including a 

noxious weed and vegetation management plan. 

Conduct a field review of ROW and construction staging sites prior to construction to identify 

areas that contain noxious weeds. Construction equipment in these areas should be 

avoided or cleared of noxious weeds prior to construction as feasible. 

Power-wash or manually remove material from construction vehicles prior to the start of 

construction and if equipment has traveled from an area contaminated by noxious weeds to an 

uncontaminated area. 

Siting the Project within or adjacent to existing ROWs to minimize impacts to wildlife habitat. 

Limit clearing and maintenance of the ROW within previously forested areas to the extent 

practicable. 

Install marked transmission line shield wires to the extent practicable within major avian flyways. 

Develop an Avian Mitigation Plan (AMP). 

Biological 

Resources 

Nesting platforms on Project structures for eagles and osprey will be provided in 

designated areas. 

Placement of the ROW within the 1,000-foot-wide route to avoid known species of concern, 

active nesting locations, and active breeding locations. 

Species of 

Concern 

Conduct ROW clearing outside of the breeding season. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

588 

5. Comparison of Alternatives 

Resource Mitigation Measures 

Notify appropriate agencies if previously unknown nesting/breeding sites are identified during 

construction. 

If taking of a species occurs, compensatory mitigation may include funding of state 

acquisition of certain sites, funding survey work, and/or funding habitat research. 

Refrain from construction and logging within 0.3 mile of active Northern goshawk nests 

during breeding season. 

Avoid identified archaeological and historic resources through adjustment of the ROW within the 

selected 1,000-foot-wide route. 

Use single pole structures within the city of Cass Lake to minimize visual and aesthetic 

impacts to the viewshed of historical properties.

Implement BMPs for water resources (see above) to minimize potential effects to wild rice. 

Mitigation on CNF lands: 

The CNF will work with LLDRM and the Applicants to develop, fund and implement a 

program to assess suitable mitigation and contingency sites; develop, fund, and 

implement establishment of mitigation sites; and implement adaptive management as 

needed to achieve site-specific goals. 

The CNF will develop mitigation criteria in conjunction with the LLDRM with input from 

the tribal community in a form and location(s) acceptable to the LLDRM. 

Suitable mitigation, and locations for these projects, will be identified prior to the 

installation of the 230kV transmission line; and these mitigation projects must be 

initiated within five years of the initiation of transmission line construction. 

If suitable mitigation projects or locations for these projects cannot be identified on 

areas already approved through the NEPA, the CNF will initiate NEPA on additional 

locations within one year of the completion of the transmission line construction on the 

CNF. 

The CNF will work with the Applicants to find a means of meeting the financial, logistical, 

and staffing requirements to make the mitigation successful.

Cultural 

Resources 

Mitigation on CNF lands will be in the form of providing for traditional gathering 

opportunities and products. Mitigation projects will be deemed to be successful when 

determined by the CNF in collaboration with the LLDRM on an annual basis. Projects 

that have been identified include: 

• Blueberry management, consisting of intensive and moderate enhancement on no 

less than 800 acres by brushing, burning and/ or pine thinning. This project would 

include establishment of harvestable blueberry and adaptive management as needed 

to achieve site-specific goals. 

• Sugar Maple/basswood ecosystem Management, consisting of protection or 

enhancement of no less than 200 acres by using methods including, but not limited 

to, creating single or few-tree openings, single tree girdling, and, as necessary, deer 

enclosures. This project would include establishment of sugar bush characteristics, 

and adaptive management as needed to achieve site-specific goals. 

• Sweet grass Management, consisting of plantings in openings of no less than 10 

acres. This project requires researching methods of propagation, acquiring local 

seeds or plants, and maintaining suitable openings for habitat. Some sweet grass 

may be maintained in intensively managed plots while some will be maintained in 

more natural locations and densities. This project would include establishment of 

harvestable sweet grass and adaptive management as needed to achieve sitespecific goals. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

589 

5. Comparison of Alternatives 

Resource Mitigation Measures 

• Berry patch Management, consisting of protection or enhancement on no less than 

35 acres of multiple species of fruiting shrubs and vines. Management would 

consist of but not be limited to establishing and maintaining areas suitable for 

traditional harvesting of berries. This project would include establishment of 

harvestable diverse traditional fruits and adaptive management as needed to achieve 

site-specific goals. 

Co-locate the Project along existing ROWs, including highways, railways, existing transmission 

lines, and pipelines. 

Communicate with MnDNR LLDRM, and CNF to identify and avoid sensitive forested or open 

areas. 

Reseed state and federal forested land with a seed mix recommended by the appropriate 

agency’s management. Seed mix will be developed in conjunction with appropriate resource 

agencies (LLDRM, CNF, MnDNR) taking into consideration culturally important species. 

Limit construction staging and lay-down areas to previously disturbed areas.

Use the minimum necessary width and length for transmission line access roads. 

Communicate with private land owners regarding exact placement of structures and disturbed 

areas. 

Adjust conductor spans to avoid sensitive land use areas.

Limit construction activities to the ROW, unless access permission is obtained from adjacent 

landowners. 

Land Use 

Repair or replace fences, gates, and similar improvements that are removed or damaged during 

Project construction. 

Communicate with landowners regarding exact placement of structures and disturbed areas. 

Minimize house displacement through flexibility in the route alignment. 

Use the minimum necessary width and length for transmission line access roads. 

Limit construction activities to the ROW, unless access permission is obtained from adjacent 

landowners. 

Easement payments to landowners are required to compensate landowners for loss of use of 

the utility easement on their property. 

Co-locate the Project along existing ROWs, including highways, railways, existing transmission 

lines, and pipelines, to avoid crossing additional, undisturbed properties and affecting property 

values. 

Socioeconomics 

Employ, through participating agreements or contract use, Leech Lake Band Members to 

the maximum extent possible on all aspects of the project considering the TERO (Tribal 

Employment Rights Office) ordinance. Use LLBO temporary employment program when 

practical. 

Communicate with private landowners regarding exact placement of structures and disturbed 

areas. 

The Applicants could develop mitigation measures in conjunction with the LLDRM for 

loss of traditional gathering opportunities on all lands not covered by federal mitigation.

Environmental 

Justice 

To prevent long-term disruption to hunting and gathering resources, the HVTL permit would 

require restoration of the rights-of-way, temporary work spaces, access roads, and other lands 

affected by constructions. The HVTL permit could require the Applicants to work with the 

MnDNR, LLDRM, CNF, landowners, and local wildlife management programs to restore and 

maintain the rights-of-way to provide a useful and functional habitat for plants, nesting birds, 

small animals, and migrating animals to minimize habitat fragmentation. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

590 

5. Comparison of Alternatives 

Resource Mitigation Measures 

The Applicants will work with the LLDRM and LLBO members to allow them to collect 

and transplant (in whole or in part) traditionally important plants from the entire ROW 

before construction. A communication plan will be developed that will provide LLBO 

members clear and timely information as to when ROW (on CNF-owned land) would not 

be available for gathering activities (which may include transporting plants of concern) 

because of construction. Information will be presented to LLDRM to provide at LIC 

meetings, in the local newspaper, on the LLBO website, etc. 

Applicants will work to provide opportunities including, but not limited to, contracts-forservice to the LLDRM Plant Resource Department to conduct long-term monitoring and 

management of the HVTL ROW on the LLR to reduce non-native invasive species and 

enhance native, traditionally important plants. 

Span water bodies, wetlands, and floodplains to the extent possible, to minimize effects on wild 

rice resources. 

Co-locating the Project along existing ROWs, including highways, railways, existing 

transmission lines, and pipelines, to avoid previously undisturbed recreation areas and wildlife 

habitat. 

Communicate with private landowners and resource management agencies regarding exact 

placement of structures and disturbed areas. 

Placement of barriers and signs at or near road crossings to limit unauthorized off-highway 

vehicle (OHV) or other vehicle traffic on ROWs. 

Conduct construction at water access points during winter months, when use of such areas for 

recreation tourism is minimal, to the extent practicable. 

Align the Project ROW perpendicular rather than parallel to existing trails to the extent 

practicable to minimize impacts to recreation trails. 

Post signs during construction to provide residents and visitors with advance notice of what 

recreational activities may be affected during construction. 

Recreation and 

Tourism 

Provide alternate routes for recreation, where possible. 

HVTL permit required Agricultural Mitigation Plan. 

Communicate with private landowners regarding placement of structures and disturbed areas to 

minimize effects on farming operations. 

Co-locating the Project along existing ROWs, including highways, railways, existing 

transmission lines, and pipelines, to avoid previously undisturbed agricultural land. 

Use of a single pole structure for placement on agricultural land if placement of H-frame 

structures cannot be sited to minimize impacts to farming operations.

Compensate landowners for crop damage and soil compaction that occurs during Project 

construction. 

Agriculture 

HVTL permit requires restoration of ROW and disturbed areas, including restoration of 

compacted soils per the Agricultural Impact Mitigation Plan. 

Limits imposed in the HVTL permit for the removal of vegetation and trees. 

Limits imposed in the HVTL permit for the creation of temporary easements for access roads 

and construction/staging areas. The HVTL permit could require that these areas be selected to 

minimize tree removal. 

Plant tree seedlings as appropriate to restore wooded temporary work areas not within 

the Project’s permanent ROW.

Forestry 

Conduct construction activities on CNF lands in accordance with the Forest-Wide Management 

Directions, as provided in the 2004 Final Forest Plan. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

591 

5. Comparison of Alternatives 

Resource Mitigation Measures 

Offer timber harvested from the Project to the local community for use as firewood. Applicants 

are encouraged to provide timber harvested from the Project to the Leech Lake Band of 

Ojibwe. Specific dropsite locations for wood placement will be identified in conjunction 

with LLBO. Wood left at dropsites should be placed in piles, easily accessible for 

firewood gatherers.

Mining No mitigation measures identified. 

Community 

Services No mitigation measures identified. 

Proper maintenance, preventative maintenance, and selection of hardware for the transmission 

line to reduce interference and utility interruption.

HVTL permit condition requiring the correction of interference to communication systems that 

the transmission line causes or creates. 

Modifying receiving antennae to correct radio interference. 

Detune transmission line structures if necessary to eliminate interference with AM radio 

broadcast stations.

Design and place structures away from AM radio antenna to avoid blocking/ interference. 

Communicate with local radio broadcasting stations to confirm that blocking interference does 

not occur due to structure placement. 

Modification or replacement of antenna or amplifier for residents that experience TV signal 

interference. 

Reduction of AC interference on pipelines through reducing the impedance of the transmission 

structure grounds, grounding the pipeline in conjunction with de-couplers, burying gradient 

control wires along the pipeline or ground mats under aboveground facilities (such as at valves), 

and the use of dead fronts at test stations. 

Conduct computer modeling of AC interference to ensure that property mitigation is designed 

and installed prior to energizing the transmission line. 

Schedule planned service disruptions that are necessary during construction activities with the 

affected owners of existing transmission lines. Provide advance notice of service disruption to 

electric customers. 

Conduct computer modeling to ensure a proper safe distance between the Project and 

pipeline is maintained to reduce the potential for ignition during a simultaneous failure 

on both lines. 

Use a one-call utility locator service to identify existing utility lines prior to construction. 

Utility Systems 

Ensure that utility repair crews are present or on-call during construction activities to respond to 

unplanned incidents that may result in an interruption to electric service. 

Construct transmission line in accordance with National Electric Safety Code (NESC) guidelines 

for the required clearances between transmission lines and transportation structures. 

HVTL permit requirement to comply with MnDOT and all applicable road authorities’ 

management standard and policies, including written notice of construction to MnDOT and 

applicable road authorities. 

HVTL permit requirement to restore the ROW, temporary work spaces, access roads, 

abandoned ROW, and other lands affected during construction, including living snow fences. 

File a “Notice of Proposed Construction of Alteration” with the FAA and provide an opportunity 

for the FAA to comment about compatibility of the Project with airport operations. 

Traffic and 

Transportation 

Obtain MnDOT and county permits as applicable for transmission line crossings of roadways. 

Use of ROW along the National Highway System requires approval of the Federal Highway 

Administration. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

592 

5. Comparison of Alternatives 

Resource Mitigation Measures 

Implement traffic control measures during construction, which could include flag persons, 

barriers, and flashing lights. 

Install temporary wood pole “guard structures” to safeguard the public and construction workers 

during removal of existing conductors or stringing of new overhead conductors over highways. 

Grounding tracks and communication cables on existing rail lines to prevent interference. 

Use of taller structures where the Project crosses the railroad to increase clearance between 

passing trains and conductors. 

Consolidate the Project with existing transmission line to reduce the number of railroad 

crossings. 

Use BMPs to minimize the potential for spills or leaks from equipment during construction, 

including frequent inspections of equipment; requiring portable spill containment kits for 

construction equipment; ensuring that equipment operations are present at the nozzle at all 

times when fueling is in progress; and prohibiting the refueling of equipment in wetlands. 

Use of protective devices (e.g., breakers and relays) that would de-energize the transmission 

line in the event of an emergency. 

Use of fences at substations to prevent access. 

Construct the Project in accordance with NESC standards regarding clearance, grounding, utility 

crossing, strength of materials, and ROW widths. 

Ground metal buildings, fences, and other large, permanent conductive objects in close 

proximity or parallel to the line to prevent electric field discharge. 

Minimize the length of the transmission line that parallels or is co-located with distribution of 

local service conductors to minimize the potential for stray voltage. 

Safety and Health 

Educating local livestock operations about techniques to reduce the potential for insulated 

electric fences to pick up an induced charge from the transmission line. 

HVTL permit requirement for the Project to meet Minnesota noise standards. 

Limit construction to daytime work hours. 

Noise Equip heavy equipment with sound attenuation devices, such as mufflers. 

Minimize noise impacts from substation through design, including setbacks from sensitive noise 

receptors, layout and landscaping choices, and use of low noise transformers. 

5.4. Irreversible and Irretrievable Commitment of 

Resources 

Irreversible commitment of resources refers to the loss of future options for resource 

development or management, especially of nonrenewable resources such as cultural 

resources. 

The construction of the Project would require the irretrievable commitment of nonrecyclable building materials and fuel consumed by construction equipment. Under 

certain Route Alternatives and Route Segments, as identified in applicable sections of 

the EIS, the Project would require the irreversible or irretrievable commitment of old 

growth forest, including the Ten Section area and Pike Bay Experimental Forest. In 

addition, Route Alternative 1 could result in the loss of the Orabanche uniflora species, 

for which an incidental take permit from the USFWS may be required. The loss of these 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

593 

5. Comparison of Alternatives 

resources would result in a loss of traditional gathering opportunities for the Leech 

Lake Band of Ojibwe.

5.5. Relationship between Short-term Uses of the 

Environment and the Maintenance and Enhancement 

of Long-term Productivity 

Construction of the Project would have short-term impacts on environmental resources, 

primarily associated with installation of poles and conductors, clearing of the right-ofway (ROW), and use of construction lay-down areas. Temporary impacts from 

construction activities are discussed in Section 3.0 and Table 5-1 above. The HVTL 

permit would require the Applicants to restore the ROW, temporary work spaces, access 

roads, abandoned ROW, and other lands affected by construction of the Project. During 

the restoration process, the Applicants would be required by the HVTL to work with 

landowners, the Minnesota Department of Natural Resources (MnDNR), and local 

wildlife management programs to ensure that the restored ROW would provide useful 

and functional habitat for vegetation and wildlife. 

The short-term use of environmental resources would result in increased electrical 

reliability for the region in which the Project would be located. The Project and 

associated facilities (e.g., substations, breaker stations) would remain operational for 

over 50 years (Otter Tail Power et al., 2008a). Within that time, environmental resources 

would return to their long-term productivity, with the exception of those resources for 

which long-term impacts beyond a 50-year time period would occur. Estimate longterm impacts to resources within the 125-foot ROW are show in Table 5-3. 

Table 5-3: Estimated Long-Term Impacts (acres) to Resources 

within a 125-foot Feasible Right-of-Way 

Resource Route 

Alternative 1 

Route 

Alternative 2 

Route 

Alternative 3 

Route 

Alternative 4 

Forested lands 579 439 813 575 

Soils 3 3 5 3 

Wetland type conversion 209 166 269 226 

Wetlands <1 <1 <1 <1 

Shrub land <1 <1 Up to 1.4 <1 

Cropland/Grassland <1 <1 Up to 2.4 <1 

Agricultural land use <1 <1 2.03 <1 

Prime farmland 1.3 <1 3.6 <1 

Construction and operation of the project would result in long-term impacts to soils, 

forested land, wetlands, shrub land, cropland/grassland, agricultural land, and prime 

farmlands. These resources would not return to productivity until the transmission line 

and associated facilities are removed. In the case of wetland conversion, impacts could 

be mitigated through reclamation, restoration, or permanently protecting other wetlands 

for an offset of wetland losses. For all other resource areas identified in the EIS, long-
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

594 

5. Comparison of Alternatives 

term impacts beyond the Project lifetime of 50 years are either not anticipated or 

expected to be avoided through mitigation measures. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

595 

6. Regulatory and Permit Requirements 

6. Regulatory and Permit Requirements 

Construction of the Project would require a High Voltage Transmission Line (HVTL) 

permit from the Minnesota Public Utilities Commission (Commission) (Minn. Stat. 

216E.03, subd. 2). Additional potentially required permits and approvals are listed in 

Table 6-1 below. The table also includes applicable Executive Orders and departmental 

policies on land use management, which may guide regulating federal agencies in the 

permit or approval process.

Table 6-1: Potentially Required Permits and Approvals 

Regulation/Policy Citation Description – As Relevant to Project 

Federal Regulations and Permits

American Indian Religious 

Freedom Act of 1978 

42 U.S.C. 1996 The Act ensures the protection of sacred locations and access of 

Native Americans to those sacred locations and traditional 

resources that are integral to the practice of their religions. 

Archaeological Resources 

Protection Act 

16 U.S.C. 470 The Act requires a permit for the excavation or removal of 

archaeological resources from publicly held or Native American 

lands. Permitted excavations must further archaeological 

knowledge and the resources removed are to remain the property 

of the United States. Tribal consent must be issued if the resource 

is found on land owned by a Native American tribe. 

Clean Air Act 42 U.S.C. 7401 The Act establishes NAAQS for certain pervasive pollutants. The 

Act establishes limitations on SO2 and NOx emissions and sets 

permitting requirements. Authority for implementation of the 

permitting program is delegated to the MPCA. 

Clean Water Act, as amended 

in 1972 

32 U.S.C. 1251 The Act contains standards to address the causes of pollution and 

poor water quality, including municipal and industrial wastewater 

discharges, polluted runoff from urban and rural areas, and habitat 

destruction. 

Specific sections of the Act relevant to the Project include: 

Section 401 – Water Quality Certification for Wetlands. 401 

Certification would be issued by the USEPA Region 5 for 

those portions of the Project within the external 

boundaries of the LLR. For the LLR, the USEPA issues 

Section 401 water quality certification for Corps Section 

404 individual permits. If the Corps issues the 404 permit 

as a general permit, the 401 certification has been preapproved. Depending on the Project’s proximity to 

impaired waters, a Section 401 Water Quality Certification 

or waiver from the MPCA to verify compliance with water 

quality standards may be required; 

Section 402 — National Pollutant Discharge Elimination 

System (NPDES) Permit. Requires sources to obtain permits 

to discharge effluents and stormwaters to surface waters. The 

NPDES permit would be issued by the USEPA Region 5 

Office for the portion of the Project that is located in Indian 

Country. Outside of Indian County, the NPDES general 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

596 

6. Regulatory and Permit Requirements 

permit would be administered by the State of Minnesota; 

and 

Section 404 — Permits for Dredged or Fill Material. Regulates 

the discharge of dredged or fill material in the jurisdictional 

wetlands and waters of the United States. Permits are issued 

by the USACE. 

Comprehensive 

Environmental Response 

Compensation and Liability 

Act (CERCLA) 

42 U.S.C. 9607 The Act outlines the liabilities of owners or operators or other 

responsible persons for each release of a hazardous 

substance or incident involving the release of a hazardous 

substance. Route Alternatives 2 and 4, and Segment 

Alternative F, have the potential to be located within a portion 

of the existing and potential future boundaries of the St. Regis 

Superfund Site in Cass Lake, which would require compliance 

with CERCLA. In addition, if the Project would require work at 

the St. Regis Site, approval must be granted from the USEPA. 

Determination of No Hazard 

to Air Navigation 

40 CFR 77.19 The FAA must confirm that construction of the Project does not 

constitute a hazard to air navigation. 

Emergency Planning and 

Community Right-to-Know 

Act of 1986 

42 U.S.C. 

11001 et seq. 

The Act requires that the Applicants maintain an inventory of 

specific chemicals used or stored on-site and annually report 

quantities present or used over applicable threshold. 

Endangered Species Act of 

1973 and Amendments of 

1982 

16 U.S.C. 1531 

et seq. 

The Act requires any federal agency authorizing, funding, or 

carrying out any action to ensure that the action is not likely to 

jeopardize the continued existence of any endangered species or 

threatened species or result in the destruction or adverse 

modification of critical habitat of such species. 

If the Project is determined to be an activity that might incidentally 

harm (or “take”) endangered or threatened species, the Applicants 

would be required to obtain an incidental take permit from the 

USFWS. In addition to obtaining the permit, the Applicants would 

be required to develop a Habitat Conservation Plan. 

Farmland Protection Policy 

Act 

7 U.S.C. 4201 

et seq. 

The Act requires federal agencies to identify and quantify adverse 

impacts of federal programs on farmlands to minimize the number 

of federal programs that contribute to the unnecessary and 

irreversible conversion of agricultural land to non-agricultural uses. 

Fish and Wildlife 

Conservation Act of 1980 

16 U.S.C. 2901 

et seq. 

The Act encourages federal agencies to conserve and promote 

conservation of non-game fish and wildlife species and their 

habitats. 

Fish and Wildlife Coordination 

Act 

16 U.S.C. 661 

et seq. 

The Act requires federal agencies to consult with the USFWS and 

the state agency responsible for fish and wildlife resources if the 

Project affects water resources. 

Highly Erodible Land & 

Wetland Conservation 

7 CFR Part 12 The regulation sets forth the terms and conditions under which a 

person who produces an agricultural commodity on highly erodible 

land or designates such land for conservation use, plants an 

agricultural commodity on a converted wetland, or converts a 

wetland shall be determined to be ineligible for certain benefits 

provided by the USDA and agencies and instrumentalities of 

USDA. 

Migratory Bird Treaty Act 16 U.S.C. 703 

et seq. 

The Act protects birds that have common migration patterns 

between the United States and Canada. 

National Environmental Policy 

Act of 1969 

42 U.S.C. 

4321-4347 

The Act requires agencies of the federal government to study the 

possible environmental impacts of major federal actions 

significantly affecting the quality of the human environment. 

National Forest Management 16 U.S.C. The National Forest Management Act reorganized, expanded and 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

597 

6. Regulatory and Permit Requirements 

Act 1600-1614 otherwise amended the Forest and Rangeland Renewable 

Resources Planning Act of 1974. The National Forest 

Management Act requires the Secretary of Agriculture to assess 

forest lands, develop a management program based on multipleuse, sustained-yield principles, and implement a resource 

management plan for each unit of the National Forest System. It is 

the primary statute governing the administration of national forests. 

National Historic Preservation 

Act 

16 U.S.C. 470 

et seq. 

Under Section 106 of the Act, prior to the approval of the 

expenditure of any federal funds on the Project or prior to the 

issuance of any license, the federal agency must take into account 

the effect of the Project on any district, site, building, structure, or 

object that is included in or eligible for inclusion in the National 

Register. The federal agency shall afford the Advisory Council on 

Historic Preservation established under Title II of the Act a 

reasonable opportunity to comment with regard to such 

undertaking. 

National Trails System Act 16 U.S.C. 

1241-1251 

The Act allows easements and ROWs upon, over, under, across, 

or along the national trails system to be granted by the Secretary 

of the Interior or Secretary of Agriculture, in accordance with the 

laws applicable to the national parts system and national forest 

system. 

Native American Graves & 

Repatriation Act 

25 U.S.C. 3001 The Act requires the Secretary of the Interior to guide the 

repatriation of federal archaeological collections and collections 

that are culturally affiliated with Native American tribes and held by 

museums that receive federal funding. 

Noise Control Act 42 U.S.C. 

4901-4918 

The Act directs federal agencies to carry out programs in their 

jurisdictions “to the fullest extent within their authority” and in a 

manner that furthers a national policy of promoting an environment 

free from noise that jeopardizes health and welfare. 

Notice to the Federal Aviation 

Administration 

14 CFR Part 

77 

The regulation requires that the FAA be notified if structures are to 

be over 200 feet high to determine if the structures would be an 

obstruction to air navigation. 

Occupational Safety and 

Health Act of 1970 

29 U.S.C. 651 

et seq. 

The Act established regulations for the protection of worker health 

and safety. The Applicants would be subject to OSHA general 

industry standards and OSHA construction standards. 

Pollution Prevention Act of 

1990 

42 U.S.C. 

13101 et seq. 

The Act establishes a national policy for waste management and 

pollution control. 

Rivers and Harbor Act of 

1899 

33 CFR Part 

322 

The Act requires a Section 10 permit from the USACE if the Project 

requires structures or work in or affecting navigable waters. 

Resource Conservation & 

Recovery Act 

42 U.S.C. 6901 The Act regulates the treatment, storage, and disposal of 

hazardous wastes. The Applicants would be required to manage 

hazardous wastes generated during construction or operation of 

the Project in accordance with RCRA. 

Safe Drinking Water Act 42 U.S.C. 300 The Act authorizes the USEPA to regulate public drinking water 

supplies by establishing drinking water standards, delegating 

authority for enforcement of drinking water standards to the states, 

and protecting aquifers from hazards such as injection of wastes 

and other materials into wells. The Act is enforced in the state by 

the Minnesota Department of Health, who manages applicable 

permits and registrations. 

USDA’s Enhancement, 

Protection, & Management of 

the 

Cultural Environment 

7 CFR Part 

3100 

This regulation establishes USDA policy regarding the 

enhancement, protection, and management of the cultural 

environment. The regulation establishes procedures for 

implementing Executive Order 11593, and regulations promulgated 

by the Advisory Council on Historic Preservation (ACHP) 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

598 

6. Regulatory and Permit Requirements 

“Protection of Historical and Cultural Properties” in 36 CFR part 

800 as required by §800.10 of those regulations. Direction is 

provided to the agencies of USDA for protection of the cultural 

environment. 

Wild and Scenic Rivers Act 16 U.S.C 1271 The Act prohibits federal support of actions that would harm the 

free-flowing conditions, water quality, or resource values of waters 

designated as wild and scenic rivers. 

Wilderness Act 16 U.S.C 1131 The Act prohibits the construction of commercial enterprise or 

permanent roads within any wilderness area designated by the Act, 

except as necessary to meet minimum requirements for the 

administration of the area. There can be no temporary roads or 

structures installed within designated areas. 

Leech Lake Reservation Regulations and Permits 

Reservation Resolution Permits the Project to cross the Leech Lake Reservation.

Executive Orders 

E.O. 11988, Floodplain 

Management 

E.O. 11988 The executive order directs federal agencies to establish 

procedures to ensure that they consider potential effects of flood 

hazards and floodplain management for any action undertaken. 

Agencies are to avoid impacts to floodplains to the extent practical. 

E.O. 11990, Protection of 

Wetlands 

E.O. 11990 The executive order directs federal agencies to avoid short- and 

long-term impacts to wetlands if a practical alternative exists. 

E.O. 12898, Environmental 

Justice 

E.O. 12898 The executive order directs federal agencies to identify and 

address, as appropriate, disproportionately high and adverse 

human health or environmental effects of its programs, policies, 

and activities on minority populations and low-income populations. 

E.O. 13007, Indian Sacred 

Sites 

E.O. 13007 The executive order directs federal agencies, to the extent 

permitted by law and consistent with agency missions, to avoid 

adverse effects to sacred sites and to provide access to those sites 

to Native Americans for religious practices. 

E.O. 13112, Invasive Species E.O. 13112 The executive order directs federal agencies to prevent the 

introduction or to monitor and control invasive non-native species 

and provide for restoration of native species. 

E.O. 13175, Consultation and 

Coordination with Indian 

Tribal Governments 

E.O. 13175 The executive order directs federal agencies to establish 

meaningful consultation and collaboration with tribal governments 

to strengthen United States government to government 

relationships with Indian tries. 

E.O. 13186, Responsibilities 

of Federal Agencies to 

Protect Migratory Birds 

E.O. 13186 The executive order directs federal agencies to avoid or minimize 

the negative impacts of their actions on migratory birds, and to 

take active steps to protect birds and their habitats. 

State Regulations and Permits 

Aboveground Storage Tank 

Registration 

Minn. R. ch. 

7001 and 7151 

The rule requires that aboveground storage tanks larger than 110 

gallons of oil or petroleum products must be registered with the 

state. 

Access Permit Minn. R. 

8810.0050 

The rule requires the Applicants to obtain an access permit from 

MnDOT when access is needed from established MnDOT ROWs. 

Certificate of Need Minn. R. ch. 

7829, 7849, 

7851, 7853, 

and 7855 

The rule requires the Applicants to submit a description of the 

proposed energy facility and its probable location, an indication of 

forecast information upon which the alleged need is based, a 

discussion of possible alternatives and why they were rejected, 

and environmental information related to construction and 

operation of the proposed facility to the PUC. 

Cultural Resources Review 36 CFR Part 

800 

The federal regulation requires state review under the National 

Historic Preservation Act. 

Drainage Permit Minn. R. The rule requires a permit for the repair of utility or rebuilding of 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

599 

6. Regulatory and Permit Requirements 

8810.3200-

8810.3600 

structures already in place (e.g., manholes, catch basins). 

Easement Across StateOwned Land Managed by the 

Minnesota Department of 

Natural Resources 

Minn. Stat. 

84.63 and 

84.631 

The statute requires that MnDNR issue an easement to cross 

state-owned lands for the purposes of construction. 

Electrical Inspection Minn. R. ch. 

3800 

The rule requires the Project to conform to all applicable electrical 

codes, enforced by the state. 

Environmental Laboratory 

Certification 

Minn. R. 

4740.2010-

4740.2120 

The rule states that if sampling is required under state or federal 

permits (e.g., NPDES), environmental laboratory certification would 

be required. 

Hazardous Waste Generator 

License 

Minn. R. 

7045.0225 

The rule requires that if the Project generates greater than 10 

gallons of hazardous waste in a calendar year, the Applicants must 

obtain a license. 

License to Cross Public 

Lands and Waters 

Minn. R. ch. 

6135 

The rule requires a license if utility services are to cross public 

waters or lands administered by the MnDNR. 

Minnesota Endangered 

Species Law and Permit 

Minn. R. ch. 

6134 and Minn. 

Stat. 84.0895 

The statute requires MnDNR to adopt rules designating species 

meeting the statutory definitions of endangered, threatened, or 

species of special concern. The resulting list of Endangered, 

Threatened, and Special Concern Species is codified as Minn. R. 

ch. 6134. 

If the Project is determined to be an activity that including picking, 

digging, or destroying a threatened or endangered plant species, 

the Applicants would be required to obtain a permit from the 

MnDNR. 

NPDES General Construction 

Stormwater Permit 

40 CFR 

122.26; Minn. 

R. 7001.1035 

The federal regulation authorizes the state environmental agency 

to regulate NPDES general stormwater permits. Coverage under 

the state general permit is required for construction projects 

disturbing greater than 1 acre of land. 

NPDES/SDS Permit Minn. R. 

7001.0020 

The rule requires a permit if wastewater generated from the Project 

is to be discharged to waters of the U.S. 

Public Waters Work Permit 

(Protected Waters Permit) 

Minn. R. 

6115.0160-

6115.0280 

The rule requires a permit for work activities that would change or 

diminish the course, current, or cross section of public waters 

within the state. 

Utility Permit on Trunk 

Highway ROW 

Minn. R. 

8810.3100-

8810.3600 

The rule requires a permit to install or move existing utilities on 

existing highway ROWs. 

Water Appropriation Permit Minn. R. 

6115.0600-

6115.0810; 

6115.0010 

The rule requires a general notification to the MnDNR if 

groundwater is withdrawn for construction dewatering, 

landscaping, or hydrostatic testing. A Water Appropriations Permit 

would be required if groundwater is withdrawn at a rate greater 

than 10,000 gallons per day or one million gallons per year. 

Wetland Conservation Act Minn. R. 

8420.0100- 

8420.0935 

The Act requires anyone proposing to drain, fill, or excavate a 

wetland to first try to avoid disturbance; second, try to 

minimize the impact; and third, replace any lost wetland acres, 

functions, and values. The Act is administered by local 

government entities, except in cases of state land, for which 

the act is administered by the MnDNR. 

Departmental Policies 

Land and Resource 

Management Plan – 

Chippewa National Forest - 

2004 

 The Land and Resource Management Plan (Forest Plan) 

establishes direction for natural resource management on the 

Chippewa National Forest. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

600 

6. Regulatory and Permit Requirements 

USDA Departmental 

Regulation, Land Use Policy 

DR 9500-3 The policy directs departments within the USDA to discourage 

unwarranted conversion to other uses of prime and unique 

farmlands, farmlands or statewide or local importance, and prime 

rangelands. The policy directs the agency to advocate for the 

retention of important farmlands, rangelands, forest land, and 

wetlands, and to reduce the risk of flood loss and soil erosion. 

USDA Departmental 

Regulation, Fish & Wildlife 

Policy 

DR 9500-4 The policy directs departments within the USDA that manage lands 

(e.g., Nation Forest System) to give consideration to fish and 

wildlife in developing programs for the lands. 

USDA Departmental 

Regulation, Policy on Range 

DR 9500-5 The policy directs departments within the USDA to undertake 

activities and implement programs to protect, enhance, and use 

range ecosystems. 

Notes: EO = Executive Order 

Sources: Otter Tower Power et al., 2009; U.S. Department of Energy, 2007 

In addition to the permits and approvals described above, county and city construction 

and building permits would be required. Design and construction of enclosures 

associated with the new substation and substation modification would be subject to 

municipal and county requirements. 

As lead federal agency, RUS is responsible for ensuring that the Project complies with 

Treaties of the United States with the Leech Lake Band of Ojibwe, including: 

• Treaty with Chippewa July 29th, 1837; 

• Treaty with Chippewa October 4th, 1842; 

• Treaty with Chippewa, Pillager August 21st, 1847; 

• Treaty with Chippewa September 30th, 1854; 

• Treaty with Chippewa February 22nd, 1855; 

• Treaty with Chippewa, Mississippi, Pillager, Lake Winnibigoshish May 7th, 1863; 

and 

• Treaty with Chippewa, Mississippi, Pillager, Lake Winnibigoshish May 7th, 1864. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

601 

7. Agencies and Tribes Contacted 

7. Agencies and Tribes Contacted 

Consultation with tribes, federal and state agencies has been ongoing. Various federal 

and state interagency meetings were conducted to share Project information and 

determine the scope of the EIS and throughout the development of the EIS. 

7.1. Cooperating Agencies 

The Minnesota Department of Commerce, Office of Energy Security (OES) (co-lead) 

United States Department of Agriculture Rural Development (RUS)) (co-lead) 

U.S. Forest Service (USFS) Chippewa National Forest (CNF), U.S. Army Corps of 

Engineers (USACE), and the Division of Resource Management, Leech Lake Band of 

Ojibwe Indians (LLDRM) agreed to assist RUS as cooperating agencies in preparing this 

EIS. 

7.2. Federal Agencies Contacted 

U.S. Environmental Protection Agency 

U.S. Fish and Wildlife Service 

U.S. Bureau of Indian Affairs 

U.S. Department of Agriculture, Natural Resources Conservation Service 

7.3. Minnesota Agencies Contacted 

Minnesota Department of Natural Resources 

Minnesota Department of Transportation 

Minnesota Public Utilities Commission 

Minnesota State Historic Preservation Office 

7.4. Tribes Contacted 

Leech Lake Band of Ojibwe 

Assiniboine and Sioux Tribes of Fort Peck 

Bad River Band of the Lake Superior Tribe of Chippewa Indians of the Bad River 

Reservation 

Bois Forte Band (Nett Lake) of the Minnesota Chippewa Tribe 

Flandreau Santee Sioux Tribe of North Dakota 

Fond du Lac Band of the Minnesota Chippewa Tribe 

Grand Portage Band of the Minnesota Chippewa Tribe 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

602 

7. Agencies and Tribes Contacted 

Keweenaw Bay Indian Community 

Lac Courte Oreilles Band of Lake Superior Chippewa Indians of Wisconsin 

Lac Vieux Desert Band of Lake Superior Chippewa Indians 

Lower Sioux Community Council 

Mille Lacs Band of the Minnesota Chippewa Tribe 

Prairie Island Indian Community 

Red Cliff Band of Lake Superior Indians of Wisconsin 

Red Lake Band of Minnesota Chippewa Tribe 

Santee Sioux Nation, Nebraska 

Sisseton-Wahpeton Oyate of the Lake Traverse Reservation 

Sokaogon Chippewa Community 

Spirit Lake Nation 

St. Croix Chippewa Indians of Wisconsin 

Upper Sioux Community of Minnesota 

White Earth Band of Minnesota Chippewa Tribe 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

603 

8. Distribution List 

8. Distribution List 

The Draft and Final EISs were distributed to the agencies, organizations, persons, and 

locations listed below: 

8.1. Federal Agencies 

Advisory Council on Historic Preservation 

Chippewa National Forest 

NOAA Office of Policy and Strategic Planning 

U.S. Army Corps of Engineers, Bemidji Regulatory Office 

U.S. Army Corps of Engineers, Mississippi Valley Division 

U.S. Department of Agriculture National Agricultural Library 

U.S. Department of Agriculture APHIS PPD/EAD 

U.S. Department of Agriculture Natural Resources Conservation Service 

U.S. Department of Agriculture Office of Civil Rights 

U.S. Department of Interior, Office of Environmental Policy and Compliance 

U.S. Department of Interior, Bureau of Indian Affairs, Midwest Office 

U.S. Environmental Protection Agency, Region 5 

U.S. Fish and Wildlife Service 

8.2. Tribal Governments and Agencies 

Leech Lake Band of Ojibwe 

Leech Lake Band of Ojibwe, Division of Resource Management 

8.3. Minnesota State Agencies 

Minnesota Board of Water and Soil Resources 

Minnesota Department of Natural Resources 

Minnesota Department of Agriculture 

Minnesota Department of Health 

Minnesota Department of Transportation 

Minnesota Indian Affairs Council 

Minnesota Office of Attorney General 

Minnesota Pollution Control Agency 

Minnesota State Historic Preservation Office 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

604 

8. Distribution List 

8.4. Local Units of Government 

Beltrami County 

Cass County 

Hubbard County 

Itasca County 

Bemidji 

Bena 

Cass Lake 

Deer River 

Zemple 

Cohasset 

Blackduck 

8.5. Local Libraries 

Bemidji Public Library 

Blackduck Public Library 

Bovey Public Library 

Cass Lake Public Library 

Coleraine Public Library 

Grand Rapids Public Library 

Margaret Welch Memorial Library 

Walker Public Library 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

605 

9. References 

9. References 

Afinson, Scott. 1987. The Prehistory of the Prairie Lake Region in the 

Northeastern Plains. Unpublished Ph.D. dissertation, Department of 

Anthropology, University of Minnesota, Minneapolis. 

Afinson, Scott. 2005. SHPO Manual for Archaeological Projects in Minnesota. 

Minnesota Historical Society. St. Paul, Minnesota. 

Atkins, Annette. 2007. Creating Minnesota: A History from the Inside Out. 

Minnesota Historical Society Press. St. Paul, Minnesota. 

Avian Power Line Interaction Committee (APLIC). 2006. Suggested Practices for Avian 

Protection on Power Lines: The State of the Art in 2006. Edison Electric Institute, 

APLIC, and California Energy Commission. Washington, D.C and Sacramento, 

CA. 

Audubon (National Audubon Society). 2009. Great Blue Heron. Website accessed on 

July 10, 2009 at: 

http://web1.audubon.org/waterbirds/species.php?speciesCode=greblu1&tab. 

Audubon Society, 2009. Northern Goshawk Guidance for Conservation. 

http://www.audubon.org/chapter/ny/ny/PDFs/HRVC_NORTHERNGOSHA

WK.pdf Website accessed October 1, 2009. 

BBC. “The impact of large buildings and structures (including wind farms) on 

terrestrial television reception.” 2008. Website accessed at: 

www.bbc.co.uk/reception/info/pdf/buildings.factsheet.pdf. As referenced in 

Otter Tail Power et al., 2008, Application for a Route Permit. 

Beltrami County. 2009. Beltrami County Comprehensive Plan. Website accessed 

June 25, 2009 at: 

http://www.co.beltrami.mn.us/Departments/ComprehensivePlan/Comprehen

sivePlan.pdf. 

Beltrami County. 2002. Land Asset Management Policy. Website accessed June 

25, 2009 at: 

http://www.co.beltrami.mn.us/departments/nrmlandassetmgmtpolicy.pdf. 

Beltrami County. 2006. Recreational Trails Plan. Website accessed on June 26, 2009 at: 

http://www.co.beltrami.mn.us/Maps/Recreational%20Trail%20Map.pdf

Beltrami County Sheriff. 2009. Website accessed on July 1, 2009 at: 

http://www.co.beltrami.mn.us/departments/Law%20Enforcement/LEC.html. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

606 

9. References 

Beltrami Soil and Water Conservation District (BSWCD). 2009. Beltrami Soil and 

Water Conservation District. Website accessed July 13, 2009 at: 

http://www.beltramiswcd.org/. 

Bemidji Municipal. 2009. Website accessed on July 1, 2009 at: 

http://www.ci.bemidji.mn.us/. 

Benton-Banai, Edward. 1979. Mishmis Book: The Voice of the Ojibway. Indian Country 

Press. 

Bigfork Valley Hospital. 2009. Website accessed on July 2, 2009 at: 

http://www.bigforkvalley.org/. 

Birdnature. 2009. Black-backed woodpecker. Website accessed on August 11, 2009, 

http://www.birdnature.com/bb3tw.html. 

Bittman, Jim. 2008. Personal Communication, Dan Thompson, of NRG, with Jim 

Bittman, District 2A Transportation Engineer, Minnesota Department of 

Transportation, February. 

Blackduck Municipal. 2009. Website accessed on July 1, 2009 at: 

http://www.blackduckmn.com/. 

Boreal Songbirds Initiative (BSI). 2009. Connecticut Warbler. Website accessed on 

August 11, 2009 at: 

http://www.borealbirds.org/birdguide/bd0639_species.shtml. 

Burlington Northern Santa Fe (BNSF). 2007. Utility Accommodation Policy. May 5. 

Accessed January 2010 at: 

http://www.bnsf.com/tools/fieldengineering/pdf/utilacc.pdf. 

California Electric and Magnetic Fields Program. 2000. “Electric and Magnetic Fields 

measurements and possible effect on human health – what we know and what 

we don’t know in 2000.” Electronic version accessed May 17, 2010 at: 

http://www.ehib.org/emf/longfactsheet.PDF. 

Carey, Jennifer H. 1993. Pinus strobus. In: Fire Effects Information System, [Online]. U.S. 

Department of Agriculture, Forest Service, Rocky Mountain Research Station, 

Fire Sciences Laboratory. Available: http://www.fs.fed.us/database/feis. 

Carney, L.M., and Mooers, H.D. 1998. Landform Assemblages and Glacial History of 

a Portion of the Itasca Moraine, North-Central Minnesota, p. 85-96 in Patterson, C.J. 

and Wright, H.E., Jr., eds., Contributions to Quaternary Studies in Minnesota: 

Minnesota Geological Survey Report of Investigations 49. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

607 

9. References 

Carpenter, David O. and Cindy Sage. 2008. “Setting Prudent Public Health Policy for 

Electromagnetic Field Exposures.” Reviews on Environmental Health. Vol. 23, 

No. 2. 

Carpenter, David O. 2010. Testimony in the matter of the route permit application by 

Great River Energy and Xcel Energy for a 345 kV line from Brookings County, 

South Dakota to Hampton, Minnesota. 

Case, F. 1987. Orchids of the Western Great Lakes Region. Cranbrook Institute of 

Science, Ann Arbor, MI. 

Cass County. 2002. Cass County Comprehensive Plan. Website accessed on June 25, 

2009 at: http://www.co.cass.mn.us/esd/pdfs/comp_plan.pdf. 

Cass County. 2005a. Agricultural Uses. Website accessed July 13, 2009 at: 

http://www.co.cass.mn.us/esd/pdfs/fact_sheets/agricultural_uses.pdf. 

Cass County. 2005b. Ordinance #2005-01. Land Use Ordinance for Cass County, 

Minnesota. Website accessed on June 26, 2009 at: 

http://www.co.cass.mn.us/ordinances/200501_landuse.pdf. 

Cass County Sheriff’s Office. 2009. Website accessed on July 1, 2009 at: 

http://www.co.cass.mn.us/sheriff/sheriff_home.html. 

Casson, Jason et al. 2002. Conservation approach for Goblin fern (Botrychium mormo, 

W.H. Wagner). USDA Forest Service, Eastern Region. Website accessed on June 

2002, http://www.fs.fed.us/r9/wildlife/tes/ca-overview/docs/Goblin-FernApproach_0602.pdf. 

Chadde, Steve and Greg Kudray. 2001. Conservation Assessment for Botrychium 

minganense (Mingan moonwort). USDA Forest Service, Eastern Region. Website 

accessed at: 

http://www.fs.fed.us/r9/wildlife/tes/caoverview/docs/plant_Botrychium_mi

nganense-Mingan_Moonwort.pdf. 

Chadde, Steve and Greg Kudray. 2003a. Conservation Assessment for Least Moonwort 

(Botrychium simplex). USDA Forest Service, Eastern Region. Website accessed 

at: 

http://www.fs.fed.us/r9/wildlife/tes/caoverview/docs/plant_Botrychium_si

mplex-Least_Moonwort.pdf. 

Chadde, Steve and Greg Kudray. 2003b. Conservation Assessment for Pale moonwort 

(Botrychium palidium). USDA Forest Service, Eastern Region. Website accessed 

at: http://www.fs.fed.us/r9/wildlife/tes/caoverview/docs/plant_Botrychium_pallidum-Pale_Moonwort.pdf. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

608 

9. References 

Chadde, Steve and Greg Kudray. 2003c. Conservation Assessment for Ternate 

Grapefern (Botrychium rugulosum). USDA Forest Service, Eastern Region. 

Website accessed at: http://www.fs.fed.us/r9/wildlife/tes/caoverview/docs/plant_Botrychium_rugulosum-Ternate_Grapefern.pdf. 

Chippewa National Forest (CNF). 2004a. Chippewa National Forest Management Plan. 

Website accessed on June 25, 2009 at: 

http://www.fs.fed.us/r9/forests/chippewa/projects/forest_plan/documents/c

nf/index.shtml. 

Chippewa National Forest (CNF). 2004b. Final Environmental Impact Statement for 

Forest Plan Revision. Chippewa National Forest. Superior National Forest. July. 

Accessible at: 

http://www.fs.fed.us/r9/forests/chippewa/projects/forest_plan/documents/f

eis/

Chippewa National Forest (CNF). 2005. Chippewa National Forest: Fishing Flyer. 

Website accessed on June 26, 2009 at: 

http://www.fs.fed.us/r9/forests/chippewa/recreation/fishing/flyer.php. 

Chippewa National Forest (CNF). 2008a. Chippewa National Forest: Hiking. Website 

accessed on June 26, 2009 at: 

http://www.fs.fed.us/r9/forests/chippewa/recreation/hiking/. 

Chippewa National Forest (CNF). 2008b. Non-Native Invasive Scoping Letter. 

Chippewa National Forest (CNF). 2008c. Noxious Weeds List. 

Chippewa National Forest (CNF). 2009a. Gathering. Website accessed August 2, 2009 

at: http://www.fs.fed.us/r9/forests/chippewa/recreation/gathering/. 

Chippewa National Forest (CNF). 2009b. Cabins. Website accessed August 2, 2009 at: 

http://www.fs.fed.us/r9/forests/chippewa/recreation/cabins/. 

Chippewa National Forest (CNF). 2009c. Hunter Walking Trails. Website accessed 

August 2, 2009 at: 

http://www.fs.fed.us/r9/forests/chippewa/recreation/hunting/index.php. 

Chippewa National Forest (CNF). 2009d. Fishing Flyer. Website accessed August 2, 

2009 at: 

http://www.fs.fed.us/r9/forests/chippewa/recreation/fishing/flyer.php. 

Chippewa National Forest (CNF). 2010. Personal Communication with ERM. 

Comments on the January 2010 PDEIS. 

City of Blackduck. 2007. Planning and Zoning Ordinance. Website accessed June 24, 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

609 

9. References 

2009 at: 

http://www.blackduckmn.com/index.asp?Type=B_BASIC&SEC={1D8C4E78-

ED3E-4531-BD64-3EE70E28C36C}&DE={6F0FD06A-30E1-4607-AD3A224F6A380ECD}. 

Coladonato, Milo. 1992. Ulmus americana. In: Fire Effects Information System, [Online]. 

U.S. Department of Agriculture, Forest Service, 

Rocky Mountain Research Station, Fire Sciences Laboratory. 

Available: http://www.fs.fed.us/database/feis. 

Coladonato, Milo. 1993. Ulmus rubra. In: Fire Effects Information System, [Online]. U.S. 

Department of Agriculture, Forest Service, Rocky Mountain Research Station, 

Fire Sciences Laboratory. Available: http://www.fs.fed.us/database/feis. 

Corace, R. Gregory III. 2001. Conservation assessment for Black-backed woodpecker 

(Picoides arcticus). USDA Forest Service, Eastern Region. August. Website 

accessed at: http://www.fs.fed.us/r9/wildlife/tes/caoverview/docs/bird_Picoides_arcticus-BlackbackedWoodpecker.pdf. 

Cornell University (Cornell). 2009a. Bald Eagle. Website accessed on July 9, 2009 at: 

http://www.allaboutbirds.org/guide/Bald_Eagle/id. 

Cornell University (Cornell). 2009b. Olive-sided Flycatcher. Website accessed on July 9 

and August 11, 2009 at: 

http://www.birds.cornell.edu/bfl/speciesaccts/olsfly.html. 

Cowger et al. 1996. “Transmission Line Impact on Residential Property Values.” Right 

of Way Journal. Vol. 13. 

DATANET – GeoAnalysis Tool, 2000. Department of Administration, Office of 

Geographic and Demographic Analysis, Land Management Information Center, 

GeoAnalysis Tool. Website accessed July 21 and 22, 2009 at: 

http://www.lmic.state.mn.us/datanetweb/php/census2000/CenProf/Report.p

hp. 

Davis, J. I. 2007. Torreyochloa. In: Flora of North America Editorial Committee, eds. 

1993+. Flora of North America North of Mexico. 12+ vols. New York and Oxford. 

Vol. 24, pp. 607-609. 

Dechant, Jill A., M. L. Sondreal, D. H. Johnson, L.D. Igl, C. M. Goldade, A.L. 

Zimmerman, and B.R. Euliss. 2009. Effects of Management Practices on 

Grassland Birds: Le Conte’s Sparrow. Northern Prairie Wildlife Research 

Center. U.S. Geological Survey. Jamestown, North Dakota. Website accessed 

on August 11, 2009 at: 

http://www.npwrc.usgs.gov/resource/literatr/grasbird/download/lcsp.pdf. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

610 

9. References 

Deer River Health Care Center. 2009. Website accessed on July 2, 2009 at: 

http://www.drhc.org/welcome.htm. 

Demaille, R. J. (Editor). 2001. Plains. Vol. 13 of Handbook of North American 

Indians. Smithsonian Institution, Washington D.C. Explore Minnesota. 

Website accessed at: http://www.exploreminnesota.com/home.aspx. 

Dobbs, Clark A. 1990a. “Outline of Historic Contexts for the Prehistoric Period 

(ca. 12,000 BP - A.D. 1700).” Institute for Minnesota Archaeology Reports 

of Investigations 37. Prepared for the State Historic Preservation Office, St. Paul, 

Minnesota. 

Dobbs, Clark A. 1990b. “Historic Context Outlines: The Contact Period (ca. 1630 

A.D. - 1820 A.D.).” Institute for Minnesota Archaeology Reports of 

Investigations 39. Prepared for the State Historic Preservation Office, St. Paul, 

Minnesota. 

Edwards, Andrew J., Mike Schrage, and Mark Lenarz. 2004. “Northeastern 

Minnesota Moose Management – A Case Study in Cooperation.” ALCES 

Vol. 40: 23-31. 

Elliot, Thomas C., Kao Chen, and Robert C. Swanekamp. 1997. Standard Handbook of 

Power Plant Engineering. McGraw Hill Companies. 

 

Enbridge Energy. 2009. “Final Environmental Impact Statement for the Alberta Clipper 

Pipeline Project.” Applicant for the Presidential Permit: Enbridge Energy, LP. 

http://www.albertaclipper.state.gov/clientsite/clipper.nsf/. 

Enbridge Pipelines. Website accessed July 7, 2009 at: 

http://www.enbridge.com/pipelines/. 

Environmental Resources Management, Inc. (ERM). 2009. “Phase I Cultural Resource 

Investigation Research Design, Proposed Bemidji-Grand Rapids 230-kV Electrical 

Transmission Line, Minnesota.” DRAFT. January 15. 

Erb, John. 2008. Distribution and Abundance of Wolves in Minnesota. John Erb, 

Minnesota Department of Natural Resources. Website accessed on August 13, 

2009 at: 

http://files.dnr.state.mn.us/fish_wildlife/wildlife/wolves/2008_survey.pdf. 

Erb, John, and S. Benson. 2004. “Distribution and abundance of wolves in Minnesota, 

2003-04.” Minnesota Department of Natural Resources, St. Paul, Minnesota. 

Federal Communications Commission (FCC). Wireless Databases. Website 

accessed July 8, 2009 at: http://wireless.fcc.gov/index.htm?job=databases. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

611 

9. References 

Federal Emergency Management Agency (FEMA). 2003a. Flood Insurance Rate Map, 

Beltrami County, Minnesota.

Federal Emergency Management Agency (FEMA). 2003b. Flood Insurance Rate Map, Cass 

County, Minnesota.

Federal Emergency Management Agency (FEMA). 2003c. Flood Insurance Rate Map, 

Hubbard County, Minnesota.

Federal Emergency Management Agency (FEMA). 2003d. Flood Insurance Rate Map, 

Itasca County, Minnesota.

Federal Emergency Management Association (FEMA). 2009. National Flood Insurance 

Program. Website accessed July 9, 2009 at: 

http://www.fema.gov/business/nfip/index.shtm. 

Federal Highway Administration (FHWA). 1981. Visual Impact Assessment for 

Highway Projects (FHWA-HI-88-054). Website accessed on July 1, 2009 at: 

http://www.dot.ca.gov/ser/downloads/visual/FHWAVisualImpactAssmt.pdf. 

Frisco, Stephen. 2008. Personal Communication, Aaron Diehl, of HDR Engineering Inc., 

with Stephen Frisco, Roadway Regulation Coordinator, Minnesota Department 

of Transportation, February 13. 

Gibbon, Guy. 2002. The Sioux. Blackwell Pub. 

Giese, Paula. 1997. Leech Lake Band of Chippewa. Website accessed on June 29, 2009 

at: http://kstrom.net/isk/maps/mn/casslake.htm. 

Great Lakes Gas Transmission Company. Website accessed July 7, 2009 at: 

http://www.glgt.com/indexf.htm. 

Greater Bemidji Area Joint Planning Board (GBAJPB). 2007. Greater Bemidji 

Area Land Use Plan. Website accessed June 24, 2009 at: 

http://www.jpbgba.org/vertical/Sites/%7B134ED1DD-8F5D-4B72-9D00-

AFD6CD25F943%7D/uploads/%7B61C3B5AD-D5BF-4CA9-82A8-

E470E384B552%7D.PDF. 

Greater Bemidji Area Joint Planning Board (GBAJPB). 2009. Greater Bemidji 

Area Zoning Map. Website accessed June 24, 2009 at: 

http://www.jpbgba.org/vertical/Sites/%7B134ED1DD-8F5D-4B72-9D00-

AFD6CD25F943%7D/uploads/%7B592EE558-6758-424F-B759-

09468DAA997B%7D.PDF. 

Hall, Steve P. 1987. Fort Snelling, Colossus in the Wilderness. Minnesota Historical 

Society, St. Paul, Minnesota. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

612 

9. References 

Harris, Cyril M. 1979. Handbook of Noise Control. Second Edition. McGraw-Hill. 

HDR Engineering, Inc. (HDR). 2009. Biological Resources field survey data. 

Unpublished. 

HDR Engineering, Inc. (HDR). 2010. Biological Resources field survey data. 

Unpublished. 

HDR Engineering, Inc. (HDR). 2010a. Personal email communication from Lydia 

Nelson to Suzanne Steinhauer, OES. July 21. 

HDR Engineering, Inc. (HDR). 2010b. Memorandum to Jamie Schrenzel, Minnesota 

Department of Natural Resources. Re: Summary of Literature Discussing 

Avian Interactions with Electric Lines. July 13. 

HNTB. 2008. 230 kV Bemidji-Grand Rapids Transmission Line Project. Visual 

Description and Potential Visual Impacts. December 18. 

Hobbs, Elizabeth. 1997. Mn/Model: An Archaeological Predictive Model for 

Minnesota. Electronic document, accessed December 13, 2008 at: 

http://gis.esri.com/library/userconf/proc97/proc97/to200/pap151/p151.htm. 

Hobbs, Elizabeth, Craig M. Johnson, and Guy E. Gibbon. 2001. “Model 

Development and Evaluation.” A Predictive Model of Precontact Archaeological Site 

Location for the State of Minnesota. Electronic document, accessed December 31, 

2008 at: http://www.mnmodel.dot.state.mn.us/chapters/chapters7.htm#ch721. 

Hubbard County. 2005. Hubbard County Land Use Plan. Hubbard County 

Planning Commission. Adopted June 1, 2005. 

Hubbard County. 2007. Hubbard County Ordinance #36. An Ordinance regulating the 

use of off highway vehicles on County Administered Tax-Forfeited Lands. 

Website accessed on June 26, 2009 at: 

http://www.co.hubbard.mn.us/Ordinances/ORD%2036%20OHV%20ordinance

032107.pdf. 

Hubbard County. 2009. Shoreland Management Ordinance No. 17. Website 

accessed June 25, 2009 at: 

http://www.co.hubbard.mn.us/Ordinances/ORDINANCE%20SEVENTEEN.pd

f. 

Hubbard County Sheriff’s Office. 2009. Website accessed on July 1, 2009 at: 

http://www.co.hubbard.mn.us/sheriff.htm. 

Hubbard County Soil and Water Conservation District (HSWCD). 2009. 

Hubbard County Soil and Water Conservation District. Website accessed 

July 13, 2009 at: http://www.hubbardswcd.org/. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

613 

9. References 

Igl, Larry D. 1999. Le Conte's Sparrow: ephemeral jewel of the northern Great Plains. 

North Dakota Outdoors 61(8). Jamestown, North Dakota: Northern Prairie 

Wildlife Research Center Online. Website accessed at: 

http://www.npwrc.usgs.gov/resource/birds/lespar/index.htm. 

Illinois Natural History Survey (INHS), Institute of Natural Resource Sustainability, 

University of Illinois at Urbana-Champaign. 2009. Black Sandshell. Website 

accessed on July 16, 2009 at: 

http://www.inhs.uiuc.edu/cbd/musselmanual/page136_7.html. 

Indian Affairs Council. 2010. Tribes: Leech Lake. Website accessed July 14, 2010 at: 

http://www.indianaffairs.state.mn.us/tribes_leechlake.html. 

International Crane Foundation (ICF). 2009. Sandhill Crane Grus canadensis. 

http://www.savingcranes.org/sandhillcrane.html. 

Itasca County. 2007. Itasca County Comprehensive Land Use Plan. Website 

accessed June 25, 2009 at: 

http://www.co.itasca.mn.us/Zoning/CompLandUsePlan.pdf. 

Itasca County. 2009. Itasca County Local Information. Website accessed on June 26, 

2009 at: http://www.co.itasca.mn.us/. 

Itasca County Sheriff’s Office. 2009. Website accessed on July 1, 2009 at: 

http://www.co.itasca.mn.us/Sheriff/Gov_shf.htm. 

Johnsgard, P.A. 1990. Hawks Eagles, and Falcons of North America. Smithsonian 

Institution Press, Pp.202-207. 

Kroll, Cyntia and Priestly, Thomas. 1992. “The Effects of Overhead Transmission Lines 

on Property Values.” Edison Electric Institute. Accessed December 31, 2009 at: 

http://staff.haas.berkeley.edu/kroll/pubs/tranline.pdf. 

Kudell-Ekstrum, Janet. 2002. Conservation assessment for Connecticut warbler 

(Oporornis agilis). USDA Forest Service, Eastern Region. August. Website 

accessed at: http://www.fs.fed.us/r9/wildlife/tes/caoverview/docs/bird_Oporornis_agilis-ConnecticutWarbler.pdf. 

Ladyslipper Scenic Byway. 2009. Ladyslipper Scenic Byway. Website accessed on June 

26, 2009 at: http://www.ladyslipperscenicbyway.org/index.php?pg=home. 

Lawson, Kurt. 2009. The Effects of Alternating Current Corrosion and Interference on 

Pipelines. Accessed December 2009 at: 

http://www.napipelines.com/featured/2009/2009-07-feature-6.html. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

614 

9. References 

Leech Lake Band of Ojibwe (LLBO). 2007. Personal Communication. Letter to Rural 

Utilities Service. December 20. 

Leech Lake Band of Ojibwe (LLBO). 2009a. History. Electronic document, accessed July 

20, 2009 at: http://www.llojibwe.org/history.html. 

Leech Lake Band of Ojibwe (LLBO). 2009b. Tribal Police Department Website accessed 

on July 2, 2009 at: http://llojibwe.com/llpolice/. 

Leech Lake Band of Ojibwe (LLBO). 2009c. Leech Lake Band of Ojibwe: Leech Lake 

Division of Resource Management – Licenses Department. Website accessed 

January 4, 2010 at: http://lldrm.org/license.html#wildrice. 

Leech Lake Band of Ojibwe (LLBO). 2010. Resource and Information Guide. 

Electronic version accessed July 14, 2010 at: 

http://www.llojibwe.com/images/llborig_web.pdf. 

Leech Lake Band of Ojibwe (LLBO). 2008a. Comments to the Alberta Clipper 

Pipeline Project Draft Environmental Impact Statement (DEIS). 

December. 

Leech Lake Band of Ojibwe (LLBO). 2008b. Letter, dated August 28, 2008, from 

Bruce Johnson, Leech Lake Band of Ojibwe to Suzanne Steinhauer, Minnesota 

Department of Commerce. 

Leech Lake Division of Resource Management (LLDRM). 2009a. Fish, Wildlife, and 

Plant Resources Department - Fisheries Program. Website accessed August 1, 

2009 at: http://lldrm.org/fish.html. 

Leech Lake Division of Resource Management (LLDRM). 2009b. Fish, Wildlife, and 

Plant Resources Department - Wildlife Program. Website accessed August 1, 

2009 at: http://lldrm.org/habitat.html. 

Leech Lake Division of Resource Management (LLDRM). 2009c. Land 

Department. Website accessed June 25, 2009 at: http://lldrm.org/land.html. 

Leech Lake Division of Resource Management (LLDRM). 2009d. Leech Lake 

Reservation Sensitive Species List (Revised July 2007). Website accessed on 

August 13, 2009 at: http://lldrm.org/assets/tes_list_excel_july.2007.xls. 

Leech Lake Division of Resource Management (LLDRM). 2009e. Website accessed July 

2009 at: http://lldrm.org/invasive.html. Cass Lake, Minnesota. 

Leech Lake Division of Resource Management (LLDRM). 2009f. Website accessed on 

June 29, 2009 at: http://lldrm.org/forestmana.html. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

615 

9. References 

Leech Lake Division of Resource Management (LLDRM). 2010a. Personal 

Communication to Suzanne Steinhauer at Office of Energy Security regarding 

Biological Comments on the DEIS. March 12. 

Leech Lake Division of Resource Management (LLDRM). 2010b. Correspondence to 

Honorable Eric L. Lipman. Administrative Hearings. May 3. 

Lemon, Gina. 2010. A Traditional Cultural Property Survey of the Bemidji to Grand 

Rapids 230 kV Transmission Line Proposal in Cass and Itasca Counties of 

Minnesota, on the Leech Lake Reservation. 

Lindholm, Robert E. 2010. In the Matter of the Application for a Route Permit for 

Bemidji-Grand Rapids 230 kV Transmission Project. Direct Testimony and 

Schedules. January 27. 

Marschner, F.J. 1974. The original vegetation of Minnesota, compiled from U.S General Land 

Office Survey notes by Francis J. Marschner [map]. 1:500,000. Redrafted from the 

original by P.J. Burwell and S.J. Haas under the direction of M.L. Heinselman. St. 

Paul: North Central Forest Experiment Station, United States Department of 

Agriculture. 

Mason, Ronald J. 1981. Great Lakes Archaeology. Academic Press. New York, 

New York. 

McClurken, James M. and Charles E. Cleland. 2000. Fish in the Lakes, Wild Rice, 

and Game in Abundance: Testimony on Behalf of Mille Lacs Ojibwe Hunting and 

Fishing Rights. Michigan State University Press. Lansing, MI. 

Meyer, Melissa L. 1994. The White Earth Tragedy: Ethnicity and Dispossession at a 

Minnesota Anishinaabe Reservation. University of Nebraska Press, Lincoln, 

Nebraska. 

Michigan State University (MSU). 2009. Black Tern. Website accessed on July 9, 2009 at: 

http://web4.msue.msu.edu/mnfi/abstracts/zoology/Chlidonias_niger.pdf. 

 

Minnesota Department of Administration (MDA). 2008a. Office of Geographic and 

Demographic Analysis. Office of the State Demographer. Annual estimates of 

city and township population, households and persons per household, 2000 to 

2007. Dataset released July 28, 2008. Website accessed July 20, 2009 at: 

http://www.demography.state.mn.us. 

Minnesota Department of Administration (MDA). 2008b. Office of Geographic and 

Demographic Analysis. Office of the State Demographer. Annual estimates of 

county population, households and persons per household, 2000 to 2007. 

Dataset, published July 30, 2008. Website accessed July 20, 2009 at: 

http://www.demography.state.mn.us. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

616 

9. References 

Minnesota Department of Administration (MDA). 2008c. Office of Geographic and 

Demographic Analysis. Office of the State Demographer. Population, household 

and labor force projections, 2005-2035. Database, published January 1, 2008. 

Website accessed July 20, 2009 at: http://www.demography.state.mn.us. 

Minnesota Department of Agriculture. 2010. Minnesota Prohibited Noxious Weeds. 

http://www.mda.state.mn.us/plants/badplants/noxiouslist.aspx. Accessed 

February 3, 2010. 

Minnesota Department of Employment and Economic Development (MnDEED). 2009. 

Local Unemployment Statistics Tool. Website accessed September 22 and 23, 

2009 at: http://www.deed.state.mn.us/lmi/tools/laus/default.aspx. 

Minnesota Department of Natural Resources (MnDNR). 2006. Comprehensive Wildlife 

Conservation Strategy. 

Minnesota Department of Natural Resources (MnDNR). 2008a. 2008 Minnesota 

Hunting and Trapping Regulations Handbook. Website accessed on June 26, 

2009 at: 

http://files.dnr.state.mn.us/rlp/regulations/hunting/2008/full_regs.pdf. 

Minnesota Department of Natural Resources (MnDNR). 2008b. Off-Highway Vehicles 

Regulations 2008-2009. Website accessed on June 26, 2009. 

Minnesota Department of Natural Resources (MnDNR). 2008c. 2008-2009 Minnesota 

Snowmobile Safety Laws, Rules and Regulations. Website accessed on 

September 8, 2009 at: 

http://files.dnr.state.mn.us/rlp/regulations/snowmobile/snowmobileregs09.p

df. 

Minnesota Department of Natural Resources (MnDNR). 2008d. A Wild Rice Study 

Document Submitted to the Minnesota Legislature by the Minnesota Department 

of Natural Resources. February 15. 

Minnesota Department of Natural Resources (MnDNR). 2008e. Minnesota DNR GIS 

Data Deli, GAP Land Cover Data. Website accessed during December 2008 at: 

http://deli.dnr.state.mn.us/. 

Minnesota Department of Natural Resources (MnDNR). 2009a. Bemidji Slough WMA. 

Website accessed on August 13, 2009 at: 

http://www.dnr.state.mn.us/wmas/detail_report.html?map=COMPASS_MAP

FILE&mode=itemquery&qlayer=bdry_adwma2py3_query&qitem=uniqueid&qs

tring=WMA0166900. 

Minnesota Department of Natural Resources (MnDNR). 2009b. Chippewa Plains/Pine 

Moraines and Outwash Plains Subsection Forest Resource Management Plan 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

617 

9. References 

Assessment (SFRMP). Website accessed July 2009 at: 

http://www.dnr.state.mn.us/forestry/subsection/cp_pmop/index.html. 

Minnesota Department of Natural Resources (MnDNR). 2009c. Cypripedium 

arietinum. Website accessed on July 10, 2009 at: 

http://www.dnr.state.mn.us/rsg/profile.html?action=elementDetail&selectedEl

ement=PMORC0Q020. 

Minnesota Department of Natural Resources (MnDNR). 2009d. Ecological 

Classification System - Chippewa Plains Subsection. Website accessed at: 

http://www.dnr.state.mn.us/ecs/212Na/index.html. 

Minnesota Department of Natural Resources (MnDNR). 2009e. Felis concolor. Website 

accessed on August 11, 2009 at: 

http://www.dnr.state.mn.us/rsg/profile.html?action=elementDetail&selectedEl

ement=AMAJH04010. 

Minnesota Department of Natural Resources (MnDNR). 2009f. Gray Wolf in Recovery 

in Minnesota, Wisconsin, and Michigan. Website accessed on August 12, 2009 at: 

http://www.fws.gov/midwest/wolf/aboutwolves/r3wolfrec.htm. 

Minnesota Department of Natural Resources (MnDNR). 2009g. Lynx sightings in 

Minnesota. Website accessed on August 13, 2009 at: 

http://www.dnr.state.mn.us/eco/nhnrp/research/lynx_sightings.html. 

Minnesota Department of Natural Resources (MnDNR). 2009h. Mining. 

Accessed July 13, 2009 at: 

http://www.dnr.state.mn.us/lands_minerals/mining.html. 

Minnesota Department of Natural Resources (MnDNR). 2009i. Minnesota Department 

of Natural Resources Lake Finder. Website accessed on September 24, 2009 at: 

http://www.dnr.state.mn.us/lakefind/index.html. 

Minnesota Department of Natural Resources (MnDNR). 2009j. Minnesota Department 

of Natural Resources Recreation Compass. Website accessed on June 26, 2009 at: 

http://www.dnr.state.mn.us/maps/compass.html. 

Minnesota Department of Natural Resources (MnDNR). 2009k. Minnesota Hunting and 

Trapping Regulations Handbook. Website accessed July 24, 2009 at: 

http://files.dnr.state.mn.us/rlp/regulations/hunting/2009/full_regs.pdf. 

Minnesota Department of Natural Resources (MnDNR). 2009l. Peregrine Falcon. 

Website accessed on July 9, 2009 at: 

http://www.dnr.state.mn.us/rsg/profile.html?action=elementDetail&selectedEl

ement=ABNKD06070. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

618 

9. References 

Minnesota Department of Natural Resources (MnDNR). 2009m. Public Waters 

Inventory Program (PWI), Online maps and lists. Website accessed July 10, 2009 

at: 

http://www.dnr.state.mn.us/waters/watermgmt_section/pwi/download.html. 

Minnesota Department of Natural Resources (MnDNR). 2009n. Rare Species Guide. 

http://www.dnr.state.mn.us/rsg/index.html. Last Accessed November 6, 2009. 

Minnesota Department of Natural Resources (MnDNR). 2009o. Tubercled Rein-orchid 

http://www.dnr.state.mn.us/rsg/profile.html?action=elementDetail&selectedEl

ement=PMORC1Y082

Minnesota Department of Natural Resources (MnDNR). 2009p. Yellow Rail. Coturnicops 

noveboracensis Accessed at: 

http://www.dnr.state.mn.us/rsg/profile.html?action=elementDetail&selectedEl

ement=ABNME01010

Minnesota Department of Natural Resources (MnDNR). 2010a. Blanding’s turtle. 

Website accessed June 16, 2010 at: 

http://www.dnr.state.mn.us/reptiles_amphibians/turtles/blandings.html

Minnesota Department of Natural Resources (MnDNR). 2010b. Minnesota Water 

Trails. Website accessed June 15, 2010 at: 

http://www.dnr.state.mn.us/watertrails/index.html. 

Minnesota Department of Natural Resources (MnDNR). 2010c. Correspondence to 

Suzanne Steinhauer, Minnesota Office of Energy Security. “Re: Draft 

Environmental Impact Statement for the Bemidji to Grand Rapids 230 kV 

Transmission Project.” April 26. 

Minnesota Department of Transportation (MnDOT). 2007. County Traffic Volume 

Maps: Aitkin, Beltrami, Cass, Hubbard, and Itasca Counties. Website accessed 

June 25, 2009 at: 

http://www.dot.state.mn.us/traffic/data/maps/thcountymapdex.html. 

Minnesota Department of Transportation (MnDOT). 2008. 2009-12 State Transportation 

Improvement Plan. Website accessed June 27, 2009 at: 

http://www.dot.state.mn.us/planning/program/stip.html. 

Minnesota Department of Transportation (MnDOT). 2009a. Draft Statewide 

Transportation Plan 2009-2028. Website accessed June 27, 2009 at: 

http://www.dot.state.mn.us/planning/stateplan/index.html. 

Minnesota Department of Transportation (MnDOT). 2009b. Farmland Impacts. 

Website accessed July 13, 2009 at: 

http://dotapp7.dot.state.mn.us/edms/download?docId=614622. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

619 

9. References 

Minnesota Department of Transportation (MnDOT). 2009c. Letter to Suzanne 

Steinhauer, OES, regarding CapX2020 Bemidji – Grand Rapids 230 kV 

Transmission Project, PUC Docket No. TL-07-1327. July 2. 

Minnesota Department of Transportation (MnDOT). 2009d. Visual Quality. Website 

accessed on July 1, 2009 at: 

http://dotapp7.dot.state.mn.us/edms/download?docId=608959. 

Minnesota Department of Transportation (MnDOT). 2010. Letter to Suzanne 

Steinhauer, OES, regarding Bemidji-Grand Rapids Transmission Line Project. 

April 20. 

“Minnesota Gap Analysis Project.” Gap Analysis Bulletin, no. 16 (March 2009): 80-83. 

Website accessed June 24, 2009 at: 

http://www.gap.uidaho.edu/bulletins/16/Minnesota.pdf. 

Minnesota Historical Society (MHS). 2005. “The East Terrace Site Early 

Minnesotans.” Minnesota Archaeology. Electronic document, accessed 

December 14, 2008 at: 

http://www.mnmodel.dot.state.mn.us/mn_arch/terrace/early_mn.html. 

Minnesota Historical Society (MHS). 2008. Iron Range Region: Historical 

Overview. Electronic document, accessed December 14, 2008 at: 

http://nrhp.mnhs.org/iron_range_overview.html. 

Minnesota House Research. 2002. “State-Owned Land in Minnesota.” Electronic 

Document, accessed August 9, 2010 at: 

http://www.house.leg.state.mn.us/hrd/pubs/ss/sssoland.htm. 

Minnesota House Research. 2007. “Indians, Indian Tribes, and State Government.” 

Fourth Edition. January. Electronic document, accessed December 2009 at: 

http://www.house.leg.state.mn.us/hrd/pubs/indiangb.pdf. 

Minnesota Land Management Information Center (LMIC). 1999a. Beltrami 

County Land Use and Cover. Website accessed June 24, 2009 at: 

http://www.gda.state.mn.us/maps/LandUse/lu_belt.pdf. 

 

Minnesota Land Management Information Center (LMIC). 1999b. Cass County 

Land Use and Cover. Website accessed June 25, 2009 at: 

http://www.gda.state.mn.us/maps/LandUse/lu_cass.pdf. 

 

Minnesota Land Management Information Center (LMIC). 1999c. Itasca County 

Land Use and Cover. Website accessed June 24, 2009 at: 

http://www.gda.state.mn.us/maps/LandUse/lu_itas.pdf. 

 

Minnesota Land Management Information Center (LMIC). 1999d. Minnesota 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

620 

9. References 

Land Use and Cover: 1990s Census of the Land. Website accessed June 24, 2009 

at: http://lucy.lmic.state.mn.us/metadata/luse8.html. 

Minnesota Office of the State Demographer (MnOSD). 2009. Income Estimates, 2007. 

Website accessed September 23, 2009 at: 

http://www.demography.state.mn.us/documents/pinc2007web.csv. 

 

Minnesota Office of the State Demographer (MnOSD). 2010. Income Estimates, 2008. 

Website accessed July 16, 2010 at: 

http://www.demography.state.mn.us/resource.html?Id=28318. 

Minnesota Pollution Control Agency (MPCA). 1998. Baseline Water Quality of 

Minnesota’s Principal Aquifers – Region 2, North Central Minnesota. Prepared by 

Ground Water Monitoring and Assessment Program. St. Paul, Minnesota. 

Minnesota Pollution Control Agency (MPCA). 2008. A Guide to Noise Control. 

Minnesota Pollution Control Agency (MPCA). 2009a. Air Quality in Minnesota: Emerging 

Trends, 2009 Report to the Legislature. Website accessed July 2009 at: 

http://www.pca.state.mn.us/publications/Iraq-1sy09.pdf. 

Minnesota Pollution Control Agency (MPCA). 2009b. Annual Air Monitoring Network for 

the State of Minnesota. Website accessed July 2009 at: 

http://www.pca.state.mn.us/publications/aq10-02.pdf. 

Minnesota Pollution Control Agency (MPCA). 2009c. Minnesota’s Impaired Waters and 

Total Maximum Daily Loads. Website accessed July 2009 at: 

http://www.pca.state.mn.us/water/tmdl/. 

The Minnesota State Interagency Working Group on EMF Issues (MSIWG). 2002. A 

White Paper on Electric and Magnetic Field Policy and Mitigation Options. 

Website accessed on July 24, 2009 at: 

http://www.capx2020.com/Images/EMFWhitePaper2002.pdf. 

Minnesota State University, Mankato. n.d. “Minnesota History: A 

Chronology.” History of Minnesota. Electronic document, accessed December 

14, 2008 at: http://www.mnsu.edu/emuseum/history/mnstatehistory/. 

Mississippi Headwaters Board (MHB). 2002. Mississippi Headwaters 

Comprehensive Plan. Website accessed June 25, 2009 at: 

http://mississippiheadwaters.org/publications/2002%20PLAN%20FINAL.pdf. 

Mississippi River Great River Road. 

http://www.mnmississippiriver.com/cass-lakebena-ball-club.cfm. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

621 

9. References 

Mississippi River Parkway Commission (MRPC). 2009. Along the River in Minnesota. 

The Great River Road in Minnesota. Website accessed on December 15, 2009 at: 

http://www.experiencemississippiriver.com/minnesota-along.cfm. 

MNFI. 2002. Ranunculus lapponicus L. Lapland buttercup. 

http://web4.msue.msu.edu/mnfi/abstracts/botany/Ranunculus_lapponicus.p

df. 

Morey, G.B. and Meints, Joyce, compilers. 2000. Geologic Map of Minnesota, 

Bedrock Geology (Digital Version), Minnesota Geological Survey, State Map 

Series S-20, 3rd ed., scale 1:1,000,000. 

Morse, D. H. 1989. American Warblers: An Ecological and Behavioral Perspective. 

Harvard University Press, Harvard. 

National Forest Service National Trail. 

http://www.fs.fed.us/recreation/programs/trails/nat_trails.shtml#historic. 

National Institute of Environmental Health Sciences (NIEHS). 2002. EMF: 

Electric and Magnetic Fields Associated with the Use of Electric Power. 

Questions and Answers. Website accessed on July 27, 2009 at: 

http://www.niehs.nih.gov/health/docs/emf-02.pdf. 

National Park Service (NPS). n.d. Archaeology and Historic Preservation: 

Secretary of Interior’s Standards and Guidelines. Electronic resource, accessed 

January 2, 2009 at: http://www.nps.gov/history/local-law/arch_stnds_2.htm. 

National Park Service (NPS). 2000. “Guidelines for Evaluating and Registering 

Archeological Properties.” Bulletin No. 36. 

National Register Bulletin. 1997. How to Apply the National Register Criteria for 

Evaluation. www.cr.nps.gov/nr/publications/bulletins/nrb15/Index.htm. 

Natural Heritage Information System Database (NHIS). 2007. Minnesota Department of 

Natural Resources (MnDNR). Accessed in December 2008. 

Natural Heritage Information System Database (NHIS). 2008. Minnesota Department of 

Natural Resources (MnDNR). Accessed in December 2008. 

NatureServe, 2009a. Botaurus lentiginosus American bittern 

http://www.natureserve.org/explorer/servlet/NatureServe?searchName=Bota

urus+lentiginosus+. 

NatureServe, 2009b. Buteo lineatus Red shouldered hawk. 

http://www.natureserve.org/explorer/servlet/NatureServe?searchName=Bute

o%20lineatus. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

622 

9. References 

NOAA/ISWS Midwest Regional Climate Center (MRCC). 2009a. 1971-2000 Climate 

Data for Bemidji, Minnesota. Midwestern Regional Climate Center. Website 

accessed July 1, 2009 at: 

http://mrcc.isws.illinois.edu/climate_midwest/historical/temp/mn/210643_ht

ml. 

NOAA/ISWS Midwest Regional Climate Center (MRCC). 2009b. 1971-2000 Climate 

Data for Cass Lake, Minnesota. Midwestern Regional Climate Center. Website 

accessed July 1, 2009 at: 

http://mrcc.isws.illinois.edu/climate_midwest/historical/temp/mn/211374_ht

ml. 

NOAA/ISWS Midwest Regional Climate Center (MRCC). 2009c. 1971-2000 Climate 

Data for Walker AH Gwah Ching, Minnesota. Midwestern Regional Climate 

Center. Website accessed July 1, 2009 at: 

http://mrcc.isws.illinois.edu/climate_midwest/historical/temp/mn/218618_ht

ml. 

North Country Regional Hospital. 2009. Website accessed on July 2, 2009 at: 

http://www.nchs.com/. 

Office of Energy Security (OES), Minnesota Department of Commerce. 2009. 

Environmental Report: Bemidji to Grand Rapids 230 kV Transmission Project, In the 

Matter of the Application of Otter Tail Power Company, Minnesota Power, and 

Minnkota Power Cooperative for a Certificate of Need for 230- kV Transmission Line and 

Associated System Connections from Bemidji to Grand Rapids Minnesota, PUC Docket 

No.E01, E015, ET-6/CN-07-1222. April 30. 

Otter Tail Power Company, Minnesota Power, and Minnkota Power Cooperative, Inc. 

(Otter Tail Power et al.). 2008a. Application for a Route Permit for the Bemidji to 

Grand Rapids 230 kV Transmission Line Project. Prepared by HDR Engineering, 

Inc. (HDR) for Otter Tail Power Company, Minnesota Power, and Minnkota 

Power Cooperative, Inc. Docket No. E017, E015, ET-6 TL-07-1327. June 4. 

Otter Tail Power Company, Minnesota Power, and Minnkota Power 

Cooperative, Inc. 2008b. Macrocorridor Study 230 kV Transmission Proposal. 

Prepared by HDR Engineering, Inc. Revised September 2. 

Otter Tail Power Company, Minnesota Power, and Minnkota Power Cooperative, Inc. 

2008c. Alternatives Evaluation Study for the Bemidji-Grand Rapids 230kV Line. 

Prepared by HDR Engineering, Inc. 

Otter Tail Power Company, Minnesota Power, and Minnkota Power Cooperative, Inc. 

2008d. Application for a Certificate of Need for 230 kV Transmission Line and 

Associated System Connections from Bemidji to Grand Rapids, Minnesota. 

March 17. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

623 

9. References 

Otter Tail Power Company, Minnesota Power, and Minnkota Power Cooperative, Inc. 

2009. Personal Communication to Suzanne Steinhauer, OES regarding 

transformer noise levels. 

Otter Tail Power Company, Minnesota Power, and Minnkota Power Cooperative, Inc. 

2010a. “Final Biological Assessment and Evaluation for Bemidji to Grand 

Rapids 230 kV Transmission Line Project.” June. 

Otter Tail Power Company, Minnesota Power, and Minnkota Power Cooperative, Inc. 

2010b. Applicants’ Initial Post–Hearing Brief and Certificate of Service in the 

Matter of the Application for a Route Permit for the Bemidji-Grand Rapids 230 

kV Transmission Project. May 10. 

Palik, Brian. 2008. USDA Forest Service. Letter to Suzanne Steinhauer, OES, Re: 

Planned Power Line Route Through the Chippewa National Forest. August 21. 

Parker, P.L and T.F. King. 1998. Guidelines for Evaluating and Documenting 

Traditional Cultural Properties. U.S. Department of the Interior. 

The Platform. 1992. “The Misiano Site-McDougal Lake.” Vol. 4, No. 4. 

Electronic document, accessed December 12, 2008 at: 

http://wings.buffalo.edu/anthropology/Lithics/Platform/plat_4-4.htm. 

Public Service Commission of Wisconsin (PSCW). 2000. Property Values. Final 

Environmental Impact Statement. Arrowhead—Weston Electric Transmission 

Line Project, Volume 1, Public Service Commission of Wisconsin Docket 05-CE113, Date Issued October 2000. 

Rau, John G. & Wooten, David C. 1980. Environmental Impact Analysis 

Handbook, McGraw-Hill. 

Research Department of the Minnesota House of Representatives (RDMHR). 2007. 

Indians, Indian Tribes, and State Government-4th Edition. January 2007. Website 

accessed July 28, 2009 at: 

http://www.house.leg.state.mn.us/hrd/pubs/indiangb.pdf. 

Risjord, Norman K. 2005. A Popular History of Minnesota. Minnesota Historical 

Society Press. St. Paul, Minnesota. 

Savitz, D.A., H. Wachtel, F.A. Barnes, E.M. John, and J.G. Tvrdik. 1988. “Case-control 

study of childhood cancer and exposure to 60-Hz magnetic fields.” American 

Journal of Epidemiology. 128:21-38. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

624 

9. References 

Schmidt, Lori J. 2003. Conservation Assessment for Calypso bulbosa Fairy Slipper. 

September. Website accessed at http://www.fs.fed.us/r9/wildlife/tes/caoverview/docs/Plants/Fairy%20Slipper.pdf. 

Smith, Welby. 2008. Trees and Shrubs of Minnesota. University of Minnesota Press. 

Minneapolis, MN. 

Solum, Craig and Associates. 1995. “1985 Transmission Line Impact Study Based on 

Paired Sale Comparisons of Residential Properties Located Within Northwest 

and West Central Wisconsin.” Available from Wisconsin Public Utilities 

Commission. 

State of Washington. 2005. Guidance for Protecting and Management Wetlands. April. 

Accessed January 2010 at: 

http://www.ecy.wa.gov/programs/sea/wetlands/bas/volume2final.html. 

Stiffler, Donna L. 2008. The Iron Riches of Michigan’s Upper Peninsula. 

Electronic document, accessed December 14, 2008 at: 

http://www.michigan.gov/hal/0,1607,7-160-17451_18670_18793-53100--

,00.html. 

Stony Point Resort. 2009. Stony Point Resort Canal House Restaurant, RV Park, 

Campground, and Cottages. Website accessed September 24, 2009 at: 

http://www.stonyptresortcasslake.com/. 

Thompson, Robert G., Rose A. Kluth, and David W. Kluth. 1994. “Tracing the 

Use of Brainerd Ware through Opal Phytolith Analysis of Food Residues.” 

Minnesota Archaeologist 53 (86-95). 

University of Minnesota (UMN). 2009. Osprey. Website accessed on July 9 and August 

11, 2009 at: http://www.cvm.umn.edu/raptor/learn/info/osprey/home.html. 

University of Texas. 2009. Native Plant Database – Utricularia gibba. 

http://www.wildflower.org/plants/result.php?id_plant=utgi. Accessed 

November 6, 2009. 

U.S. Army Corps of Engineers. 2009. St. Paul District Policy for Wetland Compensatory 

Mitigation in Minnesota. Accessed December 2009 at: 

http://www.mvp.usace.army.mil/regulatory/. 

U.S. Census Bureau (USCB). 2000a. Profile of General Demographic Characteristics: 

2000. Census 2000 Summary File 1 (SF 1) – 100-Percent Data. Beltrami County. 

Accessed July 22, 2009 at: 

http://factfinder.census.gov/servlet/QTTable?_bm=y&-

geo_id=05000US27007&-qr_name=DEC_2000_SF1_U_DP1&-

ds_name=DEC_2000_SF1_U&-_lang=en&-redoLog=false&-_sse=on. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

625 

9. References 

U.S. Census Bureau (USCB). 2000b. Profile of General Demographic Characteristics: 

2000. Census 2000 Summary File 1 (SF 1) – 100-Percent Data. Cass County. 

Accessed July 22, 2009 at: 

http://factfinder.census.gov/servlet/QTTable?_bm=y&-

geo_id=05000US27021&-qr_name=DEC_2000_SF1_U_DP1&-

ds_name=DEC_2000_SF1_U&-_lang=en&-redoLog=false&-_sse=on. 

U.S. Census Bureau (USCB). 2000c. Profile of General Demographic Characteristics: 

2000. Census 2000 Summary File 1 (SF 1) – 100-Percent Data. Hubbard County. 

Accessed July 22, 2009 at: 

http://factfinder.census.gov/servlet/QTTable?_bm=y&-

geo_id=05000US27057&-qr_name=DEC_2000_SF1_U_DP1&-

ds_name=DEC_2000_SF1_U&-_lang=en&-redoLog=false&-_sse=on. 

U.S. Census Bureau (USCB). 2000d. Profile of General Demographic Characteristics: 

2000. Census 2000 Summary File 1 (SF 1) – 100-Percent Data. Itasca County. 

Accessed July 22, 2009 at: 

http://factfinder.census.gov/servlet/QTTable?_bm=y&-

geo_id=05000US27061&-qr_name=DEC_2000_SF1_U_DP1&-

ds_name=DEC_2000_SF1_U&-_lang=en&-redoLog=false&-_sse=on. 

U.S. Census Bureau (USCB). 2000e. Profile of General Demographic Characteristics: 

2000. Census 2000 Summary File 1 (SF 1) – 100-Percent Data. Minnesota. 

Accessed July 22, 2009 at: 

http://factfinder.census.gov/servlet/QTTable?_bm=y&-geo_id=04000US27&-

qr_name=DEC_2000_SF1_U_DP1&-ds_name=DEC_2000_SF1_U&-_lang=en&-

redoLog=false&-_sse=on. 

U.S. Census Bureau (USCB). 2000f. Table DP-2: Profile of Selected Social 

Characteristics: 2000. Census 2000 Summary File 3 (SF 3) – Sample Data. 

Beltrami County. Accessed July 22, 2009 at: 

http://factfinder.census.gov/servlet/QTTable?_bm=y&-

geo_id=05000US27007&-qr_name=DEC_2000_SF3_U_DP2&-

ds_name=DEC_2000_SF3_U&-_lang=en&-redoLog=false&-_sse=on. 

U.S. Census Bureau (USCB). 2000g. Table DP-2: Profile of Selected Social 

Characteristics: 2000. Census 2000 Summary File 3 (SF 3) – Sample Data. Cass 

County. Accessed July 22, 2009 at: 

http://factfinder.census.gov/servlet/QTTable?_bm=y&-

geo_id=05000US27021&-qr_name=DEC_2000_SF3_U_DP2&-

ds_name=DEC_2000_SF3_U&-_lang=en&-redoLog=false&-_sse=on. 

U.S. Census Bureau (USCB). 2000h. Table DP-2: Profile of Selected Social 

Characteristics: 2000. Census 2000 Summary File 3 (SF 3) – Sample Data. 

Hubbard County. Accessed July 22, 2009 at: 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

626 

9. References 

http://factfinder.census.gov/servlet/QTTable?_bm=y&-

geo_id=05000US27057&-qr_name=DEC_2000_SF3_U_DP2&-

ds_name=DEC_2000_SF3_U&-_lang=en&-redoLog=false&-_sse=on. 

U.S. Census Bureau (USCB). 2000i. Table DP-2: Profile of Selected Social Characteristics: 

2000. Census 2000 Summary File 3 (SF 3) – Sample Data. Itasca County. 

Accessed July 22, 2009 at: 

http://factfinder.census.gov/servlet/QTTable?_bm=y&-

geo_id=05000US27061&-qr_name=DEC_2000_SF3_U_DP2&-

ds_name=DEC_2000_SF3_U&-_lang=en&-redoLog=false&-_sse=on. 

U.S. Census Bureau (USCB). 2000j. Table DP-2: Profile of Selected Social Characteristics: 

2000. Census 2000 Summary File 3 (SF 3) – Sample Data. Minnesota. Accessed 

July 22, 2009 at: http://factfinder.census.gov/servlet/QTTable?_bm=y&-

geo_id=04000US27&-qr_name=DEC_2000_SF3_U_DP2&-

ds_name=DEC_2000_SF3_U&-_lang=en&-redoLog=false&-_sse=on. 

U.S. Census Bureau (USCB). 2000k. Table DP-3: Profile of Selected Economic 

Characteristics: 2000. Census 2000 Summary File 3 (SF 3) – Sample Data. 

Beltrami County. Accessed July 22, 2009 at: 

http://factfinder.census.gov/servlet/QTTable?_bm=y&-

geo_id=05000US27007&-qr_name=DEC_2000_SF3_U_DP3&-

ds_name=DEC_2000_SF3_U&-_lang=en&-redoLog=false&-_sse=on. 

U.S. Census Bureau (USCB). 2000l. Table DP-3: Profile of Selected Economic 

Characteristics: 2000. Census 2000 Summary File 3 (SF 3) – Sample Data. Cass 

County. Accessed July 22, 2009 at: 

http://factfinder.census.gov/servlet/QTTable?_bm=y&-

geo_id=05000US27021&-qr_name=DEC_2000_SF3_U_DP3&-

ds_name=DEC_2000_SF3_U&-_lang=en&-redoLog=false&-_sse=on. 

U.S. Census Bureau (USCB). 2000m. Table DP-3: Profile of Selected Economic 

Characteristics: 2000. Census 2000 Summary File 3 (SF 3) – Sample Data. 

Hubbard County. Accessed July 22, 2009 at: 

http://factfinder.census.gov/servlet/QTTable?_bm=y&-

geo_id=05000US27057&-qr_name=DEC_2000_SF3_U_DP3&-

ds_name=DEC_2000_SF3_U&-_lang=en&-redoLog=false&-_sse=on. 

U.S. Census Bureau (USCB). 2000n. Table DP-3: Profile of Selected Economic 

Characteristics: 2000. Census 2000 Summary File 3 (SF 3) – Sample Data. Itasca 

County. Accessed July 22, 2009 at: 

http://factfinder.census.gov/servlet/QTTable?_bm=y&-

geo_id=05000US27061&-qr_name=DEC_2000_SF3_U_DP3&-

ds_name=DEC_2000_SF3_U&-_lang=en&-redoLog=false&-_sse=on. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

627 

9. References 

U.S. Census Bureau (USCB). 2000o. Table DP-3: Profile of Selected Economic 

Characteristics: 2000. Census 2000 Summary File 3 (SF 3) – Sample Data. 

Minnesota. Accessed July 22, 2009 at: 

http://factfinder.census.gov/servlet/QTTable?_bm=y&-geo_id=04000US27&-

qr_name=DEC_2000_SF3_U_DP3&-ds_name=DEC_2000_SF3_U&-_lang=en&-

redoLog=false&-_sse=on. 

U.S. Census Bureau (USCB). 2000p. Census 2000 Summary File 1 and 3 (SF 1 and SF 3) 

– Sample Data DP-1 thru DP-4. Geographic area: Beltrami County. Accessed 

July 15, 2009 at: www.factfinder.census.gov. 

U.S. Census Bureau (USCB). 2000q. Census 2000 Summary File 1 and 3 (SF 1 and SF 3) – 

Sample Data DP-1 thru DP-4. Geographic area: Bemidji City. Accessed July 15, 

2009 at: www.factfinder.census.gov. 

U.S. Census Bureau (USCB). 2000r. Census 2000 Summary File 1 and 3 (SF 1 and SF 3) 

– Sample Data DP-1 thru DP-4. Geographic area: Bena City. Accessed July 15, 

2009 at: www.factfinder.census.gov. 

U.S. Census Bureau (USCB). 2000s. Census 2000 Summary File 1 and 3 (SF 1 and SF 3) 

– Sample Data DP-1 thru DP-4. Geographic area: Blackduck City. Accessed July 

15, 2009 at: www.factfinder.census.gov. 

U.S. Census Bureau (USCB). 2000t. Census 2000 Summary File 1 and 3 (SF 1 and SF 3) – 

Sample Data DP-1 thru DP-4. Geographic area: Cass County. Accessed July 15, 

2009 at: www.factfinder.census.gov. 

U.S. Census Bureau (USCB). 2000u. Census 2000 Summary File 1 and 3 (SF 1 and SF 3) 

– Sample Data DP-1 thru DP-4. Geographic area: Cass Lake City. Accessed July 

15, 2009 at: www.factfinder.census.gov. 

U.S. Census Bureau (USCB). 2000v. Census 2000 Summary File 1 and 3 (SF 1 and SF 3) 

– Sample Data DP-1 thru DP-4. Geographic area: Deer River City. Accessed 

July 15, 2009 at: www.factfinder.census.gov. 

U.S. Census Bureau (USCB). 2000w. Census 2000 Summary File 1 and 3 (SF 1 and SF 3) 

– Sample Data DP-1 thru DP-4. Geographic area: Grand Rapids City. Accessed 

July 15, 2009 at: www.factfinder.census.gov. 

U.S. Census Bureau (USCB). 2000x. Census 2000 Summary File 1 and 3 (SF 1 and SF 3) 

– Sample Data DP-1 thru DP-4. Geographic area: Hubbard County. Accessed 

July 15, 2009 at: www.factfinder.census.gov. 

U.S. Census Bureau (USCB). 2000y. 2000 Summary File 1 and 3 (SF 1 and SF 3) – 

Sample Data DP-1 thru DP-4. Geographic area: Itasca County. Accessed July 15, 

2009 at: www.factfinder.census.gov. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

628 

9. References 

U.S. Census Bureau (USCB). 2000z. Census 2000 Summary File 1 and 3 (SF 1 and SF 3) – 

Sample Data DP-1 thru DP-4. Geographic area: State of Minnesota. Accessed 

July 15, 2009 at: www.factfinder.census.gov. 

U.S. Census Bureau (USCB) 2000aa. Census 2000 Summary File 1 and 3 (SF 1 and SF 3) 

– Sample Data DP-1 thru DP-4. Geographic area: Zemple City. Accessed July 

15, 2009 at: www.factfinder.census.gov. 

U.S. Census Bureau (USCB). 2000bb. Census 2000 Summary File 1 (SF 1) 100 Percent 

Data – GCT-PH1. Population, Housing Units, Area, and Density. MinnesotaAmerican Indian Area. Accessed July 28, 2009 at: 

http://factfinder.census.gov/servlet/GCTTable?_bm=y&-context=gct&-

ds_name=DEC_2000_SF1_U&-mt_name=DEC_2000_SF1_U_GCTPH1_ST8&-

CONTEXT=gct&-tree_id=4001&-geo_id=04000US27&-format=ST-8&-_lang=en. 

U.S. Census Bureau (USCB). 2000cc. Census 2000 Summary File 3 (SF 3) Sample Data – 

GCT-P12. Employment Status and Commuting to Work: 2000. MinnesotaAmerican Indian Area. Accessed July 28, 2009 at: 

http://factfinder.census.gov/servlet/GCTTable?_bm=y&-context=gct&-

ds_name=DEC_2000_SF3_U&-CONTEXT=gct&-

mt_name=DEC_2000_SF3_U_GCTP12_ST8&-tree_id=403&-redoLog=false&-

geo_id=04000US27&-format=ST-8&-_lang=en. 

U.S. Census Bureau (USCB). 2000dd. Census 2000 Summary File 3 (SF 3) Sample Data – 

GCT-P13. Occupation, Industry, and Class of Worker of Employed Civilians 16 

Years and Over: 2000. Minnesota-American Indian Area. Accessed July 28, 2009 

at: http://factfinder.census.gov/servlet/GCTTable?_bm=y&-context=gct&-

ds_name=DEC_2000_SF3_U&-mt_name=DEC_2000_SF3_U_GCTP13_ST8&-

CONTEXT=gct&-tree_id=403&-redoLog=true&-geo_id=04000US27&-format=ST8&-_lang=en. 

U.S. Census Bureau (USCB). 2000ee. Census 2000 Summary File 3 (SF 3) Sample Data – 

GCT-P14. Income and Poverty in 1999: 2000. Minnesota- American Indian Area. 

Accessed July 28, 2009 at: 

http://factfinder.census.gov/servlet/GCTTable?_bm=y&-context=gct&-

ds_name=DEC_2000_SF3_U&-mt_name=DEC_2000_SF3_U_GCTP14_ST8&-

CONTEXT=gct&-tree_id=403&-redoLog=true&-geo_id=04000US27&-format=ST8&-_lang=en. 

U.S. Census Bureau (USCB). 2000ff. Census 2000 Summary File 1 and 3 (SF 1 and SF 3) – 

Sample Data DP-1 thru DP-4. Geographic area: Cohasset. Accessed September 

22, 2009 at: www.factfinder.census.gov. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

629 

9. References 

U.S. Census Bureau (USCB). 2001. Cartographic Boundary Files. Accessed July 22, 2009 

at: http://www.census.gov/geo/www/cob/bg_metadata.html. 

U.S. Census Bureau (USCB). 2007a. 2007 American Community Survey-1 Year 

Estimates. Table B24050. Industry by Occupation for the Civilian Employed 

Population 16 Years and Over – Universe: Civilian Employed Population 16 

Years and Over. Minnesota. Accessed July 27, 2009 at: 

http://factfinder.census.gov/servlet/DTTable?_bm=y&-state=dt&-context=dt&-

ds_name=ACS_2007_1YR_G00_&-CONTEXT=dt&-

mt_name=ACS_2007_1YR_G2000_B24050&-tree_id=307&-redoLog=true&-

_caller=geoselect&-geo_id=04000US27&-geo_id=NBSP&-

search_results=01000US&-format=&-_lang=en. 

U.S. Census Bureau (USCB). 2007b. 2007 American Community Survey-1 Year 

Estimates. Table B24080. Sex by Class of Worker for the Civilian Employed 

Population 16 Years and Over – Universe: Civilian Employed Population 16 

Years and Over. Minnesota. Accessed July 27, 2009 at: 

http://factfinder.census.gov/servlet/DTTable?_bm=y&-state=dt&-context=dt&-

ds_name=ACS_2007_1YR_G00_&-CONTEXT=dt&-

mt_name=ACS_2007_1YR_G2000_B24080&-tree_id=307&-redoLog=true&-

_caller=geoselect&-geo_id=04000US27&-geo_id=NBSP&-

search_results=01000US&-format=&-_lang=en. 

U.S. Census Bureau (USCB). 2008. American Community Survey (ACS). Accessed 

December 2009 at: http://www.census.gov/acs/www/Products/index.html. 

U.S. Department of Agriculture (USDA) Natural Resources Conservation Service. 2001. 

Compaction – Rangeland Soil Quality. Soil Quality Information Sheet. Accessed 

December 15, 2009 at: 

http://soils.usda.gov/SQI/management/files/RSQIS4.pdf. 

U.S. Department of Agriculture (USDA). National Agricultural Statistics Service. 2002. 

The Census of Agriculture. Accessed December 2009 at: 

http://www.agcensus.usda.gov/Publications/2002/index.asp. 

U.S. Department of Agriculture (USDA). Forest Service. 2004. 2004 Final Forest Plan – 

Chippewa national Forest. Website accessed July 8, 2009 at: 

http://www.fs.fed.us/r9/forests/chippewa/projects/forest_plan/index.php. 

U.S. Department of Agriculture (USDA). 2007a. Census Publications: State and 

County Profiles. Minnesota. Website accessed July 10, 2009 at: 

http://www.agcensus.usda.gov/Publications/2007/Online_Highlights/County

_Profiles/Minnesota/index.asp. 

U.S. Department of Agriculture (USDA). National Resources 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

630 

9. References 

Conservation Service (NRCS). 2007b. Plant Guide: Sweetgrass. Website 

accessed August 3, 2009 at: 

http://plants.usda.gov/plantguide/doc/cs_hiod.doc. 

U.S. Department of Agriculture (USDA). Forest Service. 2007c. FS-874: Interim Update of 

the 2000 Renewable Resources Planning Act Assessment. April. Website accessed 

July 2009 at: 

http://www.fs.fed.us/research/rpa/2005rpa/RPA_Interim_Update_April2007_

low_resolution.pdf. 

U.S. Department of Agriculture (USDA). National Agricultural Statistics Service. 2007d. 

The Census of Agriculture. Accessed December 2009 at: 

http://www.agcensus.usda.gov/. 

U.S. Department of Agriculture (USDA) Forest Service. 2008. Chippewa National Forest 

Land and Resource Management Plan, Fiscal Year 2007 Monitoring and Evaluation 

Report. 

U.S. Department of the Interior (USDOI). 2010. Correspondence to Stephanie 

Strength, RUS. “Subject: 230 kV Bemidji – Grand Rapids Transmission 

Project.” April 15. 

U.S. Department of State (USDS), Bureau of Oceans and International Environmental 

and Scientific Affairs. 2009. Final Environmental Impact Statement for the 

Alberta Clipper Pipeline Project, Applicant for Presidential Permit: Enbridge 

Energy, LP. Washington, D.C. Prepared by ENTRIX, Inc., New Castle, 

Delaware. June. 

U.S. Environmental Protection Agency (USEPA). 1992. EMF in Your Environment: 

Magnetic Field Measurements of Everyday Electrical Devices, U.S. 

Environmental Protection Agency, Office of Radiation and Indoor Air, 402-R-92-

008. December. Website accessed on July 24, 2009 at: 

http://nepis.epa.gov/Exe/ZyNET.exe/000005EP.TXT?ZyActionD=ZyDocumen

t&Client=EPA&Index=1991+Thru+1994&Docs=&Query=&Time=&EndTime=&S

earchMethod=3&TocRestrict=n&Toc=&TocEntry=&QField=pubnumber%5E%22

402R92008%22&QFieldYear=&QFieldMonth=&QFieldDay=&UseQField=pubnu

mber&IntQFieldOp=1&ExtQFieldOp=1&XmlQuery=&File=D%3A%5Czyfiles%5

CIndex%20Data%5C91thru94%5CTxt%5C00000002%5C000005EP.txt&User=AN

ONYMOUS&Password=anonymous&SortMethod=h%7C-

&MaximumDocuments=10&FuzzyDegree=0&ImageQuality=r75g8/r75g8/x150

y150g16/i425&Display=p%7Cf&DefSeekPage=x&SearchBack=ZyActionL&Back

=ZyActionS&BackDesc=Results%20page&MaximumPages=1&ZyEntry=1&Seek

Page=x. 

U.S. Environmental Protection Agency (USEPA). 2009a. Carbon Sequestration in 

Agriculture and Forestry. Accessed December 16, 2009 at: 

http://www.epa.gov/sequestration/faq.html. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

631 

9. References 

U.S. Environmental Protection Agency (USEPA). 2009b. National Ambient Air Quality 

Standards. Website accessed July 2009 at: 

http://www.epa.gov/air/criteria.html. 

U. S. Environmental Protection Agency (USEPA). 2009c. Electric and Magnetic Fields 

(EMF) Radiation from Power Lines. Website accessed on November 9, 2009 at 

http://www.epa.gov/radtown/power-lines.html. 

U.S. Fish and Wildlife Service (USFWS). 1979. Wetland Classification. 

U.S. Fish and Wildlife Service (USFWS). 1992. Recovery Plan for the Eastern Timber 

Wolf. Twin Cities, Minnesota. 

U.S. Fish and Wildlife Service (USFWS). 2009. National Wetlands Inventory. Website 

accessed July 14, 2009 at: http://www.fws.gov/wetlands/Data/Mapper.html. 

U.S. Fish and Wildlife Service (USFWS). 2010. American Indian Tribal Rights, FederalTribal Trust Responsibilities, and the Endangered Species Act. Website accessed 

January 28, 2010 at: http://www.fws.gov/endangered/tribal/. 

U.S. Forest Service (USFS). 1995. Agriculture Handbook 701, Landscape Aesthetics-A 

Handbook for Scenery Management. 

U.S. Forest Service (USFS). 2008a. Changes to the Environmental Assessment after 

the EA was sent to the public for the 30-day Public Comment Period. Lydick 

Resource Management. 

U.S. Forest Service (UFSF). 2008b. Decision Notice and Finding of No Significant 

Impact for Cuba Hill Resource Management Plan. November 5. 

U.S. Forest Service (USFS) 2009. Sensitive plant and wildlife species GIS database – 

Chippewa National Forest. 

U.S. Geological Society (USGS). 2005. 2005 Minerals Yearbook. Minnesota. 

Website accessed July 13, 2009 at: 

http://minerals.usgs.gov/minerals/pubs/state/2005/myb2-2005-mn.pdf. 

U.S. Geological Survey (USGS). 2007. Earthquake Hazards Program Seismic Hazard 

Map. 

Van House, Dave. 2010. Pipeline Safety and Transmission Line Separation Distance. 

Personal Email Communication from Thomas Bailey, Briggs and Morgan, on 

behalf of the Applicants, to Suzanne Steinhauer, Office of Energy Security. 

August 8. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

632 

9. References 

Voss, E.G. 1985. Michigan Flora, Vol.2. Cranbrook Institute of Science Bulletin 59. 

University of Michigan Herbarium, Ann Arbor, MI. 

Walker, David A. 1979. Iron Frontier: The Discovery and Early Development of Minnesota's 

Three Ranges. Minnesota Historical Society Press. St. Paul, Minnesota. 

Walsh, Roberta A. 1994. Hierochloe odorata. In: Fire Effects Information System, 

[Online]. U.S. Department of Agriculture, Forest Service, 

Rocky Mountain Research Station, Fire Sciences Laboratory. 

Available: http://www.fs.fed.us/database/feis. 

Wertheimer, N. and E. Leeper. 1979. “Electrical wiring configurations and childhood 

cancer.” American Journal of Epidemiology. 109(3): 273-84. March. 

Wesley, Robert. 2009. Arethusa bulbosa. Website accessed on July 10, 2009, 

http://www.fingerlakesnativeplantsociety.org/npotm/potm0605/Arethusa.ht

ml. 

Wilford, Lloyd A. 1941. A Tentative Classification of the Prehistoric Cultures of 

Minnesota. American Antiquity 6: 231-249. 

Wilford, Lloyd A. 1955. A Revised Classification of the Prehistoric Cultures of 

Minnesota. American Antiquity 21-2:130-142. 

Wilford, Lloyd A. 1960. “The First Minnesotans.” Minnesota Heritage, ed. L.M. 

Brings. T.S. Denison, Minneapolis. 

Wisconsin Department of Natural Resources (DNR). 2009a. Few-flowered Spike Rush 

(Eleocharis quinqueflora). 

http://dnr.wi.gov/org/land/er/biodiversity/index.asp?mode=info&Grp=20&S

pecCode=PMCYP091K0. Accessed November 6, 2009. 

Wisconsin Department of Natural Resources (DNR). 2009b. One-flowered broomrape 

(Orobanche uniflora). 

http://dnr.wi.gov/org/land/er/biodiversity/index.asp?mode=info&Grp=20&S

pecCode=PDORO040F0. Accessed November 6, 2009. 

Wisconsin Public Service Corporation (WPSC). 2009. What is Stray Voltage? Website 

accessed on July 24, 2009 at: 

http://www.wisconsinpublicservice.com/farm/research.aspx. 

World Health Organization (WHO). 2007. Electromagnetic Fields and Public Health: 

Exposure to Extremely Low Frequency Fields. Fact Sheet No. 322. June. 

Website accessed on July 24, 2009 at: 

http://www.who.int/mediacentre/factsheets/fs322/en/index.html
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

633 

9. References 

World Health Organization (WHO). 2009. Electromagnetic Fields: Research. Website 

accessed on November 9, 2009 at: http://www.who.int/peh-emf/research/en/. 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

634 

10. List of Preparers 

10. List of Preparers 

Name and 

Affiliation 

EIS Responsibility and Qualifications 

Minnesota Department of Commerce, Office of Energy Security 

Suzanne 

Steinhauer 

Project Manager, Energy Facility Permitting 

B.A History 

14 years experience in energy regulation and planning, including 10 years in 

environmental review and permitting for electric transmission, electric 

generation, and wind energy 

U.S. Department of Agriculture, Rural Development Utilities Program 

Stephanie 

Strength 

Environmental Protection Specialist/RD, Engineering and Environmental 

Staff 

B.S. Regional Development; Thematic Minor: Ethnography, Environmental 

Science 

10 years experience in NEPA, Section 106, planning and environmental 

review; including electric transmission, generation and renewable energy 

projects. 

Laura Dean Federal Preservation Officer & Archeologist/RD, Engineering and 

Environmental Staff 

B.S. Anthropology; Masters, Anthropology; PhD, 

Over 20 years experience in environmental review, especially Section 106 for 

highway projects, hydroelectric projects, gas and oil pipelines, and rural 

utilities 

Chippewa National Forest (CNF) 

Cristi CoreyLuse Environmental Coordinator, TEAMS Enterprise 

M.S. Environmental Policy 

Six years project-level NEPA review 

Catherine J. 

Thompson 

Realty Specialist 

B.S. Business Administration 

12 years federal Realty experience 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

635 

10. List of Preparers 

Division of Resource Management, Leech Lake Reservation (LLDRM) 

Levi Brown Environmental Program Director 

Bruce 

Johnson 

Director, Division of Resources Management 

Susan 

Kedzie 

Botanist, Invasive Species Program Coordinator 

Steve 

Mortensen 

Fish, Wildlife, and Plant Resources Director/Biologist 

B.S. Biology 

A total of 28 years of experience working on fish and wildlife management, 

monitoring, and habitat improvement. Fish and wildlife research, threatened 

and endangered Species projects and NEPA review. 

U.S. Army Corps of Engineers 

Kelly Urbanek 

Environmental Resources Management (ERM) 

Steve Koster, 

P.E. 

Principal-in-Charge 

B.S. Letters and Engineering; B.S. Civil Engineering; M.S. Environmental 

Engineering 

22 years experience in environmental impact assessment, permitting, and 

impact mitigation and remediation 

Gregory A. 

Poremba, 

Ph.D. 

Project Manager 

B.A. Sociology and English; M.A. Sociology; Ph.D. Sociology 

27 years of experience reviewing permit applications and preparing 

environmental impact statements and assessments for a variety of energy 

facilities, including electrical transmission lines and natural gas and petroleum 

pipelines 

Meghan 

Sweeney 

Project Manager, Community Services, and Utility Systems 

B.S. Chemical Engineering; M.S. Technology and Policy 

5 years of experience in environmental consulting, preparing environmental 

review documents, and conducting environmental, health, and safety 

compliance audits 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

636 

10. List of Preparers 

Leslie 

Kirchler 

Aesthetics, Land Use, Recreation and Tourism, Agriculture, Mining, Cultural 

Resources, Socioeconomics, and Environmental Justice 

B.A. Archaeology and Anthropology, B.S. City and Regional Planning; M.A. 

Landscape Archaeology; Ph.D. Landscape Architecture; Ph.D. Urban, 

Technological, and Environmental Planning 

5 years of experience in community development planning, landscape 

characterizations and interpretative programming, historic preservation 

planning/Section 106 compliance, and land use and transportation planning 

Heather 

Heater 

Socioeconomics, Environmental Justice, and Safety and Health 

B.S. Marine Biology; M.S. Environmental Resource Management 

10 years of experience in the management and preparation of environmental 

assessments and permit applications for a variety of energy projects, including 

wind energy, electric transmission lines, and power plants 

Bill Sadlon Species of Concern and Fish and Wildlife 

B.A. Environmental Biology 

6 years of experience in environmental consulting conducting Environmental 

Assessments and Environmental Impact Statements, wetland delineations, 

Environmental Baseline Surveys, and in environmental permitting 

Jacquie 

Payette 

Cultural Resources 

B.A. English; M.A. English; M.A. Anthropology 

12 years of experience in analysis and interpretation of federal regulations, 

including tribal consultation, consultation with state and federal agencies for 

Section 106 and NEPA compliance 

Steve King Air Quality and Climate 

B.S. Meteorology 

16 years of experience as a technical specialist in air quality and air modeling 

issues, including 14 years at the Illinois Environmental Protection Agency 

Michael 

Thomas 

Water Resources, Wetlands, Floodplains, and Forestry 

B.S. Biological Sciences, Chemistry, and Geology; M.S. Fisheries and Wildlife 

and Environmental Planning; Ph.D. Resource Development; Land and Water 

Resource Management, Planning, and Economics; Regional Planning; and 

Environmental Geology 

30 years of experience in environmental sciences, impact assessments, and 

regulatory compliance with utilities, transportation, academic institutions, and 

government 

Benjamin 

Sussman 

Traffic and Transportation 

B.S. Science, Technology, and Society; M.S. City and Regional Planning 

9 years of experience in local and regional comprehensive planning, water 

resources planning, transportation planning, and urban design 
Bemidji – Grand Rapids Transmission Line September 2010 

Final EIS 

637 

10. List of Preparers 

Mike Belke Geology and Soils 

B.S. Geology; M.S. Hydrogeology 

2 years of experience as a consultant in site investigation and remediation 

Bob Keen GIS 

Introduction to ArcGIS-I; ArcGIS-II and Cartographic Design for ArcGIS 

30 years of experience in project design and construction management. 

Experience includes customization of CAD installations and implementation of 

CAD standards; GIS applications for facilities and environmental projects; and 

3-D imaging and graphics rendering; and processing of electronic survey data 

Shannon 

Long 

GIS 

B.A. Geography and Planning; M.S. GIS 

9 years of experience in environmental data management and GIS analysis