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GROWTH
AND LAND USE (GLU)
VISION
STATEMENT
The
Tri-Lakes Area will offer many different lifestyle opportunities
by providing a variety of land use choices. Development
activity will continue to be robust because the area's
unique, varied and awe-inspiring landscapes will continue
to attract new residents. The area's development choices,
relatively low density, location between two major metropolitan
areas, good schools, natural diversity, and favorable
climate will all contribute to the perception that this
is a place where people can go to live the good life.
GUIDING
PRINCIPLES
- Preserve
the natural qualities of the Tri-Lakes Area and the
individual character of each Sub-area.
- Maintain
a diversity of lifestyles, densities and employment
options.
- Support
development standards that contribute to quality-of-life
including schools, infrastructure and services.
DEFINITION:
Rural-Residential
Development
Land development and uses which are characterized by
predominantly residential lots or parcels ranging from
2.5 to 10.0 acres in area. The areas are typically provided
with a less-than-urban level of services (i.e. individual
wells and septic systems, some unpaved roads) and allowing
for only a limited amount of supporting local commercial,
office or industrial development. Designation in the rural
residential category does not automatically imply the
acceptability of lots as small as 2.5 acres.
Urban
Density Development
Land development of higher density and intensity which
is characteristically provided with services of an urban
nature (i.e. central water and sewer, fire hydrants, paved
roads often with curb and gutter, and shorter emergency
service response times). This category of development
ordinarily includes most commercial, office and industrial
uses along with residential uses with densities of more
than one dwelling unit per 2.5 acres.
Semi-urban
Development
Urban density development which has some characteristics
in common with rural-residential development (i.e. residential
character, residential lots of 20,000 square feet or larger
and drainage swales instead of curb and gutter).
BACKGROUND
There are approximately 35,500 acres in the Tri-Lakes
Planning Region. Approximately 8500 acres remain unplatted
and are predominately zoned rural residentialor agricultural
with minimum 5-acre lot sizes. These figures change with
each development plan that is approved. Over the past
25 years the overall population of the County has grown
at an annual rate of about 2.75% while the Tri-Lakes area
has typically grown by 8.8% annually, an extremely high
rate. Many of the fundamental land use decisions have
already been made for the planning area and land use patterns
have largely been established. Specifically, only about
20% of the entire planning area remains in the category
of "unincorporated and vacant". Until recently,
most of the residential growth in the Tri-Lakes area has
taken place in the unincorporated areas. However, the
majority of future growth is expected to occur in municipalities,
particularly in Monument, where over 4,000 dwelling units
have been proposed.
Population
in 1996 was estimated around 18,000 residents. The predominant
land use in Tri-Lakes is single family residential. Numerous
subdivisions provide an array of lifestyle choices with
variation in size and character. Lots in the various subdivisions
can range from 5,000 square feet to five acres.
The
area's location along the Front Range and accessibility
to I-25 afford an easy commute to either Denver or Colorado
Springs. While limited employment opportunities currently
exist in the planning area, there appears to be an increase
in building for office and small businesses and a growing
market demand for retail, office, and industrial sites.
El
Paso County operates under a market-driven philosophy
considering each development application individually.
This type of system allows maximum flexibility for landowners
to develop their property. The County considers each application
for land use against the Master Plan which includes the
Land Development Code, the County-wide Land Use Policy
Plan, the Mineral Extraction Plan, the Parks, Trails and
Open Space Plan and the Small Area Plans, and the Tri-Lakes
Comprehensive Plan.
PLANNING
TOOLS
Comprehensive
Plans
Comprehensive plans include documents such as the County-wide
Land Use Policy Plan and the Tri-Lakes Comprehensive
Plan. All are developed for the County with the participation
of its citizens. These multi-purpose documents serve to
provide a community vision. The comprehensive plans are
non-binding; but the El Paso County Planning Division,
Planning Commission, Board of County Commissioners, land
owners and residents, use comprehensive plans to gauge
a proposed land use's compatibility with the community's
vision, available resources, infrastructure and utilities.
The 1983 Tri-Lakes Plan significantly influenced development
patterns and community character even though the population
of the Planning Area has more than tripled since that
time.
Land
Use Development Code
The El Paso County Land Development Code is the
regulatory mechanism through which the Master Plan may
be implemented. It was designed and enacted for the purpose
of promoting the health, safety, morals, convenience,
order, prosperity, and well-being for present and future
inhabitants of the county. There are a number of elements
within the Land Development Code which, when implemented,
specifically address development:
The
El Paso County Zoning Regulations are authorized
by the Colorado Revised Statutes and apply to all of the
unincorporated land within the jurisdictional limits.
A comprehensive revision to the zoning regulations, which
modified development standards and defined allowable uses
within each zone, was adopted by the Board of County Commissioners
on May 25, 1991.
When
thoughtfully-applied zoning is one method used to reduce
the potential conflicts which occur as the more densely
developed annexed municipal properties interface with
more rural development characteristic of the unincorporated
County. Among other things this revision combined the
two different predominant 5-acre zones in the Tri-Lakes
Area into a single RR-3 category.
The
County's Subdivision Regulations govern the process of
dividing land into smaller lots. These are designed and
enacted for the purpose of promoting the health, safety
and convenience, and welfare of the general public and
to establish standards of subdivision design which will
encourage the development of sound, economical, stable
neighborhoods and create a healthy environment for present
and future inhabitants. A myriad of topics are addressed
through the subdivision process including access, water
supply, sewer and parks sites, and drainage.
DEVELOPMENT
REVIEW PROCESS
Pre-submittal
Conference
When a decision is made to develop property within the
unincorporated county, the developer often contacts the
Planning Division and meets with a planner to determine
if the plans fall within the guidelines and regulations
set forth by the County and to identify critical issues.
Thereafter the application must be formally submitted
to the Planning Division.
Submittal
The processes of preparing a land use submittal varies
depending on the type of development. The individual requirements
are outlined in submittal packets. These packets and the
annual schedule of dates for submittals to be received
and reviewed are available through the El Paso County
Planning Division.
Once
an application is submitted to the Planning Division
it is checked for completeness. Copies are then sent to
other departments, agencies, community ad-hoc groups,
and adjacent landowners for their comments. While the
application is out for comment, the Planning Division
meets with other departments, such as the Department of
Transportation, and outside agencies to review the application's
consistency with County's Master Plan elements and the
Land Development Code. Once all comments are received,
the Planning Division assembles them into a composite
to be included in a packet sent to the Planning Commission
for consideration. Often, notations such as utility and
access easements or no-build zones due to flood zone intrusion
or typographic limitations, are included by the Planning Division as suggested conditions of Planning Commission
approval. The Planning Division also places posters
on all properties to notifying residents that a land use
request will be heard. The poster includes a brief description
of the application, the place, time and date the application
is scheduled, as well as a contact phone number. Ordinarily
the Planning Division includes in its comments a recommendation
as to whether the application should be approved, approved
with conditions, or denied. In many cases this recommendation
is based at least in part on staff's interpretation of
Master Plan consistency.
Review
Process
The application is then reviewed by the Planning Commission
which is comprised of volunteers appointed by the Board
of County Commissioners. The Planning Commission makes
a finding based upon a number of factors. These include
the County's regulations and guidelines, the Planning Division's comments, and public support or opposition
for or against a development proposal. Once the Planning
Commission has made a finding the application is sent
to the Board of County Commissioners who make the final
decision on all land use requests in the unincorporated
County. Larger developments often involve several applications
which may include sketch plan, rezoning, preliminary plat,
and final plat.
ISSUE
GLU 1.0 MANAGING RESIDENTIAL GROWTH AND LAND USE
A
major issue in governing land use involves the challenge
of balancing the community's desire for some certainty
in knowing what future land use plans will be with the
desire of property owners and developers to maximize their
options in response to market demand.
As
in other areas of the County, lower density residential
development often occurs first with higher density and
non-residential development following. Existing residents
are naturally resistant to additional densities, especially
when it is not clearly identified in either the zoning
or existing Plan.
El
Paso County operates under a market driven philosophy
that recognizes the efficiencies which can result from
allowing property owners maximum flexibility in options
for developing their land in response to the market. However,
it is the County's role to ensure that new development
does not burden the public with additional or unfair costs.
A comprehensive planning document such as this Plan, while
non-regulatory, is meant to help Planning Commission and
County Commissioners coordinate and balance what are often
competing desires within a community. For example, some
residents may expect no new growth in the planning area
while land owners may desire to increase densities to
capture more value from a property or to supply a niche
in the market provide needed housing. Or perhaps, commercial
development is sought where residential was expected.
Finally, there are challenges to supplying needed affordable
or mixed income housing where costs and lot sizes are
prohibitive.
Sense
of Neighborhood
Neighborhood character and a sense of community, while
difficult to define, are what often attracts people to
an area. Higher-density developments, such as Sun Mesa
in Gleneagle, may attract people who do not want the maintenance
associated with a yard and a home. Although not a universally
held truism, medium and higher-density type of developments
attract residents who prefer a more controlled neighborhood
environment with greater opportunities for community interaction.
Gleneagle and Woodmoor are semi-urban examples of medium-density
covenanted communities with common areas and golf courses
where neighbors can interact. In contrast, lower-density
developments generally offer more privacy. Rather than
common spaces and central activities, each lot is divided
into 2.5 or 5-acre parcels.
Land
Values
It is generally accepted that by providing some sense
of certainty in the planning area, through a planning
document, land values are positively impacted. This certainly
has been the case in the Planning Area and this trend
is expected to continue. The development context within
the Planning area has resulted in moderate to high-end
subdivisions such as Gleneagle, Woodmoor, Red Rocks Ranch,
Higby Estates, and Canterbury Estates. Very little affordable
and/or modestly priced housing can be found in the planning
area.
Changing
Land Uses
Another major challenge faced in the planning area is
the balance of a desire for the area's character to remain
rural or rural residential and the frequent requests for
zoning changes that allow for increased densities. The
1983 Tri-Lakes Comprehensive Plan recommended rural residential
5-acre minimum densities in the eastern portions of the
planning area which helped to define the character of
the area, contribute to the expectations of existing residents,
protect important wildlife habitat, and to some extent
dictated the amount of infrastructure and services that
have been either supplied or planned for by existing development.
Many
requests for rezoning from 5-acre to 2.5-acre density
have been approved because they meet the minimum definition
for rural residential, and this allows the developer the
opportunity to be more competitive in the market.
Potential
Solutions
The argument over what size lot constitutes rural often
neglects the fact that both 2.5 and 5 acre parcel size
subdivisions are infrastructure-intensive and divide the
land into smaller units that neither appear or function
as entirely rural. Current zoning does not provide creative
alternatives to parceling land into equal sized units
which address infrastructure, service and wildlife needs.
Comprehensive
alternatives need to be developed. What exist today are
mechanisms, such as PUD (Planned Unit Development) zoning,
that work in limited ways to address some of the concerns.
For instance, clustering and transfer of development (TDR)
rights can help to protect habitat and minimize infrastructure
costs, while buffering between differing land uses and
densities can help to protect the character of adjacent
properties. Increased densities offer an opportunity to
address the need for more affordable housing stock and/or
needed commercial and retail to be located close to the
user thereby relieving pressures on existing roadways.
The 1983 Plan described clustering as a way to preserve
the open qualities of the landscape and minimize infrastructure
costs. Clustering has occurred only on a very limited
scale due a number of factors. While clustering plans
can be accommodated within a PUD development plan, a number
of technical and regulatory impediments exist which are
further discussed in the Clustering and Open Space Section
of this Plan.
Facilities
and Services:
Availability, adequacy, and cost of providing facilities
and services are issues that are integrally tied to land
use. As noted in many other Sections in this document,
new development ordinarily translates into an immediate
need for facilities and services. The County does not
provide services and therefore the provision for necessary
facilities and services must be provided or guaranteed
prior to approval for development. Taxes and other revenues
from these new residences and businesses are realized
over time, and there is usually a delay before initial
collections occur. Therefore, concurrency in the provision
of facilities and services, is a serious challenge in
higher growth areas.
Non-Residential**
and Mixed Use Development***.
Since the 1983 Plan was approved, the area west of State
Highway (SH) 105 Interchange, predominately in the Town
of Monument, has emerged as the primary retail and service
commercial center catering to both the needs of Tri-Lakes
residents, regional commuters, and interstate travelers.
The location of the existing truck weigh station on the
west side of I-25 serves to funnel truck traffic through
Monument so that many trucker drivers stop to break for
food and fuel. Most of the commercial development has
occurred within municipal limits.
More
recently, the I-25 and Baptist Road interchange has become
the focus for commercial development. This trend is in
response to the population increases in the Gleneagle
Sub-Area and the projections for development in Jackson
Creek. Studies project that the I-25/Baptist Road Interchange
will eventually supersede the I-25 and SH 105 commercial
area as the primary non-residential within the Town of
Monument.
Zoning
for various type of commercial and industrial uses is
limited in the unincorporated County and predominately
is located along the I-25 corridor, County Line Road,
Woodmoor Drive, SH 105 and to a lesser degree along SH
83. Much of the commercial zoning along I-25 is located
within the Town of Monument. It is further recognized
that much of the zoning along Woodmoor Drive, and County
Line Road is C-1 or C-2 zoning, which are obsolete zones.
As
the planning area has developed, there has been increasing
concern over applications for non-residential land use
regarding suitability and compatibility with already established
neighborhoods. Located in close proximity to I-25 are
a number of residential subdivisions where residents have
opposed land uses with higher densities or differing land
uses. Zoning is the regulatory method used to reduce potential
conflicts that tend to occur when properties of differing
densities or land uses eventually merge. However, while
conventional zoning can partially adjacency issues by
stipulating general land uses, it does not always address
compatibility or quality of development. These issues
coupled with the fact that often the properties in question
are located in different governmental jurisdictions, sets
up the potential for antagonism between landowners.
SH-83
is a regional arterial located in an area designated for
rural residential development. While there is a potential
for a limited amount of non-residential development related
to its regional transportation status, lack of available
infrastructure will limit development options. In addition,
citizens are considering recommending SH 83 as a Colorado
scenic and historic byway in an effort to preserve the
rural character and open space along this corridor. While
this status would not serve to regulate specific land
uses, it was established to help communities preserve
historic remnants and enhance unique scenic character
along Colorado's roadways.
Transition
Areas****
The land use policies and programs of the unincorporated
County must be coordinated with adjacent municipalities,
military establishments, and other governmental entities.
As the Planning Area develops, careful consideration should
be given to coordinating proposed land uses in transitional
areas to assure land use compatibility and reduce the
potential for conflict. Both Monument and Palmer Lake
have individual comprehensive plans, as well as zoning,
and land use approval authority. El Paso County, while
often requested to provide comment on municipal development
proposals, has no formal jurisdiction in these areas.
The
Black Forest Preservation Area borders the Planning
Area to the east along SH 83. The Black Forest Preservation
Plan calls for minimum 5-acre lots except in certain specified
areas, such as the Hawk Ridge subdivision, where smaller
lots may be considered if they are located inconspicuously
within treed areas. Commercial nodes are suggested along
SH 83 at the intersections of Hodgen Road and SH 105.
Land use patterns are fairly established along this boundary,
yet a few larger tracts of land still remain undeveloped
along SH 83. The Northgate Cooperative Area, located west
of SH 83 and south of North Gate Road, shares common boundaries
with the City of Colorado Springs and the Black Forest
Preservation, and Tri-Lakes Planning Areas.
The
City of Colorado Springs borders Tri-Lakes to
the south, near I-25 and North Gate Road. Because the
City provides a higher level of services, residential
densities are typically higher in the City than in the
surrounding incorporated areas.
Douglas
County borders the Planning Area on the north.
Douglas County is also a high growth area, though most
of the growth pressure is being experienced between Castle
Rock and the Denver area. The portion of Douglas County
that borders the Tri-Lakes Area is designated in the Douglas
County Master Plan as a "non-urban area" designated
for 35-acre residential development or agriculture.
The
Pike National Forest and the Monument Fire Center and
Open Space border the Planning Area on the west
along the Front Range. The Monument Open Space consists
of approximately 1000 acres and is located off Mount Herman
Road which is adjacent to the West Monument Creek and
Mount Herman Sub-Areas. The Fire Center has a long and
well-established history in the area and is currently
being used as a base for the Hotshot Firefighters. The
area is open to the public and it has become a popular
recreation area for hikers, horseback riders, hunters
and other recreational users.
The
Town of Monument can also be expected to play
important future role in urban development. Monument is
the municipal authority predominately responsible for
approving land use applications along most of the I-25
corridor. The bulk of property zoned for non-residential
land uses occurs within the Town. While some of this land
adjoins property in the unincorporated County, the jurisdiction
for land use approvals is independent from the County.
The
Town of Palmer Lake, although less aggressive
in it's effort to attract new development is also experiencing
substantial new growth, principally in the residential
sector of the market.
The
United States Air Force Academy (USAF Academy)
includes 18,455 acres and borders the planning area on
the south and west. In addition to being the premier facility
for training future air and space leaders, the Academy
is one of the main tourist attractions in Colorado. Its
sporting events and recreational opportunities attract
thousands of visitors annually, and its scenic beauty
creates a magnificent entry into the City of Colorado
Springs.
Sharing
a border with the USAF Academy, while viewed as very beneficial,
presents certain development challenges. The Academy's
Motor Glider Training Program uses the Aardvark Auxiliary
Airfield, located in the northeast corner of the installation,
for practicing approaches and departures. A portion of
Aardvark's Clear Zone and both Accident Potential Zones
(APZ) I and II extends into the planning region, primarily
onto property within the jurisdiction of the Town of Monument.
APZs were established in response to a Department of Defense
(DOD) analysis of flight activity that determined the
areas immediately beyond the ends of the runways and along
the approach and departure flight paths to have significant
potential for aircraft accidents. The Clear Zone, extending
3,000' off the end of the runway, has the highest accident
potential. Aircraft accident potential reduces as the
distance from the runway increases. APZ I and II, therefore,
have relatively less potential for aircraft accidents.
The DOD strongly recommends the application of land use
planning controls in each of these areas for the protection
of the public. The USAF Academy's 1999 Air Installation
and Compatible Use Zone (AICUZ) study will define the
recommended land uses within the Clear Zone and both accident
potential zones. It will then be up to the local municipalities
to implement land uses that are in the public interest.
Additionally,
proposed future residential development adjacent to USAF
Academy's northern boundary may be unsuitable due to the
activities within Jack's Valley Training Area, an area
dedicated to Cadet military training and encampment.
The
USAF Academy is dedicated to accommodating visitors, providing
base security, and environmental stewardship. Preservation
of the visual quality and open space of the installation
remains the cornerstone of the Academy's management practices.
As such, authorized access for the general public is limited
to the North and South Gates and the Santa Fe Trail. Due
to the close proximity to civilian development, unauthorized
access presents a serious liability especially in Jack's
Valley Training Area where the firing range is located
and cadet basic training, deployments, and other field/educational
training take place.
GOALS
-
To allow for a balance of mutually supporting interdependent
land uses, including office, commercial, light industrial,
and residential which provide for employment, housing,
and services.
- To
encourage a moderate growth rate and ensure that new
development will not create a disproportionately high
demand on services and facilities by virtue of its location,
design, or timing.
-
To
allow development that complements the unique environmental
conditions, is harmonious with the overall established
land use patterns, and is consistent with the character
of each Sub-Area.
-
To
discourage development which is inconsistent with
established zoning and /or the long-term vision as
stated in this Plan
Courtesy:
Andy de Naray
OBJECTIVES
GLU.1.1
Protect, and enhance, and reinforce the boundaries of
the Tri-Lakes planning area.
GLU.1.2
Protect and enhance viability of established developments.
GLU.1.3
Support decreasing densities in relation to distance from
a municipality or water and sanitation districts. Greater
distances from services and/or I-25 must result in lower
overall densities.
GLU.1.4
Ensure logical and contiguous expansion of necessary infrastructure.
Discourage noncontiguous development.
GLU.1.5
Discourage requests for speculative commercial zoning
and land uses.
GLU.1.6
Encourage higher intensity land uses such as new employment
centers to locate within municipal boundaries where adequate
services are available and in close proximity to housing
for potential future employees.
GLU.1.7
Encourage well planned commercial and office park development
that incorporates unified site design and traffic circulation
planning. Conversely, discourage strip-type commercial
and office development that have adjoining parking lots.
GLU.1.8
Recognize the need for reasonable accommodation of land
uses for industrial-type uses and/or that might be considered
to be "locally undesirable" within defined Sub-Areas
provided that adequate facilities and services are available
and the proposed uses will not substantially detract from
adjacent property values.
GLU
.1.9 Carefully consider the environmental, visual,
economic, and land use impacts of new development and,
where possible, incorporate, mitigate, and buffer or visually
screen adjacent land uses that differ in type and density.
GLU.1.10
Carefully consider the impacts of new development on the
integrity and carrying capacity of the roadway system.
GLU.1.11
Recognize the economic development potential of Interstate
I-25 and promote the goals and objectives as outlined
in the I-25 Visual Overlay Section.
GLU.1.12
Recognize SH 83 as a major north-south corridor and support
land uses that do not cause traffic impedance, deceleration,
or delays, as outlined in the Transportation Section.
GLU.1.13
Carefully consider land uses in or near transitional zones
to ensure the orderly progression between land uses of
differing types and densities.
GLU.1.14
Encourage carefully-planned residential development that
is consistent with adjacent developments in the unincorporated
planning area.
GLU.1.15
Carefully consider requests for rezoning, particularly
where the proposed zone change varies from adjacent properties
and/or the recommendations in this Plan.
GLU.1.16
Discourage zoning changes that increase density beyond
present zoning unless provisions that benefit the community
are negotiated.
GLU.1.17
Support implementation of landscaped buffers and/or mutually-agreed
upon transitional uses between zones of differing land
uses and densities. This might address differing uses
such as a proposed industrial, office or commercial use
locating adjacent to an established residential subdivision,
and/or differing residential densities. (This Objective
was significantly reworded for clarity)
GLU.1.18
Support the municipal annexation of enclaves and other
developed urban density areas, unless these areas are
currently being provided with both adequate and cost-effective
facilities and services.
GLU.1.19
Encourage municipalities to undertake complete or at least
phased annexations of enclaves and other areas that are
largely surrounded by municipalities in order to avoid
the problems associated with piecemeal annexations. Alternately,
the cost-effectiveness of annexing remaining enclaves
should be considered within the context of the overall
area.
GLU.1.20
Carefully consider development applications that border
the USAF Academy or that are located within Aardvark Auxiliary
Airfield's no flight zone. Encourage only low impact development
that will not adversely affect military training and flight
operations.
PROPOSED
ACTIONS
GLU.1.21
Promote the establishment of a cooperative planning
area along the I-25 and SH 105 transportation corridors.
GLU.1.22
Amend the Land Development Code to include one or more
cluster development regulations (refer to Clustering and
Open space Section).
GLU.1.23
Enhance landscape provision in the Land Development Code
to address buffering between differing land uses and transitional
zones.
GLU.1.24
Reclassify parcels with obsolete zoning, such as C-1.
GLU.1.25
Require guarantees for necessary infrastructure to be
secured prior to development.
GLU.1.26
Participate in cooperative intergovernmental land use
planning.
GLU.1.27
Consider increases in lot sizes over specified zoning
only if additional provisions are made which will be of
benefit to the community such as parks, trails and/or
open space.
GLU.1.28
Consider the compatibility of proposed land uses, such
as commercial, office, industrial, and residential development
with surrounding established land uses in terms of scale,
building materials, lighting, intensity of use, and other
potential impacts.
_____________
*
Concurrency
The principle that an acceptable level of public facilities
and services (e.g. road, school, park, drainage, water
and sewer capacity) is or will be available at such time
as the demand for it is generated.
**
Non Residential development refers to commercial,
office, light industrial uses.
***
Mixed Uses development refers to non-residential
intermingled with high density residential.
****
Transition Areas occur at the boundary of the planning
area and/or at the point where when land with differing
uses or densities meet. It is often desirable to have
a gradual change rather than an abrupt change in land
uses and densities.
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