Planning Department, El Paso County, CO

Tri-Lakes Comprehensive
Plan Update
DRAFT

In Appreciation

Map - Overview of the Planning Area

Table of Contents

Overview and Plan Summary

Introduction

The Vision - The Mission

Topical Sections:

Plan Overlays:

Sub-Area Plan Sections:

Maps:

Concept Plan
Transportation
Parks, Trails and Visual Resources
Development Status
Zoning

Implementation Plan:

Introduction
Approach
Implementation Program

PARKS, TRAILS AND VISUAL RESOURCES (PTV)

VISION STATEMENT

Parks, trails and open spaces are valuable community assets contributing to the quality of life and high property values in Tri-Lakes. Communities that fully consider quality of life issues provide for the recreational needs of their residents by developing and maintaining parks, trails and open space.

GUIDING PRINCIPLES

Ensure protection of the Tri-Lakes legacy of unique natural features, open space and natural areas.
Ensure the development of a coordinated and continuous system of parks, trails, and open space that serves the needs of residents.

Photograph: Palmer Lake Regional Recreation Area El Paso County Parks Department

BACKGROUND AND INVENTORY

El Paso County Parks, Trails and Open Space Master Plan

The mission of the El Paso County Parks Department, as responsible stewards of acquired public lands within a regional park system, is to enhance the quality of life and well-being of the citizens of El Paso County by:
Acquiring, developing, maintaining and preserving regional parks, trails and open space for outdoor recreation and leisure opportunities;
Providing responsible resource management and protection of large preserves of public lands characterized by unique and outstanding natural environments and geologic features; and
Providing natural and cultural history interpretation, education and information services to visitors.*"

El Paso County Facilities
The Tri-Lakes area abounds in opportunities for parks, trails and open space. Since the Tri-Lakes Plan was first adopted in 1983, three regional facilities have been developed or expanded by the El Paso County Parks Department. These include Fox Run Regional Park, the Santa Fe Trail and the Palmer Lake Recreation Area.

Fox Run Regional Park
One of the County's regional parks**, Fox Run is located in the westerly extension of the ponderosa forest, approximately three miles east of I-25 on Baptist Road. Opened in 1986, this 407-acre park is very popular and has been well-used since its opening. The attractive park facilities are well-designed for many uses and the views of Pikes Peak are spectacular. Due to the popularity of this well loved park and the fact that there are no other parks in the area, many areas are overused, making it difficult to maintain them which, diminishing the natural experience. In the El Paso County Park Department's Master Plan there are future plans to link Fox Run with other parks and trails.

Palmer Lake Regional Recreation Area***
This 36-acre park serves both as northern trailhead for the Santa Fe Trail and as a community park for Palmer Lake. Over the years, water levels have receded and the lake has filled in. Currently, efforts are underway to dredge the lake and to protect this amenity. The park is bordered on the southeast by Ben Lomond Mountain, a highly visible and scenic natural landform. In addition to the recreation, the lake provides picnic pavilions, a playground, and trails, all of which contribute to this recreation area's popularity.

The Santa Fe Trail
The New Santa Fe Trail currently extends 15.15 miles from Palmer Lake south through the Air Force Academy. Plans are to complete links to the City of Colorado Spring's Monument Valley Trail to the south, and to Douglas County's trail system to the north. This 8-foot wide, gravel-surfaced trail generally follows the abandoned Santa Fe Railroad right-of-way. The northern segment of the trail winds through the shrublands and remnants of the ponderosa pine forest. From Monument to the south end of the Air Force Academy, the trail passes through open high plains and riparian landscapes. The Trail is very popular and informal user counts by the Parks Department estimate that approximately 100,000 people use the trail annually. The trail currently has five major access points and the Santa Fe Trail will eventually be a link in the American Discovery Trail (ADT****).

Lakes
Tri-Lakes is named after the three predominant area lakes: Monument Lake and Palmer Lake, and Lake Woodmoor. There are a number of other lakes that exist in the area including Forest Lakes and the Upper Palmer Lake Reservoirs. With the exception of Palmer Lake and Monument Lake, the lakes are generally unavailable for public use due to a number of reasons including private ownership. The lakes contribute greatly to the scenic quality and character of the area.

Public Non-County Facilities
In addition to the facilities administered by El Paso County, several other agencies and municipalities provide numerous park, recreation, and open space opportunities. Tri-Lakes is bordered on two sides by two large federally-owned properties. To the west is Pikes National Forest, home to the Monument Fire Center; and to the south, the United States Air Force Academy. The towns of Monument and Palmer Lake have a number of parks, and the Air Academy and Lewis-Palmer School Districts' facilities are available for public use, subject to some limitations.

Pike National Forest
The Monument Open Space (MOS) Implementation Plan***** (1997) was generated by the U.S. Forest Service to develop a management strategy for the approximately 1000 acres of natural open space located adjacent to the Monument Fire Center in the Pike National Forest. This area is located approximately 1.5 miles west of Monument, off Mount Herman Road. The MOS historically served as a Forest Service tree nursery but has been converted to a base for its wildland fire "Hot Shot" crews. Although the Forest Service has never actively managed this area for recreation, over 22 miles of social trails have evolved. The popularity of this area has resulted in rapid degradation of the resource, and there is a need for more careful management of the land. Currently, the Forest Service, due to severe funding limitations, is unable to build or maintain the trails. An active local volunteer base will be necessary to build and maintain these trails for the future.

United State Air Force Academy In 1954, the United States Air Force located its Academy on 18,455 acres southwest of the planning area. Currently, nearly 40% of the facility is open space, as open space is defined in this Plan. The Academy's trails are minimally maintained. Only the Santa Fe, La Foret, Visitor's Center, Stanley Canyon, Falcon, and National Forest 713 Trails are designated for public use.

Municipalities Municipal parks are available for public use in the Towns of Monument and Palmer Lake. Many residents use these municipal park facilities. The limited number of recreational fields in these municipal parks are used to capacity by youth sports organizations during the outdoor sporting seasons. Additional parks and recreational playing fields, and an interconnecting trail system are planned for the Jackson Creek development.

Private and Quasi-Public Resources A comprehensive park and recreation system in the Planning Area needs to account for the private and quasi public recreational resources available in the area. Among them are:

The Woodmoor Country Club is for members only. It provides a championship 18-hole golf course, a clubhouse including a restaurant and pub, indoor and outdoor tennis courts, indoor and outdoor swimming pools, and an indoor fitness center.

The Gleneagle Golf Club is a privately-owned facility. However, its 18-hole golf course and restaurant are open to the public. Private memberships are available for the outdoor swimming pool, tennis courts, and indoor workout facility.

The Tri-Lakes Recreation Center is a privately owned recreation center that is open to the public. Instruction in rhythmic gymnastics, tumbling, trampoline, dance, karate, and aerobics are available. There is a large gym used for numerous activities, a smaller dance studio for classes, and several indoor cages used for batting and golf. Other A number of area residents utilize their own lots for recreation and benefit from the aggregate sense of open space derived from the combination of larger undeveloped or rural residential parcels in the planning area. However, as these areas become more developed and densities increase, the sense of open space on 2.5 and 5.0-acre lots will decrease.

Many residents keep horses in private boarding facilities or on their property and ride them along public easements and rights-of-way. However, roadways that were once shared by horseback riders and automobiles, are rapidly becoming unsafe for shared use due to increased traffic volume, inadequate road design, poor sight distances, speeding vehicles and aggressive drivers. The use of both public and private utility easements for non-motorized trail use has become contentious and is not a certainty for future use.

There exist approximately 7500 acres of unplatted privately-owned parcels of twenty acres or larger in the planning area. Many of the larger parcels are expected to be subdivided into lots as small as 2.5 acres sometime in the relatively near future. While some subdivisions have dedicated common open space areas, and/or trails and equestrian easements for public use, in many cases these easements have been encroached upon, are overgrown or have not been integrated into an area-wide system.

Table PTV.1
Park, Trail and Visual Resources Inventory

School Districts

The Air Academy (D-20) and Lewis-Palmer (D-38) School Districts share the use of most of their outdoor playing fields and indoor gymnasiums with many of the area-wide athletic associations. A nominal fee is charged to help defray the cost of maintaining the fields and gyms. The only exceptions to this shared arrangement include the Lewis-Palmer High School football and baseball fields. School facilities available for the public's use are generally operated at capacity in all of the schools during the sports seasons.

Community Parks

The current method of providing for community parks in the unincorporated area of the County is through the subdivision process. Subdivisions with densities greater than 4 dwelling units per acre pay community and neighborhood park fees. That money is then available for a quasi- governmental agency, such as a metropolitan district, to use for the development of a park. As a regional park agency, the El Paso County Parks Department does not currently develop community parks.

Table PTV.2 -
School Recreational Facilities

ISSUE PTV.1 PARKS AND RECREATION

The El Paso County Parks Department has largely realized its vision for Tri-Lakes with the establishment of Fox Run Regional Park, the Santa Fe Trail, and the Palmer Lake Regional Recreation Area. However, the realization of this vision has not fully met the real and/or perceived needs for parks and recreational facilities associated with the population boom in Tri-Lakes. In addition, overuse of existing park facilities has resulted in degradation and the inability on the part of the County to manage its resources, thereby not fully realizing its mission of responsible stewardship.

Photo: Soccer players at Fox Run Park El Paso County Parks Department

Park dedication standards are generally expected as a condition of the El Paso County Subdivision requirements. In areas such as Tri-Lakes, where many varied-type of subdivisions are prevalent, park fees are collected and used for land acquisition for regional parks. Park fees are put into a general fund and not used specifically for the areas from which they are generated. Until recently park fees were uniform throughout the unincorporated county and were not consistent with the land values in the Planning Area. While fees tend to allow more flexibility, the Planning Area's growing needs for parks, trails or open space have not been fully realized.

Based on the area's high property values, the Parks Department receives comparably less in park dedications when compared to other areas of the County. The funds from these fees are very limited; and, when coupled with rising land prices, land acquisition becomes uncertain. Yet the demand for parks and recreational facilities has paralleled the area's rapid rate of growth and the County's current parks and trails are not now meeting the community's expectations. Due to the County's limited ability to purchase land, land dedications contributing to a well-planned system of parks, trails, and open space might be a preferable option to park fees.

Currently the existing parks are intensely used, resulting in overcrowding and deterioration of park-land. Although the County Parks Department has a community park standard, the housing densities in the planning area do not fall within that standard. There are no other agencies, such as a metro district, that have been organized at this time to take on this responsibility. Given the urban densities and changing demographics of many subdivisions in the unincorporated County, a provision for community parks and active recreational facilities should be seriously considered.

Woodmoor is one example of the changing demographics within the planning area. Originally developed as a retirement community, it has evolved to include many families with younger children. The newer adjacent subdivisions are being developed at higher densities and cater to young families. The need for additional community parks with playground and recreational playing fields has been identified and is expected to continue.

Many parks departments provide for the organized recreational needs of residents. Because there are no provision for organized recreation through either the County or the municipalities, numerous private associations rely on parent volunteers to finance and operate youth sports programs. The school districts, municipalities and County have cooperatively shared fields with numerous sports organizations. However, as the population increases, the cost to run the programs, the need for facilities, and the demand for both volunteers and facilities have increased to the point that this system appears to be in jeopardy of collapse. Recently, two youth organizations have announced that due to the lack of volunteers necessary to run the program and lack of facilities to operate efficiently, they are ceasing to operate in Tri-Lakes. If this trend continues, it is possible that residents may choose to relocate to areas that can provide recreational amenities, making the Tri-Lakes area less attractive and lowering area land values.

GOAL
To plan and provide for the park and recreational needs of the community.

Photo: Monument Lake and Dam Courtesy of Andy de Naray

OBJECTIVES

PTV.1.1 Consider the current and future community demand for parks and recreational facilities.

PTV.1.2 Encourage a park fee structure based upon land values within the Planning Area.

PTV.1.3 Re-evaluate the El Paso County Park Department's current mission statement in light of the identified needs in Tri-Lakes.

PTV.1.4 Consider establishing and adopting a standard for community parks in the planning area.

PTV.1.5 Consider land dedication to the County for parks, trails, and open space, if it meets the El Paso County Parks Department's established criteria.

PTV.1.6 Consider various funding methods for acquiring, developing and maintaining parks and recreational facilities in the unincorporated County.

PTV.1.7 Consider land along major streams and drainage channels that fall within the 100-year flood plain as high priority land for parks, trails, and open space.

PTV.1.8 Consider the need for recreational athletic playing fields.

PTV.1.9 Consider opportunities to locate, develop and maintain community parks and recreation facilities in association with schools and municipalities.

PROPOSED ACTIONS

PTV.1.10 Adopt the El Paso County Parks, Trails and Open Space Master Plan as the basis for part of the 1999 Tri-Lakes Comprehensive Plan.

PTV.1.11 Identify future sites for parks that meet the recreational demands of residents in the Planning Area.

PTV.1.12 Establish park fees proportionate to land values.

PTV.1.13 Accept land dedication for parks if it meets the El Paso County Parks Department's established criteria.

PTV.1.14 Preserve land along major drainage channels located within the 100-year floodplain for parks.

ISSUE PTV.2 TRAILS

Many residents have indicated a need for an interconnecting trail system. Most subdivisions do not provide pedestrian, bicycle or equestrian trails. Many residents use roads for these purposes. As the Tri-Lakes area continues to grow the lack of pedestrian and bicycle trails has been identified as problematic. One example of this is in areas where bus service is not provided for students who live near schools; yet, due to the amount of traffic and road design, it is unsafe for them walk or bicycle to schools.

Photograph: The New Santa Fe Trail looking toward Ben Lomond Mountain. El Paso County Parks Department

Many residents moved to the unincorporated county for a more leisurely and healthy lifestyle. The lack of safe pedestrian, bicycle, and equestrian trails discourages residents from pursuing healthy and leisurely activities within their community.

The El Paso County Parks, Trails and Open Space Master Plan includes a future regional trail link between Fox Run Park and the Santa Fe Trail. Trails are also planned in association with Jackson Creek. However, there is not a plan that identifies and systematically addresses the non-motorized transportation and trail needs of the area. Some existing subdivisions, such as Woodmoor, have common open spaces and trail easements. For the most part, these trails have never been built. One reason for this might be attributed to the difficulty and expense of building trails once homes are built. Moreover, often when trails have been developed, they are restricted to use by residents of that development.

Trail rights-of-way are often included in development plans with the expectation that they will be built at a later date. An anomaly that is common in most communities is that while many people will pay a premium to live next to a developed trail system, generally they will resist building a trail next to their property. The dilemma of how to build a non-motorized system of trails to meet the needs of the community becomes difficult and often very costly once subdivisions are developed. If trails are not built prior to residents moving into a subdivision, what would normally serve as an amenity to a community and developer, becomes an expensive encumbrance for the community and County.

GOAL

To provide safe, efficient, effective, and interconnected bicycle, pedestrian and equestrian trail options.

Photograph: The New Santa Fe Trail El Paso County Parks Department

OBJECTIVES

PTV.2.1 Support efforts to develop a County-wide multi-modal, non-motorized plan for bicycle, pedestrian and equestrian trails. Where possible, provide separate corridors for different uses.

PTV.2.2 Support the inclusion dedication of logical pedestrian and bicycle trail connections as part of the subdivision process.

PTV.2.3 Provide multiple access points and trail linkages to the Santa Fe Trail and other planned El Paso County regional trails.

PTV.2.4 Consider incentives that encourage private land dedications and/or easements for non-motorized use when associated with overall system plan for trails and meets the criteria of the Parks Department.

PTV.2.5 Support including the inclusion of provisions for trail and pedestrian crossings and connections at all I-25 interchanges, and where possible, under I-25.

PTV.2.6 Consider provisions, such as extended road shoulders, on all new roads and those roads slated for upgrading to provide for non-motorized use.

PTV.2.7 Consider opportunities for non-motorized access to neighborhoods, schools, activity centers and regional trails.

PTV.2.8 Coordinate trail links and overall planning with adjacent planning areas.

PROPOSED ACTIONS

PTV.2.9 Identify and preserve corridor rights-of-way and easements for trails.

PTV.2.10 Preserve land within the 100-year floodplain for trails.

PTV.2.11 Provide for pedestrian, bicycle, and equestrian easements when upgrading or building new roads.

PTV.2.12 Reserve non-motorized easements and ensure their construction and future maintenance as conditions of the subdivision process.

PTV.2.13 Accept land dedication for trails if it meets the established criteria as outlined in the El Paso County Parks, Trails, and Open Space Master Plan.

PTV.2.14 Amend the El Paso County Subdivision Regulations to include the provision of non-motorized access as a condition of the subdivision approval process.

ISSUE PTV.3 VISUAL RESOURCES

The Tri-Lakes area is fortunate to be endowed with a diversity and abundance of visual resources. When asked why they chose to move to the area, most residents will cite the unique character, abundant wildlife, and the feeling of being in the mountains. The fact that the planning area, Monument, and Palmer Lake are all named after landscape features, is an indication of the value placed on the impressive array of visual resources.

Many of the natural features and open spaces are held in private ownership and are not accessible to the public. While private ownership of highly regarded landmarks and/or landscapes is not necessarily negative, it may be desirable to acquire and preserve a significant inventory of natural resources for all to enjoy.

Monument Fire Center Photograph: Andy de Naray

Many landscape features have been identified and prioritized in the El Paso County Parks, Trails, and Open Space Plan. Among the high priority lands identified by the Parks Department for preservation includes Elephant Rock, Monument Rock, and Ben Lomond Mountain. In addition to the established list, the panoramic views of the landscape and area the lakes in the Planning Area are also high priorities for conservation.

Public access to privately-held sites is often problematic. While it is recognized that public access to many of these resources is desirable, the need to protect private property rights and environmentally- sensitive sites must be considered.

GOAL

To preserve and protect significant visual resources.

Photograph: Fox Run Park El Paso County Parks Department

OBJECTIVES

PTV.3.1 Encourage site design and development standards that protect and preserve the character of the natural landscape unique to Tri-Lakes.

PTV.3.2 Preserve and reinforce panoramic views of the Mountains and Plains.

PTV.3.3 Protect the environmental and visual quality of surface waters.

PTV.3.4 Consider the individual character unique to each Sub Area.

PTV.3.5 Preserve, protect, and maintain area lakes for all to enjoy.

PTV.3.6 Encourage long-term lease options, including visual leases, with property owners.

PTV.3.7 Support protection of environmentally-sensitive lands.

PROPOSED ACTIONS

PTV.3.8 Identify, prioritize, and plan for the protection of visual resources in Tri-Lakes.

PTV.3.9 Review the site and building design guidelines. Where possible, revise or establish guidelines to enhance or protect natural occuring landscape elements.

PTV.3.10 Strategically plan for the acquisition and/or preservation of identified and prioritized landscaped features.