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Home My WebLink About06847ORDINANCE NO. 6847 A ORDINANCE APPROVING AND ADOPTING A COMPREHENSIVE MASTER PLAN FOR THE PHYSICAL DEVELOPMENT OF PUEBLO, A MUNICIPAL CORPORATION WHEREAS, the City Planning and Zoning Commission is authorized to prepare and submit to the City Council for its approval a master plan for the physical development of the City pursuant to Section 12 -5 of the Charter of Pueblo and Section 31 -23 -206 C.R.S; and WHEREAS, the City Planning and Zoning Commission has caused to be prepared a master plan for the physical development of the City; and, WHEREAS, the City Planning and Zoning Commission, after public hearings thereon conducted after due publication, has approved said master plan and submitted same to City Council for its approval. NOW THEREFORE, BE IT ORDAINED BY THE CITY COUNCIL OF PUEBLO, that: .qFC:TION 1 The Pueblo Regional Comprehensive Development Plan -2002, heretofore approved by the City Planning and Zoning Commission and submitted to the City Council for approval, copies of which are attached hereto, is hereby approved and adopted as the Master Plan for the Physical Development of the City with the changes thereto recommended by the City Planning and Zoning Commission. .qFrTI0N 7 All master plans for the physical development of the City and all parts thereof heretofore adopted by the City Council are hereby repealed and rescinded. The physical development of the City after the effective date of this Ordinance shall be in conformity with the Pueblo Regional Comprehensive Development Plan – 2002, hereby adopted, except insofar as any such physical development has been heretofore approved by Ordinance of the City Council. CFrT10hJ I The Pueblo Regional Comprehensive Development Plan — 2002 hereby adopted as the Master Plan for the Physical Development of the City shall also be known as the City of Pueblo "Master Plan" or " the "City of Pueblo Comprehensive Plan." SECTION 4 This Ordinance shall become effective upon final approval and passage. INTRODUCED: June 10,_ 2002 BY: Al Gurule COUNCILPERSON APPROVED: 'i �-- -� o. ---- � PRESIDENT OF CITY COUNCIL ATTESTED BY: CLERK PASSED AND APPROVED: June 24. 2002 ED Background Paper for Proposed ORDINANCE AGENDA ITEM # DATE: JUNE 10, 2002 DEPARTMENT: PLANNING & COMMUNITY DEVELOPMENT / JIM MUNCH TITLE AN ORDINANCE APPROVING AND ADOPTING A COMPREHENSIVE MASTER PLAN FOR THE PHYSICAL DEVELOPMENT OF PUEBLO, A MUNICIPAL CORPORATION ISSUE Shall City Council approve and certify the 2001 Regional Comprehensive Plan RECOMMENDATION Approval BACKGROUND In 1999, the City and the County began a community process to update and adopt a new regional comprehensive development plan. The plan identifies both future land uses and the timing and placement of future growth. The Planning and Zoning Commission voted 4 -0 on September 25, 2001 to adopt the plan subject to: 1. The deletion of the Infrastructure Policy Charts on pages 63 and 64 2. The addition of introductory language identifying the master plan as advisory only. At the April 10, 2002 meeting of the Planning and Zoning Commission, the Commission voted 5 -1 to amend their recommendation to include: 1. The deletion of a proposed interchange at I -25 and 24 Street. If City Council concurs with the adoption of the plan subject to these recommendations, the recommended changes will be made before the plan goes into final printing. FINANCIAL IMPACT The Regional Comprehensive Development Plan was managed and paid for by PACOG. The City of Pueblo contributed $125,000 to PACOG for the development of this plan PU. B 0 S Comprehensive Plan Pueblo Area Council of Governments Your Plan. ` Your Pueblo Pueblo Area Council of Governments Pueblo, Colorado Pueblo Regional Development Plan Final Adoption Draft September 11, 2001 The Burnham Group r! 77 � I - ' IT owl Contributors to the Development of the Regional Plan PACOG Members Patrick Avalos Chuck Copeland Al Gurule Loretta Kennedy Dr. Richard Martinez Kevin McCarthy Bill Sova Maria Subia Kathy Farley Loretta Kathy Farley Dennis Flores Cathy Garcia Rich Golenda John Klomp Corinne Koehler Ted Lopez, Jr. Ted Lopez. Sr. Bettye Ogburn Matt Peulen Debbie Rose Robert Schilling Dave Trujillo John Verna Pueblo County Commission i Kennedy John Klomp Dr. Richard Martinez Matt Peulen City of Pueblo Council Patrick Avalos Cathy Garcia Rich Golenda Al Gurule Corinne Koehler Ted Lopez, Jr. Robert Schilling Bill Sova John Verna Pueblo County Planning Commission Betty Alt David Bratina Alex. "Sandy" Clark Margaret Eichman Don Hulben Darwin McCurry Shirley Ozzello Bud Rice Pearl SandromSmith John Singletary John Van Auken Ron Vigil Ray Youngren City of Pueblo Planning and Zoning Commission Todd Ahlenius David Lytle Harold Mabie Doug Ring John Selus William Soldan W. I. Thomas Vince Vigil Citizen Plan Forum Karen Adams Lew Allee Kathleen A. Allen William E. Alt Dave Anderson William Arnold Sandy Ashcraft Robert Autobee Alan Ayler June Barkhoefer Mike Bartolo Bruce Beardsley William T. Boies Betsy Brown Reeves Brown Damon Clark, Jr. Carol Drobnitch Sherman French Jeanne Hall Susan Emmons Richard W. Hanger C.R. Evans Roger Fonda Joe Fox Bert Hartman Carolyn Herzberger Robert Higgins Deanna Higgins Joe Holloran Delores Horton Robert Jackson Chris Kaufman Jean Kenney Karen Klaus Judie Krueger Robert Leach Theresa McCoy George McKinnon Rick McNeal Gary Kyte Patricia Meldola Jean Latka Gary Miller Eric Miller Dave Moody Dahl Morgan George Murdoch Steve Nawrocki Judy Niemeyer Joseph O'Brien Ruth Ann Pearl Ed Pearl J.T. Renatti Jack Selway Glen Shaffer Marvin Sharpe Edward Robinson Betty Sharpe Gil Romero Paul Sparrow Karin Romero Jim Stahle Patrick A. Stanifer R. Bud Stogdell Wynona Sullivan Donald E. Thorne Jim Valentine Joe Vigil John A. Werme Roy Wiley Robert Wiley, Jr. Janice Williams Jean R. Williams Maggie Peterson - Davis Plan Management Team Dr. Joyce Bayless Terry Book Dan Centa Pat Coffee Tom Cvar Randall Kirk Relford Dr. Henry Roman Jim DiIorio Don Saling Kim Headley Jim Munch Alf Phil Shafer Matt Sturgeon The Burnham Group — Consultants Greg Dale AICP Connie Cooper FAICP Eric Kelly PhD, FAICP Chris McGetrick AICP William Ross Glen Bolen AICP Use/Implementation Public Involvement Demand Analysis Capacity Analysis Co- Project Manager Co- Project Manager Land Pueblo Regional Development Plan Pueblo Area Council of Governments 229 West 12th Street, Pueblo, CO 81003 719 -583 -6100 tel. 719 - 583 -6376 fax Table of Contents Pueblo Regional Plan Overview ........... ............................... ..............................1 PlanningProcess ............................................................. Understanding Pueblo s Development History ............. .............................. History the Region .............................. Early of ...................................... City of Pueblo Development ...................................... ..............................4 The Pueblo Regional De- Twentieth Century Development ............................ ............................... 4 velopment Plan, under - Metro Districts .......................................................... ............................... 6 taken by the Pueblo Area Community Outreach .............................. ............................... 7 Council of Governments (PA COG), is one of the Public Facilitation Meetings ................. ....................... .........................'•""' most important recent ini- Regional Plan Public Opinion Survey .......................... ............................... 9 tiatives in regional plan - Survey Responses ...................................................... .............................. ning history. Overall Survey Response ......................................... ............................. Decisions made as a result Community Interviews .................................................. .............................11 13 of this initiative, will have Summary of Community Issues ..................... ............................... an impact on the region's Factual Foundation ............................... ............................... 17 quality of life for many 17 years into the future. Land Demand Analysis Population .................................................... .............................17 Housing Trends ......................................................... .............................18 Employment ................................................. .............................19 Park Land Trends ..................................................... ............................. Public School Trends .............................................. ............................... 21 Future Land Demand Summary ........................... ............................... 22 LandCapacity Analysis ................................................. ............................. Current Growth Capacity ...................................... ............................... 24 Comparing Capacity with Demand ....................... ............................... 24 Location of Growth Capacity ................................... ............................. Capacity and Water Service ..................................... ............................. Capacity and School Districts .................................. ............................. Capacity and Impact on Wildlife Areas .................. ............................. Summary of Capacity and Demand .............................. ............................. Regional Development Plan ................. ............................... 29 Plan Overview ................................................................ .............................29 Regional Plan Guiding Principles ................................. ............................. �^ Guiding Principles .................................................. ............................... 30 Page i Table of Contents ■ The Burnham Group Page ii ■ Table of Contents Development Action Areas ............................................ ............................. The Growth Management Component .................... .............................33 Table 2 Description of Development Action Areas ............... .............................33 Timingof Development ............................................ ............................. Pueblo Regional Job Growth, 1997 2030 ........ .............................19 Developed Urban Area City of Pueblo .................. .............................34 Table 4 DevelopingUrban Area ............................................ ............................. Developing Metro Area - Pueblo West (core area) .. .............................36 Pueblo Regional New Development Acres Demand 2030 ..........22 Developing Metro District - Colorado City (core area) ........................37 Mid -Term Growth Areas .......................................... ............................. Long -Term Growth Area .......................................... ............................. Location of Available Capacity .......................... ............................. Future Development Capacity ................................. ............................. Table 8 FutureLand Use ............................................................ ............................. Defining Future Regional Land Uses ...................... ............................. Development Action Areas ................................. ............................. Future Land Use Intensities .................................... ............................. Table 10 Regional Transportation Plan ....................................... ............................. Regional Transportation Goals and Objectives ...... .............................51 Regional Transportation Plan Elements ................. .............................52 Integrating Transportation into the Regional Plan ............................53 Plan Implementation ................................ ............................. Implementation Techniques .......................................... ............................. Public Facilities Financing Techniques ................... ............................. Regulatory Techniques ............................................. ............................. Miscellaneous Implementation Techniques ............ .............................61 Linking Implementation and Guiding Principles ........ .............................62 Infrastructure Policies .............................................. ............................. Continuation of Planning Efforts .................................. ............................. Tables Table 1 Regional Population Growth, 1970 - 2030 ......... .............................18 Table 2 Pueblo Regional Housing Growth, 1998 2030 .............................19 Table 3 Pueblo Regional Job Growth, 1997 2030 ........ .............................19 Table 4 Pueblo Regional New School Acres 2030 ........ .............................21 Table 5 Pueblo Regional New Development Acres Demand 2030 ..........22 Table 6 1998 Capacity Versus 2030 Demand ................. .............................2 Table 7 Location of Available Capacity .......................... ............................. Table 8 Capacity within Ranked Wildlife Habitats ....... .............................27 Table 9 Development Action Areas ................................. ............................. Table 10 Timing of Development .................................... ............................. Table 11 Capacity of Development Action Areas ........... .............................40 Table 12 Future Land Use Categories ............................ ............................. Table 13 Future Land Use Intensities ............................ ............................. Table 14 Implementation Techniques, by Guiding Principles ...................62 Table 15 Infrastructure Policies Development Action Areas ..................63 Table 16 Infrastructure Policies Land Use Areas ....... .............................64 The Burnham Group ko '"", ,-IN i"� Pueblo Regional Plan Overview The Pueblo Regional Development Plan, undertaken by the Pueblo Area Council of Governments (PACOG), is one of the most important initia- tives in regional planning recent history. This initiative is a joint venture of the City of Pueblo, Pueblo County, the Metro Districts of Pueblo West and Colorado City, the towns of Beulah and Rye, School Districts 60 and 70, the year 2030 is the Plan's Pueblo Board of Water Works, and the Salt Creek Sanitation District under " planning horizon.' This is the auspices of the Pueblo Area Council of Governments. The Plan is to be e projected date when adopted by the Planning Commission of Pueblo County, as well as reviewed the Pueblo region is an- and recommended by the City of Pueblo s Planning and Zoning Commission ticipated to reach a popu- for adoption by the Pueblo City Council. lation of 200,000. Decisions made as a result of this initiative, will have an impact on the area s quality of life for many years into the future. These decisions ul- timately affect the area's land use, economic development, recreation and public facilities, infrastructure development, traffic circulation, as well as the direction of residential, commercial and industrial growth in the com- munity. The Plan s planning horizon is the date when the Pueblo Region is anticipated to reach a population of 200,000, which is projected to be by 2030. Planning Process The Comprehensive Development Plan was developed over a two year time period with the assistance of the Burnham Group, a consulting firm that spent substantial time becoming familiar with the community and The Plan charts the course its issues. The Plan charts the course of growth and development for future ofgrowth and development generations, with significant input from citizens and interest groups incor- for future generations. with porated into the Plan. significant input from citi- zens and interest groups The Plan consists of two documents, the Plan Narrative and the incorporated into the Plan. Plan Brochure. The Plan Narrative offers the following: • A brief history of Pueblo County s historical development; • A description of the public input process (Community Outreach); • An analysis of the Pueblo Region s projected growth (Land Demand Analysis) and the ability to accommodate growth (Capacity Analysis); • Regional development principles (Guiding Principles); • Future development timing, character, and land use; and • Implementation of the Development Plan. This is a regional plan; therefore, issues are addressed at the re- gional scale. The plan distinguishes between the development character and timing of urban and rural issues, with specific attention to implementation strategies and techniques. Page 1 The Burnham Group Region Overview ■ Understanding Pueblo's Development History Early History of the Region Pueblo represents two cultures and the land that now makes Pueblo and Pueblo County was for many years in two countries. With the Louisi- ana Purchase in 1803, the United States acquired vast Western lands, in- Pueblo represents two cul- cluding the portions of Colorado north of the Arkansas River. The Arkansas tures and the land that now served as an informal dividing line between New Spain and the United makes Pueblo and Pueblo States until 1819, when the Florida convention established the Arkansas as County was for many years the official border between the two countries. During this time, in 1806 spe- in two countries ... New cifically, Lt. Zebulon Pike was sent by the United States to explore the Lou - Spain and the United States isiana Purchase. The filing of his report was delayed until 1810, due to his with the Arkansas River capture and subsequent release by the Spanish. When he filed his report, it serving as the dividing line included his description of camping at the mouth of the Fountain, where it between the two. meets the Arkansas, for six days while he attempted, unsuccessfully, to reach the summit of Pikes Peak which he reportedly first spotted from his Pueblo camp. The early- recorded history of the Pueblo Region has its roots in the In 1806, Lt. Zebulon Pike natural trade routes along the Arkansas River and Fountain Creek. Span - was sent by the United ish and French probably traveled through the area in the 18th century. In States to explore the Louisi- 1821, Mexico declared its independence from Spain and opened the interna- ana Purchase. He included tional border to trading, leading to a significant expansion of activity in the his report a description of region. One of the first events recorded in Pueblo County after Pike s brief camping at the mouth of the stay occurred in 1841, when George Simpson led a party south from the Fountain, where it meets the Platte River to the mouth of the Fountain, where it flows into the Arkansas. Arkansas, for six days while There, on what was then called Foutaine qui boulle, or the fountain that he attempted, unsuccess reach the summit of boils, he found three seasonal trading posts, one operated by Bent, t. fully, to Pikes Peak —which which he re- Vrain & Co. One Charles Gantt then had a trading post some 6 miles down P Pikes Pe first spotted from the river, where the Purgatoire flowed into the Arkansas. When he aban- his Pueblo camp. doned that post, Bent and his partners moved 70 miles down the Arkansas to found the Bent s Fort that became famous as an important stop along the Santa Fe Trail. By 1842, Simpson and his associates had established Fort Pueblo. It remained an active trading post until 1854. A significant part of the early trade involved selling liquor to the Indians in the region. In 1849, the Mexican War In 1849, the Mexican War ended with the Treaty of Guadalupe Hi- ended with the Treaty of dalgo. With that treaty, the land south of the Arkansas became part of the Guadalupe Hidalgo. With United States. Under the terms of that treaty, the young country agreed to that treaty, the land south of recognize many of the Spanish and Mexican land grants in the newly ac- the Arkansas became part of the United States. quired territory. Those included the important Nolan Grant, which provided the land on which Colorado Coal & Iron developed its early plant and its company town of Bessemer. In 1853, Congress approved a new central railroad route to the Pa- cific planned through the Arkansas Valley. This expanded the level of inter- est in the area. In a related event, Ceran St. Vrain, one of the holders of the large Vigil & St. Vrain Grant, persuaded Charles Autobes to lead a group of settlers to establish homes on the grant. They settled in 1853 along the -., ,,.. a Page 2 The Burnham Group N Region Overview Huerfano River, at the eastern edge of what is now Pueblo County. On Christmas Day in 1854, the entire population of Fort Pueblo was wiped out in a massacre by Ute Indians with whom the fort had long had friendly trading relations. That incident eliminated the settlement but not the history or its In 1858 and 1859. the gold rush came to Colorado and continuity. Charles Autobes, William Bent, Dick Wooton (another settler Raton Pass), Joseph Doyle and others Pueblo became an impor- tant trading post between recruited by St. Vrain he to settle on involved in the early trading posts remained in the area as permanent set- the gold fields of Cripple tlements were established. In 1858 and 1859, the gold rush came to Colo- important trading post between the gold fields Creek, the more limited mines of the Wet Mountain rado and Pueblo became an Cripple Creek, the more limited mines of the Wet Mountain Valley and Valley a Great to of the Great Plains as the gateway to the rest of the United States. By 1860, as the gateway the rest of the United civic leaders were laying out the original City of Pueblo. Two years later, States. other leaders began to organize Pueblo County, then including within its boundaries lands that now make up several Colorado counties. In 1870 or 1871, a subsidiary of the Denver & Rio Grande Railroad. In 1872. the City of Pueblo led by Gen. William Palmer, of Colorado Springs, began developing South been of the Nolan Grant. In 1871, was formally incorporated. By 1880. the Colorado Pueblo on land that had once part Puebloans supported a bond issue to help subsidize the southward expan- Iron emerged as the std I tom sion of the D &RG and in 1874 the railroad reached the City. In 1872, the Colorado Coal & an would shape the City of Pueblo was formally incorporated. By 1880, the D &RG/Palmer enterprise as the steel tom unity for most of the Iron Company emerged from that company that would shape the community for most of the next century. next century ... soon Pueblo became known as the "Smelting Capital of The industrial expansion and the gradual civilization of the area the American West.". brought a large influx of Eastern settlers who established farms on the north side of Arkansas River to produce food for the mining communities. Pueblo s abundant source of water prompted the development of rail access to the mines and the shipment of ores into Pueblo for processing. Soon Pueblo became known as the Smelting Capital of the American West. Pueblo s history also includes Doc Holiday who was arrested on Mean Avenue for gambling, as well as Bat Masterson who was brought in of South Pueblo to protect the building of a railroad from Pueblo as sheriff to Leadville. Much of Pueblo s ranching history has its roots in cattle being Goodnight- Loving Trail to feed the military Much of Pueblo's ranching driven up from Texas on the and mining activities in the Southwest. Charles Goodnight, the fa- history has its roots cattle being driven up i from posts mous Texas rancher, acquired a p ortion of the Nolan Grant and established local features still bear his Texas on the Goodnight - feed a large ranch in Pueblo County. A number of The growth in the cattle business brought to the Pueblo area feed Loving Trail to the military posts and mining name. lots, sales barns, packing houses, stock saddle manufacturing (the Pueblo activities in the Southwest. of stock saddle) and the establishment of major ranches such as the style Thatcher, Hatchett and Butler Ranches. Pueblo not only had cattle ranch- ing, but also sheep raising and a large number of dairy farmers. These ranchers supplied the increasing demand for beef created by the mining market. Page 3 Region Overview ■ The Burnham Group In 1921, a flood devastated 'Twentieth Century Development the community: 50 years later. the high -water marks In 1921, a flood devastated the community. Even 50 years later, the are still visible. high -water marks were still visible on walls of occupied buildings, and ar- -- ON Page 4 The Burnham Group 0 Region Overview Settlement patterns in southwest Pueblo County formed around the Settlement patterns in southwest Pueblo County towns of Beulah, Rye and Greenhorne. Homesteaders or former military land made available formed around the towns of personnel settling on what was called preempted settlements. As the Beulah, Rye and Green- horne. These mountain through the Army developed these mountain meadow War Between the States broke out, Mesa Hole or Beulah Valley, served as a meadow settlements were training location for confederate interests. After the war many of these to New Mexico along developed homesteaders former mi litary personnel towns served as trade centers for traffic going south to be known by health seekers and or ... later becoming known by the Taos Trail. Later these areas came those suffering from tuberculosis, as well as summer retreats. health seekers and those suffering from tuberculosis, as well as summer retreats. City of Pueblo Development As noted above, Pueblo was first incorporated in March 1870. Its is now 7th Street on the north/south, east/west grid was bound by what River Street on the south, Bradford Street on the east and Grand Pueblo was first incorpo- rated in March 1870 and north, Avenue on the west. As was typical of most new towns of the era, residences liveries necessary to support now comprises the core of the intermingle with the various stores, shops and of Pueblo now comprises the Downtown area. a community of the time. This original plat A second new town. South core of the Downtown area. Pueblo, was established with the arrival of the railroad A second new town, South Pueblo, was established with the arrival Rio Grande Railroad in the 1870s. The town was platted and is recognizable today as "Mesa Junction "and the of the Denver and on a northeast/southwest, northwest/southeast grid parallel with the rail - of the Arkansas River. The Union Avenue Historic Dis- road tracks, which generally followed the course town was bound on the southwest by Adams Avenue, on the northwest by trict. A third community known as Cleveland Avenue, on the southeast by Washington Street and on the and east by present -day Elizabeth Street and Santa Fe Avenue. Central Pueblo consisted of northeast The is recognizable today as the Mesa Junction neighborhood and roughly the area between "Pueblo" and "South Pueblo" area the area around the Union Avenue Historic District. and was established as neu tral territory for city hall A third community known as Central Pueblo was incorporated in South and as a tax free town in Pueblo. 1882 and consisted of roughly the area between Pueblo and The consisted mostly of commercial and industrial uses re- Pueblo. area lated to Pueblo s fledgling railroad and steel industries and was established The steel industry gave rise both as neutral territory for city hall and as a tax free town in Pueblo. to a fourth town, Bessemer. The steel industry also gave rise to a fourth town, Bessemer, which Iron Company (CF &I) steel plant. Consolidation of these four areas was complete by 1894, was situated near the Colorado Coal and The town was platted in 1880, and incorporated in 1886. The area is still which gave the City of known as the Bessemer neighborhood. Pueblo a population of 26,000. Pueblo, South Pueblo, and Central Pueblo consolidated into the sin- annexed in 1894. With these gle town of Pueblo in 1886, and Bessemer was consolidations and annexation, the total population of the new city of Pueblo rose to 26,000 persons. In 1921, a flood devastated 'Twentieth Century Development the community: 50 years later. the high -water marks In 1921, a flood devastated the community. Even 50 years later, the are still visible. high -water marks were still visible on walls of occupied buildings, and ar- -- ON Page 4 The Burnham Group 0 Region Overview chival copies of the local newspaper (which had offices in the heart of the flooded area) reflected their time underwater. In the course of the flood, the During the flood. the Arkansas Arkansas left its course, reopened in 2000 through the Historic Arkansas bluffs below South Pueblo. Local offi- left its course and relocated along the bluffs below South River Project, and relocated along the cials decided to prevent future flooding events and, with federal help, cre- hold the river in its new channel. The Pueblo. Future flooding events eerepteved creating te ated the existing system of levees to channel became cooling ponds for a power plant, parking lots near City a g system ofleve old Hall, and, most prominently, the primary course of Elizabeth Street from 6th Street east one of the City s major East -West streets. Through the His- Through the Historic Arkan- sas River Project, the commu- toric Arkansas River Project,, the community reopened the historic channel nity reopened the historic nearly 80 years later, maintaining the channel protected by levees to con- river flow. The Pueblo Dam and Reservoir, part of a rec- channel nearly 80 years later, maintaining the channel pro - tain the principal lamation project serving the Arkansas and Fryingpan Rivers, were com- by local leaders that began tected by levees to contain the principal river flow. pleted in the 1980s, the result of lobbying efforts President John Kennedy signed in 1939 and reached a turning point when Arkansas authorizing legislation into law marking the oc- the Fryingpan - with a subsequent visit to Pueblo. With this trans - mountain water casion source coupled with the local water system that owns facilities as far away 20th century acquired enough wa- as Leadville, the City in the middle of the ter to double or triple its population. By 1948, the city limits of Pueblo had more than quadrupled, north to include the neighborhoods known today as Northside, Bf 1948, the city limits of than quadrupled. stretching and much of Skyview and Country Club, east to Eastside/Lower Eastside, the Aberdeen, Bessemer (south P feb stretching more m e. and west and south encompassing most of State Fair and Sunset Park neighborhood areas. Much of the area, which is s Skyview and Country Club, east o Eastside, and west and reflected by a grid pattern street network, was platted around the turn of These older platted areas were often acquired and built upon south to Aberdeen, Bessemer (south), State Fair and Sunset the century. by individual property owners, which accounts for the diversity of architec- Land on the City s Park neighborhood areas. tural style in Pueblo s older neighborhoods. situated and southwest periphery, although part of Pueblo in 1948, was pre- north dominantly developed in the 1950s and 1960s. The decades of the 1950s and 1960s saw the largest population in- crease Pueblo has experienced. Approximately 34,000 new residents (many baby boomers ) increased the demand for housing The 1950s and 1960s, the City of which were post -war services. The new housing development occurred primarily to the north of Pueblo saw the addition of and (Country Club, Skyview, and Northside), east (Belmont) and southwest Sunset Park, and Lake Minnequa). In many cases, these 34,000 new residents. Pueblo continued to grow and prosper (Beulah Heights, neighborhoods were different from their predecessors because they were is housing that is built by a developer and and would remain the second largest city in Colorado well primarily tract housing which to a buyer. As a result there is often less diversity in the architec- into the 1960's. then sold tural style of these newer neighborhoods. Pueblo continued to grow and largest city in Colorado well into the prosper and would remain the second 1960 s, reaching a population of approximately 97,000. By the 1970s. development within the City of Pueblo saw By 1970, single family development within the City of Pueblo began slow down ; population today reflects an increase of only a noticeable slow down: in the p art 30 years, the City has to see a noticeable 5500 persons since it reached 97,770 in 1970. For the most part, develop- the of the only increased by 5500 resi- dents. ment in Pueblo County has revolved around growth there has always been a fairly large living g n Pueblo. However, page 5 Region Overview ■ The Burnham Group Page 6 The Burnham Group N Region Overview areas immediately outside the city limits, in the agricul- unincorporated tural areas such as the St. Charles Mesa or in more remote areas such as Since 1940, approximately Avondale, Boone, Rye, Beulah and the Metro Districts of Pueblo West and 20 - 30% of Pueblo County's Colorado City. Since 1940, approximately 20 - 30% of Pueblo County s popu- population has resided out- lation has resided outside the city of Pueblo. This has ranged from as few as side the city of Pueblo. Number wise, this means a 16,700 in 1940, to an estimated 35,400 in 1999. Recent unincorporated (11,000 over the last decade (1990 s) has occurred change from 16,700 people in 1940, to an estimated population growth people) primarily within the Pueblo West Metro District (discussed below) and the 35.400 in 1999. St. Charles Mesa. Metro Districts Pueblo County has two metro districts which were formed in the 1960 s. Metro Districts are service districts permitted by an act of the Colo - rado Legislature to provide municipal services such as street improvements, Pueblo County has two fire protection, recreation, and water and sewer services. They do not have zoning and subdivision. Pueblo metro districts" which were formed in the 1960' . The the power to provide police services or County provides these services to residents of the Metro Districts. Pueblo West Metro District encompasses 49 square The Pueblo West Metro District is located seven miles west of miles ... the Colorado City pueblo along U.S. Highway 50. It was established in 1969 and encompasses Metro District has a land 31,000 acres or 49 square miles (land area slightly larger than City of area of 13 square miles. Pueblo) with 18,700 platted residential lots. The Colorado City Metro Dis- trict is located approximately 20 miles south of the City along Interstate 25. This district was established in 1963 and encompasses 8500 acres or 13 square miles subdivided into 16,800 lots. Page 6 The Burnham Group N Region Overview Community Outreach Many opportunities were provided for respective governmental units and citizens to influence the Regional Development Plan. Community outreach meetings, newspaper articles and community event surveys were a few of the tools used throughout the Region to measure community views on growth and the environment. These feedback tools were repeated at various stages of the Plan s development. Public Facilitation Meetings As part of the overall citizen participation process for the Plan, a se- ries of Community Facilitation Sessions were held during the first part of the planning process (Winter 1999). This most dynamic source of public out- reach was held during the Comprehensive Plan Sick -off Week. Seven ses- sions, three in the city and four in the County, provided an opportunity for citizens to express opinions about growth and development. Specifically the work sessions allowed citizens to: ■ Identify the Region s strong points and things to be enhanced; • Identify issues related to growth and development of residential, com- mercial, and industrial uses, as well as transportation and infrastruc- ture; • Determine what outside events were affecting or could affect the com- munity's future such as changes in federal programs, development of new roadways or expanded job opportunities, etc.; and, elements of a vision for the community. ■ Propose some What follows is a summary of those ideas presented by citizens at the community facilitation sessions. Citizen groups were asked to choose the most important item in each of fourteen categories. The list of fourteen topical areas is shown below: i e i Development Issues • Location/Direction of Growth Drainage Neighborhoods Rural Subdivisions ` Commercial Centers F: Agricultural Preservation ■ Community Character Open Space i School Facilities Demographic Change t ; Sewer Facilities Economic Development 3 ■ Water Facilities ■ Intergovernmental Issues +T 4 A,fanv opportunities were provided for respective governmental units and citizens to influence the final product of the Plan. Communitv outreach meetings, newspaper articles and community . event surveys were a few of the tools used. Page 7 Community Outreach ■ The Burnham Group M7 i Quality of life - small town atmosphere, agricultural feel and slow pace physical changes identified ranged from transportation improvements to agricul- tural preservation. Infrastructure improve- ments - drainage facilities to prevent flooding /need stricter standards, and ex- pansion of utility service, especially water and sewer service, utility consolida- tion, and need for more sophisticated electronic infrastructure Responses from both the City of Pueblo and unincorporated Pueblo County were received and compiled to develop the following summary, which is listed in priority order. Why do you like living in the Pueblo area? • Moderate climate • Quality of life — small town atmosphere, agriculture feel, slow pace • People of Community — friendly, honest, diverse, civic- minded • Abundant water supply • Open Space — beauty and proximity • Natural Resources/Environment — clean air and mountains/plains • Low Cost of Living - affordable housing, land availability • Rural /Agriculture — diversified, excellent soil and water for farms • Freedom to use property without excess regulation What physical changes would you like to see in the Pueblo area? • Transportation system improvements — improved roadway maintenance, im- proved roads in Pueblo West and access to the southside, introduction of light rail, bus line improvements with times/frequencies, improved northside transportation, improvement of pedestrian and bike access, bridge improve - ments/maintenance, and provision of air service to Pueblo; ■ Infrastructure improvements - drainage facilities to prevent flooding /need stricter standards, and expansion of utility service, especially water and sewer service, utility consolidation, and need for more sophisticated elec- tronic infrastructure; ■ Agricultural preservation - loss of agriculture lands, limiting proliferation of 5 - 40 acre tracts in rural areas, create incentives to preserve as farms, maintain rural area and encourage agriculture lifestyle and right to farm; • Economic development - higher paying jobs for area residents, diverse indus- try with potential for growth of employment; • Planning — limiting urban sprawl, better enforcement of zoning regulations, address undesirable land uses such as junk yards and old industrial sites, managed growth, providing higher development standards, protecting addi- tional open space; ■ Recreational opportunities - neighborhood park maintenance and expansion with new developments; ■ Attractive community - restore old buildings, change the image of old build - ings/clean up, develop beautification programs, encourage green builders - i.e. architectural conditions, fireproofs, provide tax credits for upgrade of neighborhoods, rid city of negative images, create more attractive entrances into Pueblo on Highways 50 & 1 -25; and, • Environmental concerns - high water tables, septic system pollution of wells, impact on natural ecosystems, preservation of natural ground cover, and relationship of future development to natural hazards such as flooding. Page 8 The Burnham Group ■ Community Outreach What is your vision for the future of the Pueblo area? • Character of Pueblo maintained and preservation of natural setting and cul- tural history while allowing for economic growth • Well planned and maintained infrastructure and public services • Efficientimulti -modal transportation system serving all citizens • Strong interconnected neighborhoods with all services and activities • Strong and diverse job market and viable downtown • Weli- planned and attractive community, particularly in older areas • Pedestrian and bike ways or greenways that connect neighborhoods • Maintain natural beauty, while still allowing reasonable and rational growth ■ Intimate rural setting will be maintained with thoughtful planning • Continued preservation of open space and agricultural land • Recreational facilities that meet the full lifecycle of all citizens Regional Plan Public Opinion. Survey As part of the community outreach effort for the Pueblo Regional Development Plan, a survey was distributed that asked questions related to growth and development in the Region. Excellent response was received, with over 400 people completing the survey while attending the annual Chili and Frijole Festival (September 1999) and the Plan Alternative Meet- ings (October 1999). Of the respondents, 71% lived within the City of Pueblo, 12% in Pueblo West, 6% in St. Charles Mesa, and the remainder in other areas of Pueblo County. Survey Responses These responses have been broken down into four areas of interest: managing growth, location of commercial and industrial development, land- scaping and signage, and protection of agricultural and environmentally sensitive lands. Managing growth • Statement 1 - Local government should take the initiative to guide growth within the Pueblo Region: 94% responded positively, with 51% of the respon- dents strongly agreeing. • Statement 2 - Private developers and the market should determine future growth in the Pueblo Region: Only 37% agreed, with 63% taking the oppos- ing view (split almost evenly between strongly disagree and disagree). My vision of Pueblo ... Efficient /multi -modal transportation system serv- ing all citizens Strong interconnected neighborhoods with all ser- vices and activities Strong and diverse job mar- ket and viable downtown A public opinion survey on growth and develop- ment at the annual Chili and Frijole Festival re- ceived responses from over 400 people 94% felt local government should take the initiative to guide growth within the Pueblo Region; only 34% said this was the role of the private developer. Page 9 The Burnham Group Community Outreach ■ Location of commercial and industrial development 79% agreed that commercial development should be con- centrated in planned areas, rather than as strip devel- opment along 1 -25 and ma- jor roadways. • Statement 3 - Commercial development should be concentrated in planned areas, rather than the current tendency to occur as strip development along I- 25 and major roadways: 79% respondents agreed (split almost evenly be- tween strongly agree and agree). • Statement 4 - More strip commercial development along 1 -25 and major roadways benefit the Pueblo Region: 54% disagreed that strip commercial was beneficial, while 46% agree. The view that strip commercial was not beneficial was more strongly felt in areas outside the city of Pueblo (over 60% of the respondents from outside the city disagreed that strip commercial was beneficial to the Region, while 48 %disagreed in the city). Landscaping and signage 94% agreed that landscaping should be required to im- prove the look of commercial and-industrial development. 88% agreed that limiting the size and number of signs improves the look of commer- cial and industrial develop- ment. 96% agreed that programs should be developed to pro- tect productive agricultural and environmentally sensi- tive land. 77% were willing to pay 5 cents a day to fund these programs. Page 10 • Statement 5 - Landscaping should be required to improve the look of com- mercial and industrial development: An overwhelming number, 94 %, of the respondents agreed, with only a minor 6% disagreeing. • Statement 6 - New commercial and industrial development should not be re- quired to provide landscaping: 83% of the respondents disagreed, with mo than half of this number registering a strong disagreement. • Statement 7 - Limiting the size and number of signs improves the look of commercial and industrial development: 88% strongly agreed this was a way of improving the look of the area and only 12% disagreed (only 3% strongly disagreed). • Statement 8 - Large and/or numerous signs are necessary to prooeriy adver- tise commercial and industrial business: 81 % of the respondents felt it un- necessary for commercial and industrial businesses to use very large or nu- merous signs to effectively advertise. Protection of agricultural and environmentally sensitive lands • Statement 9 - Programs should be developed to protect productive agricul- tural land, flood plains, wildlife habitats and environmentally sensitive land: an overwhelming 96% of the respondents agreed, with 64% strongly agreeing. • Statement 10 - I would be willing to pay 5 cents a day to fund programs to protect productive agricultural land, flood plains, wildlife habitats and envi- ronmentally sensitive land: 77% respondents agreed, with only 7% of the op- posing view strongly disagreeing. Overall Survey Response Respondents strongly supported local government taking the initia- tive to guide growth in the Region and disagreed that the private sector should have this responsibility. There was strong support for concentrating commercial and industrial development in planned areas, and only moder- ate acknowledgment that strip commercial development benefits the Pueblo Region. An overwhelming number agreed that landscaping would improve the look of commercial and industrial development and felt it should be re- quired for new development. This opinion also held true for limiting the size and number of signs. In the area of protecting agriculture, flood plains, wildlife habitats and other environmentally sensitive lands, there was very strong support. Likewise, most respondents expressed a willingness to pay 5 ■ Community Outreach The Burnham Group cents a day to fund programs to protect these properties. Positive responses to the last two statements were received from people regardless of where they lived in the Region. Community Interviews At the beginning of the planning process PACOG staff arranged meetings with numerous local, state and federal agencies in the Pueblo Re- gion. Many agencies and departments took the time to prepare briefing pa- pers outlining past, present and future activities. Information collected from the consultants personal interviews of approximately 50 groups and indi- viduals who were active in key programs or positions within the commu- nity, provided a wealth of planning related information. Key information that provided vital direction for the Plan is summarized below. Pueblo 2010 Commission The Pueblo 2010 Commission's Strategic Plan presents overarching visions that address a broad range of components of the community, including arts and culture, business and economic development, environment, governance, historic preserva- tion, infrastructure, education, and recreation. Pueblo Economic Development Corporation (PEDCo) PEDCo is the Pueblo Region's primary economic development organization. PEDCo provides information about Pueblo, including climate, air quality, neighbor- hoods, government, industrial parks, education, population, cost of living. housing, etc., to prospective employers. Flooding and fire protection The 100 -year flood plain represents a reasonable boundary for most planning and development purposes, however, certain 'critical facilities" should remain outside of the 500 -year flood plain, unless significant efforts are made to flood proof the pro- posed facility. There are fifteen fire districts covering rural areas in Pueblo County. Approximately two- thirds of the County is within the Pueblo Emergency Response team's area that provides wildfire protection only — no structural fire protection. The increase in rural subdivisions, containing lots of 35 -acres or greater, is often in these areas. There is a desire for the comprehensive Plan to, in most cases, require the prov;sion of full service fire protection when and where new development occurs. School overcrowding School District 70, generally serving areas outside the City of Pueblo, completed a demographic study in 1998. Pueblo West has been growing at a rate of 400 to 500 students per year for the past three to four years. They desperately need building sites. The District is getting close to capacity, including the district office and the school bus storage faclity. District 70 has the lowest per pupil operating revenue in the State, while being one of the fastest growing districts in the State. Fountain Creek Watershed protection. Protecting the Fountain Creek Watershed is a regional effort. PACOG and the Pikes Peak Area Council of Government have organized to recognize the Fountain Creek Watershed as a regional asset supporting diverse interests. The parties strive to maintain or restore the Creek's health and its tributaries. l E Information gained from personal interviews of approximately 50 groups and individuals within the community provided a wealth of planning re- lated information. Approximately two- thirds of the County is within the Pueblo Emergency Response Teams area that provides wildfire protection only - no structural fire protection. Pueblo West has been growing at a rate of 400 to 500 students per year for the past three to four years. Page 11 The Burnham Group Community Outreach ■ Water service The Water Board has enough water rights to serve approximately 360,000 people along with - associated growth. The St. Charles Mesa is currently not served with sanitary sewer, however, a sewer district has been formed and a funding plan is being put together to provide sanitary sewer to the area. The Division of Wildlife is particularly concerned about increased "40 -acre hobby farms "and their impact on the environmen- tally sensitive south western portion of the County. The Pueblo Board of Water Works, created by City charter, has a five member in- dependent board elected at -large in the City. The extraterritorial water service ar- eas, Permit Areas A and B, were created by City ordinance. Permit Area A is that area within the City of Pueblo and immediately surrounding the City limits. In gen- eral, this covers the area that is expected to develop at urban or suburban densities with associated commercial and industrial development. Permit Area B consists of the rest of the County and any adjacent counties. Prior to extending water to a property in Permit Area A or B, the Water Board requests comments from both the City and County. Either may request that conditions be imposed. The Ordinance requires that a property owner in either Permit Area agree to annex in the future when the property becomes legally 'annexable " All City conditions are binding in Permit Area A and advisory in Permit Area B. All County conditions are advisory in either area. The Board of Water Works has full discretion over water system im- provements, with no City control. The Water Board has enough water rights to serve approximately 360,000 people along with 'associated growth' (i.e. related commercial and industrial growth based on the general historic proportion of residential to commercial and industrial). Ap- proximately 105,000 people are currently served. The water treatment plant cur- rently has a capacity of approximately 63,000,000 gallons per day serving 105,000 persons. An additional 21,000,000 per day capacity will be added totaling 84,000,000 gallons per day. The St. Charles Mesa Water District currently serves a population of 3,600. There are ample improvements in the planning stage including continued completion of loops and small main replacement, raw waterline replacement, construction of 2.5 million gallon water storage tank for treated water, which will double storage capac- ity, raw water pump and main extension, increase in raw water storage, and the im- provement of a filter plant. While the St. Charles Mesa is currently not served with sanitary sewer, a sewer district has been formed and a funding plan is being put to- gether to provide sanitary sewer to the area. Environmental concerns. The Greenway and Nature Center of Pueblo identified the following environmental needs: provide parks and trailways; provide undeveloped open space; preserve ecologically sound agricultural activities and the areas associated with them; pre- serve river corridors, wetlands, and buffer zones; protect the Teepee Butte area, Arkansas River Bluffs, and the Graneros Gorge; and implement the Pueblo Natural Resource and Environmental Education Council's plans. The Division of Wildlife works on a day -to-day basis with owners of property to regulate, enhance and manage wildlife resources. The Division provides comments and recommendations concerning how to mitigate impacts from development on ri- parian corridors. It is particularly concerned about increased "40 -acre hobby farms" and their impact on the environmentally sensitive southwestern portion of the County. The Division attempts to remain very 'balanced* recognizing both the wild- life preservation issues and the development issues. It feels that this 'balance" could best be achieved by developing a County open space policy. r s e I i Protection of property rights. The Farts Bureau is concerned with the protection of property rights. They recog- nize this as a 'two edge sword" in that there is a desire to protect farmers from the encroachment of development while also allowing farmers to recoup their invest- ment in the farm by selling property for development. Fanners and ranchers noted that capital gains taxes and inheritance taxes often force property to be sold for de- velopment. Most feel that the only way to preserve farmland and ranchland is to make sure that the areas to be protected are compensated. Conservation ease- ments are viable, but tools available to finance them are limited. Programs do exist which can help the farmer and rancher. The Colorado Cattleman's Assn. has a pro- gram to generate dollars for land preservation. Other programs provide farmers and Page 12 ■ Community Outreach The Burnham Group Development issues in unincorporated Pueblo County i i St. Charles Mesa Development Constraints - Constraints to growth and develop- ment within the St. Charles Mesa include the area's high groundwater table and lack of sanitary sewer. These constraints are substantially impacting new residential subdivisions being developed at much greater densities (half acre to one acre lots) than the previous large acreage (10 to 40 acres) characteristic of this area when it was predominantly a farming community. Compounding this problem is the reduc- tion of ground water uses for agricultural farming purposes. Rural Subdivisions - The growth of large -lot rural subdivisions (40 -acre rural lots) significantly impacts Pueblo County's ability to maintain its rural roadway system. Residents living in these rural subdivisions often place increased pressure upon the County to improve dirt roads winding throughout their subdivisions. This problem is particularly acute in older subdivision plats where roads were never constructed yet lots were sold and developed. Bicycle routes and recreation trails. Several agencies expressed a keen interest in maintaining and expanding the ongoing bike and greenway system. Summary of Community Issues Throughout the process of listening to public and community lead- ers through surveys and interviews, a significant number of land use issues were raised. Many of these issues related to mobility, such as the lack of connectivity from one area of the region to the other, traffic congestion or the lack of pedestrian- friendly transportation systems. Other concerns in- cluded land use conflicts between residential and commercial, redevelop- ment of older areas within the City of Pueblo, and the suburbanization of rural areas. Also, issues frequently raised by citizens included the economy, and over- crowding within the school system in fast - growing suburban areas. The following key issues were identified through the public outreach efforts. g: Land Use — general Lack of economic vitality a a Future development along Pueblo Boulevard c • Urbanization in the St. Charles Mesa (agricultural and infrastructure conflicts) f Land Use — commerciallindustrial Strip commercial along major roadways f ri i y • Deterioration of businesses in older commercial areas • Redevelopment of older commercial and industrial areas • Maintenance of neighborhood character t r t Rural Subdivisions - The growth of large -lot rural subdivisions (40 -acre rural lots) significanttti• impacts Pueblo Counry's ability to maintain Its rural roadwaysmem. Many of the land use issues raised related to mobility, such as the lack of connectivity from one area of the region to the other, traffic congestion or the lack of pedestrian - friendly transportation systems. Page 13 The Burnham Group Community Outreach ■ Land Use Issues Downtown - Rehabilita- tion and revitalization, particularly within in- dustrial sites Residential - Aging resi- dential; lack ofneighbor- hood maintenance and code enforcement Pueblo West - High popu- lation growth and in- creased demand for schools, water and sewer Schools - Closures in older residential areas and overcrowding in fast growing suburban loca- tions Transportation - Lack of cross -town access and street connectivity; one - way streets detract from residential character Page 14 Land Use _ Downtown • Rehabilitation and revitalization, particularly within industrial sites • Removal of obstacles to residential development I ■ Development of technological infrastructure within the dowhtown • Management and maintenance of downtown i Land Use - Residential ■ Commercial encroachment and poor transition in uses t ■ Light and sound from commercial areas • Poor condition of mufti- family dwellings s • Aging residential; lack of neighborhood maintenance and code enforcement Residential conversions to rental properties and multi - family in close proximity to single family • Feeling neighborhoods are unsafe, thus diminished investment i Neighborhood preservation, rehabilitation of older housing, and lack of reha- bilitation code standards • Poor in -fill development modular housing lacking compatible design charac- ter Metro Districts I High population growth in Pueblo West and increased demand for schools, water and sewer I Lack of adequate commercial land in Colorado City { School Districts • School closures • Lack of link to community • Overcrowding in fast growing suburban locations I Infrastructure ■ Lack of sewer service { • High water table • Poor drainage ' Transportation i Lack of cross -town access and access to downtown core e • Lack of street connectivity & one -way streets detract from residential character i Impact of 1 -25 corridor on neighborhoods • Lack of pedestrian- friendly streets I Impact of through traffic on neighborhoods i ■ Street extensions bisecting neighborhoods j At grade railroad crossings t is 't Y b The Burnham Group III Community Outreach Landscaping /Aesthetics • Lack of vegetation in new developments • Poor signage and landscaping in commercial areas • Loss of mountain views J !. i Recreation • Uneven distribution of park facilities • Lack of smaller parks, poor maintenance of facilities in some areas of the City Agricultural Preservation • Concern over loss of prime agricultural land • Maintaining agricultural and ranching operations and preserving open space • Selling off of water rights outside the County Rural Issues • Lack of water availability in rural subdivisions • Rural levels of public services (fire, sheriff, EMS, etc.) • Wildlife corridor disturbance ■ Conflict between mineral extraction and nearby residential Landscaping - Lack of vegetation in new de- velopments Recreation - Lack of smaller parks and poor maintenance of some oth- ers Agriculture - Maintain- ing agricultural and ranching operations and preserving open space Page 15 The Burnham Group Community Outreach ■ Factual Foundation - Land Demand Analysis A key component to planning for the Pueblo Region s future is de- veloping realistic forecasts for future demand for residential and nonresi- dential growth. Estimating the amount of land needed to accommodate new residential, commercial, industrial and public uses between now and the planning horizon of the Plan a population of 200,000 is referred to as a Demand Analysis. This analysis estimates future land demand in three broad categories: • Residential uses, including single - family houses, duplexes/townhouse and multi - family units needed to accommodate future household Estimating the amount of growth. land needed to accommo- • Nonresidential uses, such as retail stores, offices and industries needed date new residential, to accommodate future employment growth. commercial, industrial and public uses between • Public sector land needs for parks and schools. now and the planning horizon of the Plan - a The Demand Analysis projects an excess of more land for future population of 200,000- is land uses than the market will actually absorb. This provides a sufficient referred to as a Demand number of alternative development sites and makes allowances for some Analysis. sites not fully developing (site inefficiency). The information that follows is excerpted from the Demand Analysis Technical Memorandum, completed in Spring 1999 and updated based on plan review comments in Spring 2001. This technical memorandum provides a full discussion of the land demand methodology, copies of which are available at PACOG. Population Trends Pueblo County s population growth over the past three decades (1970 2000) has not followed a consistent growth pattern. In 1975, follow- ing several decades of growth, the County s population peaked at almost By 2030, Pueblo County's 126,700. The recession of the mid 1980 s saw a loss in population that was population is projected to not recovered until 1994, almost 20 years later. As seen in Table 1, year reach 200,000; approxi- 2000 population estimates place Pueblo County s population at 140,000 mately 124,000 will live people. Information provided by the Demand Analysis, indicates that within the City of Pueblo. Pueblo County s population will reach approximately 200,000 in year 2030. The percent of County population that is projected to reside within the City of Pueblo through year 2030 is also shown in Table 1. Up to the 1990 s, the City s share of the County s population remained around 80 82% due to most new housing development occurring within the City of Pueblo. However, the 1990 s saw a significant change in this trend due to substantial development occurring within Pueblo West and other unincor- porated areas of the County. Page 17 The Burnham Group Factual Foundation ■ Table 1 - Regional Population Growth, 1970 - 2030 The last two years of the 1990's, has seen an up- swing in single- family housing development within the City due to development ofland al- ready within the City and annexation of developing areas. However, the City's percentage of the County's total population will con- tinue to decline over the next 30 years due to a significant number of new home starts occurring outside the City. Page 18 ■ Factual Foundation 1970 1980 1990 2000 2010 2020 2030 Pueblo County 118,732 126,077 123,056 139,923 159,258 179,885 199,782 City of Pueblo 97,774 101,686 98.640 103,296 110,063 117,282 124.246 City % 82% 81% 80% 74% 69% 65% 62% Source: Demand Analysis Technical Memorandum and Updated Building Permit Data Based on single - family building permits, from 1990 to 2000, the City of Pueblo captured 32% of the new home starts, while Pueblo West captured 56% and other areas of the County captured 12%. However, the last two years of the 1990 s, has seen an upswing in single - family housing develop- ment within the City, due to development of land already within the City and annexation of developing areas. To better reflect this strong development trend recently occurring within the City, the Demand Analysis's population projections for the City were increased to reflect a population growth capture rate for the City of 35% of the County s projected 59,800 new residents over the next 30 years, which results in a population increase in the City of 20,950 people. Overall, Table 1 indicates that the City s percentage of the County s total population will continue to decline over the next 30 years due to a sig- nificant number of new home starts occurring outside the City. However, additional growth in the City s population can be dramatically changed by proactive annexation policies toward potential developable land, extension of public infrastructure, as well as facilitating additional housing develop- ment on land currently within the City. Housing Trends The population projections discussed above provide the foundation to forecast the demand for new residential development through year 2030. Table 2 summarizes this housing trend analysis. The detailed trend analy- sis and methodology for projecting new residential growth by housing type is contained in the Demand Analysis Technical Memorandum. Based on the information in the table below, 81% of the 30,100 new residential units developed over the next 30 years are projected to be single - family residential units. These projections are based on current develop- ment trends and may change as buyer preferences change. Using informa- tion from the population projections shown above, it can be assumed that about two- thirds of all new housing units will be built outside the City of Pueblo. The Burnham Group Table 2 - Pueblo Regional Housing Growth, 1998 - 2030 1998- 2001- 2011- 2021- Total 2000 2010 2020 2030 Units Pueblo County 1997 2030 1997- 2030 Over the next 30 years. Single - Family Units 1,620 7,669 8,010 7,065 24,364 2001 to 2030, 30,100 nets Total % Total % Total % dwelling units will be built Duplex/Townhouse Units Du p 129 610 637 562 1,938 in the Pueblo Region. Multi - Family Units 253 1,196 1,249 1,102 3,800 Government Total Units 2,002 9,475 9,896 8,729 30,102 Manufacturing Source: Demand Analysis Technical Memorandum 8 6,980 5 1,680 32 Employment Trends In ' addition to residential growth, another component of growth is economic - employment change. Projecting future employment assists in de- termining the demand for future non - residential land. Table 3 provides es- In 1997, Pueblo Region timates for total public and private sector jobs for Pueblo County from 1997 had 66.027jobs. During to 2030. the 30 year planning ho- rizon, job growth is ex- pected to more than dou- ble, rising to 139,000jobs. Table 3 - Pueblo Regional Job Growth, 1997 - 2030 The table combines an estimate of the number of jobs held by resi- dents with commuting patterns in and out of the County. The total number of jobs in Pueblo County is based on projections to 2025 by the Colorado De- Page 19 The Burnham Group Factual Foundation ■ 1997 2030 1997- 2030 increase Total % Total % Total % Services 21,373 32 52,558 38 31,185 146 Retail Trade 15 23 34,138 25 18,747 122 Government 10,863 16 19,438 14 8,575 79 Manufacturing 5,300 8 6,980 5 1,680 32 Construction 4,449 7 11,430 8 6,981 157 Finance/InsJReal Estate 3,182 5 5,797 4 2,615 82 TranspJCommJUtilities 2,704 4 4,053 3 1,349 50 Wholesale Trade 1,637 3 2,669 2 1,032 63 Agriculture/Mining 1,128 2 2,226 1 1,098 97 66,027 100% 139,289 100% 73,262 Source: Demand Analysis Technical Memorandum The table combines an estimate of the number of jobs held by resi- dents with commuting patterns in and out of the County. The total number of jobs in Pueblo County is based on projections to 2025 by the Colorado De- Page 19 The Burnham Group Factual Foundation ■ partment of Local Affairs and projected to 2030 by The Burnham Group. Based on these projections, the service sector will be the largest gainer in job growth, adding over 31,000, followed by 18,700 new retail trade jobs. Overall, it is projected there will be over 73,000 new jobs created in the 33- year time span. It may be noted that a large percent gain is shown for the category of agriculturelmining. Although there is an estimated increase of 1100 employees in this category, the overall employment projections for this sector as a percent of total employment is expected to continue to decline. This employment sector includes not only traditional agricultural and min- ing activities, but also includes veterinarians, horticultural services, for- estry services and fishery and hunting services, and anyone employed in managing such things as horses, bees and poultry. The mining sector also includes the extraction of nonmetallic minerals such as stone and sand. Pueblo County has a total of 166 acres of park land. This includes parkland owned by the County (65 acres), Pueblo West (53 acres), Colorado City (35 acres), Beulah (3 acres), and Rye (10 acres). Given that approxi- mately 37,000 persons live in the County, this equates to 4.5 acres of park land per 1000 persons, or a deficit of 93 acres. Reduced amount of park acreage available to County residents may not be as great a concern, since many residents living outside the City of Pueblo often have much greater open space available to them. By the year 2030, when the population of Pueblo County is projected to reach 200,000 persons, the area will have added almost 60,000 people 20,950 in the City and 39,909 in the County. Based on population growth in the City of Pueblo, there will be an additional park land demand of 146 acres (based on the above standards of 7 acres per 1000 persons). In the County, the 39,909 additional people will generate an additional park land Page 20 ■ Factual Foundation The Burnham Group Park Land Trends The need for public parks relies heavily on the adoption of local standards for park land acreages to serve the resident population, along Typical national standards with standards for specific recreation facilities such as ball fields, tennis for neighborhood, commu- courts and passive recreation areas. Information. provided in the Demand nity and district parks Analysis Technical Memorandum, relied on national standards applied suggest a total of 7.0 acres against the projected population increase discussed earlier. Collectively, the per 1,000 persons typical national standards for neighborhood, community and district parks suggest a total of 7.0 acres per 1,000 persons; this does not include park The City of Pueblo cur- land acreage in greenways. Whether the local strategy is to provide small, rently owns 767 acres of decentralized neighborhood park facilities or to centralize parks by provid- developed parks or 7.5 ing large park facilities serving broad areas, the 7.0 acres per 1,000 persons acres per 1000 persons "sur- generally holds for city and county- funded facilities. which is a park land plus" of 96 acres. The City of Pueblo currently owns 767 acres of developed parks (ur- Although it appears there ban, district and neighborhood parks). This equates to about 7.5 acres per 1000 given the City s population of 103,000, or a park land sur- is a park land surplus, the City continues to have a persons plus of 46 acres. Although it appears there is a surplus of park land in the need for more district sized City of Pueblo, much of this acreage is contained in neighborhood parks. recreation areas. The City continues to have a need for more district sized recreation areas. Pueblo County has a total of 166 acres of park land. This includes parkland owned by the County (65 acres), Pueblo West (53 acres), Colorado City (35 acres), Beulah (3 acres), and Rye (10 acres). Given that approxi- mately 37,000 persons live in the County, this equates to 4.5 acres of park land per 1000 persons, or a deficit of 93 acres. Reduced amount of park acreage available to County residents may not be as great a concern, since many residents living outside the City of Pueblo often have much greater open space available to them. By the year 2030, when the population of Pueblo County is projected to reach 200,000 persons, the area will have added almost 60,000 people 20,950 in the City and 39,909 in the County. Based on population growth in the City of Pueblo, there will be an additional park land demand of 146 acres (based on the above standards of 7 acres per 1000 persons). In the County, the 39,909 additional people will generate an additional park land Page 20 ■ Factual Foundation The Burnham Group demand of 279 acres. Adding together the existing park land surplus in the City and the County creates a park land demand of approximately 472 acres within the County by year 2030. Of the additional acres needed to meet future population growth, the type of recreation facilities may vary considerably based on the population areas served. Whereas the more densely developed urban areas of the city may have a need for neighborhood level parks within walking distance of homes, the less densely populated areas of the County may find the large district parks better serve their needs. It should be recognized that using national standards based purely on acreage, does not consider the adequacy of existing facilities nor the fact that a few large acreage sites can skew the total acres. In addition, park land may not be evenly distributed throughout the community, thus some areas may actually be underserved, even though the national acreage stan- dards are met on a community -wide basis. A regional recreation study is currently being prepared. Public School Trends Pueblo County is served by two public school districts: District No. 60 covering the City of Pueblo, and District No. 70 covering the remainder of the county. There are also a few private schools within the county. Since population projections by age are not available separately for the city and the county, future demand for new school acreage was addressed in the Demand Analysis Technical Memorandum on a countywide basis, and in- cluded students enrolled in private schools (5.5% of total enrollment). Based on the information provided in the Demand Analysis, there were 25,964 students enrolled in public and private schools. By 2030, it is projected that enrollment will rise to 34,333 students. To obtain future school acreage needs, student - per -acre standards are divided into the in- crease in student population through 2030. These standards compare fa- vorably with national standards; actual local school standards may vary from these. Table 4 - Pueblo Regional New School Acres - 2030 In 1998. there were 25.964 students en- rolled in public and private schools within the Region. By 2030, it is projected that en- rollment will rise to 34,333 students. Page 21 Factual Foundation ■ The Burnham Group Enrollment Students New Demand Increase per Acre Acres Elementary Schools (Grades K 5) 3,399 50 70 Middle Schools (Grades 6 8) 2,047 50 40 High schools (Grades 9 12) 2,924 30 100 Total 8,370 210 Source: Demand Analysis Technical Memora In 1998. there were 25.964 students en- rolled in public and private schools within the Region. By 2030, it is projected that en- rollment will rise to 34,333 students. Page 21 Factual Foundation ■ The Burnham Group Future ,Land Demand Summary The preceding sections provided year 2030 projections for popula- tion, housing, and employment growth and projected demand for additional park land and school sites. Table 5 below summarizes the projected land There is a projected land demand needed to accommodate an additional 60,000 residents and 73,000 demand needed to accommo- jobs by 2030. The net acres shown in the first column are actual acres date an additional 60,000 needed to accommodate future growth. However, for the purposes of devel- residents and 73,000 jobs by oping the Pueblo Regional Development Plan, these acreages need to be ex- 2030. panded to account for inefficiencies in the land development process (effi- ciency multiplier), and for the uncertainty as to which precise lands will be developed (market choice multiplier). This results in the gross land demand. Table 5 - Pueblo Regional New Development Acres Demand - 2030 The land demand figures for schools should be used with caution. Net Land The figures do not consider the absorption of future students into schools Market that have current excess capacity, or the inefficient provision of new schools to serve a dispersed population; nor do they consider the shift in location of Enrollments have been fal- student concentrations. Enrollments have been falling in District 60 for the ling in District 60 for the past several years. while enrollments in District 70 have been skyrocketing. past several years, while Overall, District 60 projects a continuation of falling enrollments (although enrollments in District 70 by less that 2%) for the next 5 years due to a combination of factors, includ- have been skyrocketing. ing an aging existing population base, compounded by family relocations from the city to the suburbs (principally Pueblo West). To the extent that the school -aged population shifts disproportionately to School District 70 in plier the future, actual acreage demands for new schools in that district will be Single - Family greater than the net amounts estimated in Table 4 above. Future ,Land Demand Summary The preceding sections provided year 2030 projections for popula- tion, housing, and employment growth and projected demand for additional park land and school sites. Table 5 below summarizes the projected land There is a projected land demand needed to accommodate an additional 60,000 residents and 73,000 demand needed to accommo- jobs by 2030. The net acres shown in the first column are actual acres date an additional 60,000 needed to accommodate future growth. However, for the purposes of devel- residents and 73,000 jobs by oping the Pueblo Regional Development Plan, these acreages need to be ex- 2030. panded to account for inefficiencies in the land development process (effi- ciency multiplier), and for the uncertainty as to which precise lands will be developed (market choice multiplier). This results in the gross land demand. Table 5 - Pueblo Regional New Development Acres Demand - 2030 Page 22 ■ Factual Foundation The Burnham Group New Net Land Effi- Market Gross Land Demand ciency Choice Demand Demand (Acres) Multi- Multi- (Acres) plier plier Single - Family 24,364 units 8.121 20% 2 19,500 Duplex/Townhse. 1,938 units 388 20% 2 930 Multi- Family 3,800 units 380 10% 2 840 Commercial 14,624,730 sf 1,828 20% 2 4,400 Office 7,830,026 sf 652 25% 3 2,450 Industrial 4,360,068 sf 436 50% 3 2,000 Gov't. Adm. 2,574,450 sf 257 10% 0 280 Park Land 450 0% 0 704 Schools 210 0% 0 210 Total Acres 12,722 31,314 Source: Demand Analysis Techni Memora Page 22 ■ Factual Foundation The Burnham Group The efficiency multiplier recognizes that, during the land devel- opment process, some lands are vacant but irrevocably dedicated to devel- opment in that particular land use category. For instance, a single - family subdivision will contain vacant lots throughout development until the sub- division is 100% built out. A shopping center may contain spin sites and an industrial park may contain pad sites, all graded and ready for develop- ment, but vacant nonetheless. The efficiency multiplier accounts for this type of development practice. The efficiency multiplier also recognizes that some land use developments, such as industrial parks, are generally built with comparatively more vacant sites (50% efficiency multiplier), than is seen in development such as multi - family complex (10% efficiency multi- plier). The market choice multiplier differs notably from the efficiency multiplier in that it relates directly to the uncertainty of in which market will a particular property be developed. For example, a particular Region may contain 1,000 acres, but only 400 are expected to develop within the planning horizon. The market place multiplier presents two problems: 1) identifying the 400 acres is not clear, and 2) the total 1,000 acres may be appropriate for development for that particular land use. Thus, more acres will normally be shown on the Regional Development Plan than the actual acres expected to be developed. This allows the market to choose the appro- priate sites within the appropriate areas identified for the use. The market choice multiplier also varies according to land use type, reflecting the level of certainty that one may have about the variety of appropriate locations for each use. The result of applying the efficiency and the market choice mul- tipliers, increase the total net land demand from 12,700 acres to 31,300 gross land demand acres. The gross land demand acres are used to ensure that the Plan has sufficient land designated for, future growth by land use types. Land Capacity Analysis The Land Demand Analysis above reviewed the land demand cre- ated by future . growth. This section summarizes the "Growth Capacity Analysis Technical Memorandum. The land capacity analysis is examines the capacity of the Region's vacant land to accommodate this additional de- velopment. This analysis of the Region s available land (vacant land) is based on how the land is currently zoned. This determines how much future development can be built on existingvacant land as it is currently zoned. The Growth Capacity Analysis is not where future growth will oc- cur; it is a window into how much development can be handled under cur- rent land development regulations (zoning). A demand forecast, coupled with a capacity analysis, provides elected officials, citizens and planners with data necessary to discuss future policy matters concerning such issues as development densities and location, availability of and impact on water, The 'efficiency multiplier" recognizes that. during the land development process, some lands Kill remain va- cant The market choice muld- plier" makes allowances in the uncertainty of the market place and thus more acres are shown on the Regional Development Plan than the actual acres expected to be developed. The 'efciency" and the 'market choice "multipliers, increase the total net land demand from 12,700 acres to 31.300 gross land demand acres. Land capacity is the capac- ity of the Region's vacant land to accommodate addi- tional development based on how the land is currently zoned. Page 23 The Burnham Group Factual Foundation ■ sewer and schools, as well as a host of other policies that affect the quality of life in the Region. Current Growth Capacity The Pueblo Region has a growth capacity of 1,225,550 vacant, devel- opable acres (1915 square miles or three - fourths of the Region s 2400 square The Pueblo Region has a miles). This is vacant land unconstrained by environmental factors such as growth capacity of steep slopes, flood plains, rivers or land in public ownership such as rights - 1.225,550 vacant, devel- of -way, parks, depots, national forest, etc. (see Methodology, "Growth Ca- opable acres (1915 square pacity Analysis Technical Memorandum). The growth capacity includes miles or three - fourths of land that is in active agricultural use and is not necessarily available for the Region's 2400 square development. But because there are currently few limitations on agricul- miles). tural lands being converted to "developed urban" acres, they were included in the growth capacity acres. Comparing Capacity with Demand In 1998, based on existing zoning and typical devel- opment densities, the Pueblo Region's vacant land had the growth ca- pacity to accommodate 89.443 new dwelling units and 72.025 newJobs. Page 24 Table 6 compares available land capacity with the demand for land to accommodate projected growth. In 1998, based on existing zoning and typical development densities (see Methodology, "Growth Capacity Analysis Technical Memorandum), the Pueblo Region's vacant land had the growth capacity to accommodate 89,443 new dwelling units and 72,025 new jobs. This is a sufficient amount of land to accommodate year 2030 projected de- mand that is 30,102 new dwelling units and 73,262 new jobs. Table 6 - 1998 Capacity Versus 2030 Demand 100,00 80,00 60,00 40,00 20,00 Clearly there is more than adequate vacant, developable land for fu- ture dwelling units and sufficient land to accommodate most of the growth in employment throughout the Region through year 2030. The most impor- tant question then becomes: Where is the capacity located? Location of Growth Capacity As illustrated in Table 7, in 1998, there was sufficient capacity in the Region to accommodate 89,500 new residential units and 72,000 new jobs. Approximately half of the residential capacity is located in the City of ■ Factual Foundation The Burnham Group Dwelling Units Capacity Forecast DU Demand Employment Capacity Forecast Emp. Demand Pueblo and the Metro Districts (a vacant land capacity of 45,300 dwelling units). This is more than enough capacity to accommodate the projected dwelling unit demand of 30,100 new dwellings (discussed in the Demand Analysis above). Table 7 - Location of Available Capacity As the City annexes neg Capacity Residential Capacity Employment land it expands its devel- for New Capacity for New Capacity opment capacity. If newly Location Dwellings Percent Jobs Percent annexed land is developed City of Pueblo 14,500 units 17% 30,500 jobs 43% as planned. the City would increase its dwelling unit Pueblo West Metro 17,000 units 19% 18,300 jobs 25% capacity by over 7000 units. Colorado City Metro 13,800 units 15% 3,600 jobs 5% Unincorporated 44,200 units 49% 19,600 jobs 27% Areas /Small Towns TOTAL 89,500 units 100% 72.000 jobs 100% Note: The dwelling and employment capacity figures shown for the City of Pueblo are very conservative given two reasons. As the City annexes new land, it expands its development capacity. Secondly, there are two urban -level developments within the City of Pueblo, Eagleridge and SouthPointe, that have been master planned but are currently zoned as low density A -1 Agriculture. If developed as planned, they would increase the City s dwelling unit capacity by over 7000 units and provide a number of employment opportunities. Almost 4990 of the Region's Source: Growth Capacity Analysis Technica Me morandum residential capacity is lo- Unfortunately, almost 4910 of the Region s remaining residential cated in unincorporated areas or small rural com- capacity (44,200 dwelling units) is located in unincorporated areas or small munities on land that is rural communities on land that is zoned for agricultural use. Again, capac- zoned for agricultural use. ity is vacant, environmentally unconstrained land zoned either for residen- tial or employment uses. Since agriculturally zoned land permits residential development, it was included in the residential capacity. Unfortunately, there was not an efficient method for documenting agriculturally zoned land Fortunately. 68% of the that was not being used for agricultural purposes from actively used agri- Region's employment ca- parity is located in the City cultural land; therefore, all land zoned agriculture was included in the ca- of Pueblo or in Pueblo West parity analysis. ... areas typically well served by public facilities. The location of employment capacity, although not as great a con- trast as that seen in the residential capacity, is interesting to examine. For- tunately, over two- thirds (68 %) of the employment capacity is located in the City of Pueblo or in Pueblo West. Available capacity in these areas is typi- cally well served by public facilities and an urban street network. Only 27% If the Region were fully of the capacity for future employment is located in more rural areas of the develop currently y zoned. f a layer of low density resi- Region. dential would cover much of the Region's agricultural Impact on rural areas area ... a development pat- tern that consumes land at The total amount of unconstrained, vacant agricultural land in the a rate of 180 times that of Region exceeds 1.2 million acres. Based on the Capacity Analysis, if the more urban densities. Region were to fully develop as currently zoned, a layer of low density resi- dential would cover much of the Region's agricultural areas. Development Page 25 The Burnham Group Factual Foundation ■ in this manner would consume land at a rate of 180 times that of more ur- ban densities. The infrastructure costs associated with this low density de- velopment would be a significant cost to the Region in the provision and/or maintenance of roadways, water lines and police and fire protection. This is in addition to the potential impact on agricultural uses and wildlife. 4446 of the dwelling unit capacity (39,000 dwelling units) is located outside areas presently served by public water service. The potential for strong residential growth in rural areas could have a substantial impact on educational services. Ifgrowth occurs as per- mitted by the present zoning, the ability to pro- vide increased educa- tional facilities in remote areas of the Region would become difficult. Page 26 The potential for so much low density development is a result of ag- ricultural zoning which permits residential development on parcels from a half acre to 40 acres or larger. In addition, State of Colorado statutes permit land of 35 acres or greater to be subdivided with no public improvements being provided. Capacity and Water Service Another component of the capacity analysis is the availability of public water. The Capacity Analysis, examined water service areas of the Pueblo Board of Water Works, Pueblo West, Colorado City, St. Charles Mesa and some smaller districts. Based on this analysis, 44% of the dwell- ing unit capacity (39,000 dwelling units) is located outside areas presently served by public water service. As stated earlier, a significant amount of the residential capacity is located in areas actively used for agricultural pur- poses. There is little likelihood that much of this land will actually be devel- oped for residential use; therefore, public water service is not seen as a critical issue. However, in recent years, large tracts of agricultural land in these unserved areas have been subdivided into 35 -plus acre tracts for resi- dential purposes. This raises the issue of the availability of public water service in more rural areas. In addition to the issue of residential develop- ment, 22% of the employment growth capacity (16,000 jobs) is also located on land outside public water service areas. Capacity and School Districts Residential development has a tremendous impact on school dis- tricts in any geographical area. By overlaying the existing School District boundaries onto the vacant, developable lands map (capacity), the potential impact of residential development within these districts was determined. Based on the available residential capacity to accommodate 89,443 addi- tional dwelling units, at full build out, the Region's population would reach 350,000 people. This would result in a projected 34,883 additional students, most of which would be located in School District 70. This is substantially longer range than the Plan s planning horizon for a population of 200,000 that would add an estimated 8300 students by year 2030. Nevertheless, the potential for strong residential growth in rural areas could have a substan- tial impact on educational services. If this growth capacity were to occur as permitted by the present zoning, the ability to provide increased educa- tional facilities in remote areas of the Region would become difficult. ■ Factual Foundation The Burnham Group Capacity and Impact on Wildlife Areas Growth and development impact can have either a small or signifi- cant impact on wildlife habitats of a Region. As part of the "Capacity Analy- sis," an overlay was developed using the Pueblo Natural Resource and Envi- ronmental Education Strategic Plan that ranks wildlife habitats in order of significance. This habitat overlay was combined with the potential devel- opment capacity within the Region to determine the potential impact of de- velopment on these wildlife habitats. As Table 8 indicates, the majority of the growth capacity for both residential and employment is in the lower ranked or less sensitive wildlife habitats. Seventy four percent (74 %) of the dwelling unit capacity and 81% of the employment capacity were in the 0 - 3 wildlife ranked areas. However, there remains 27% of the dwelling unit ca- pacity and 19% of the employment capacity located in the top most sensitive wildlife areas. Table 8 - Capacity within Ranked Wildlife Habitats Sensitivity Ranking Dwellings and Employment Capacity Percent 0 to 3 Dwelling Units 65,311 73% Employment 58,513 81% 4 to 5 Dwelling Units 24,132 27% Employment 13,512 19% Source: Growth Capacity Analysis Technical Memorandum Growth and development can have either a small or significant impact on wildlife habitats of Re- gion. Fortunately, the majority of the Region's growth capacity for both residen- tial and employment is in the lower ranked or less sensitive wildlife habitats. Page 27 The Burnham Group Factual Foundation ■ HE 1! 77- Page 28 ■ Factual Foundation The Burnham Group Summary of Capacity and Demand ■ The year 2000 population of the Pueblo Region is estimated at 140,000 people. By year 2030, it is projected the Region s population will reach 200,000 (an additional 60,000 people). ■ The forecasted population growth will add an estimated 30,100 dwelling The year 2000 population units by 2030, a 509 increase over the existing number of residential of the Pueblo Region is units currently within the Region. estimated at 140,000 peo- ple. By year 2030, it is pro- ■ Based on historic residential land use demand, additional residential jected the Region's pop ula- development over the next 30 years will have a gross land demand of tion will reach 200,000 (an 21,270 acres (33 square miles). additional 60,000 people ■ The Region may add over 73,000 new jobs over the next 30 years, a 100% increase over existing employment. ■ Job growth will occur in commercial, office, industrial, and government Based on the current zon- land uses and will have a gross land demand of 9,790 acres (15 square ing of vacant land. the miles). Pueblo Region has enough ■ Of the Pueblo Region s 2400 square miles, over 1900 square miles are land to accommodate classified as vacant and environmentally unconstrained; this includes a 89.500 additional dwelling units and 73,000 addi- considerable amount of active agricultural land. tional jobs. ■ The vacant land capacity (under current zoning classifications) can ac- commodate 89,500 additional dwelling units and 72,000 additional jobs. This is more than enough vacant land for residential development and an adequate amount of land for most of the employment demand. The Trends show an increase capacity to accommodate additional land for residential purposes is inflated because it contains land that is currently in produc- in the percentage ofper- sons occupying lands in somewhat tive agricultural uses and thus not actually available for development. unincorporated Pueblo show an increase in the percentage of persons occupying lands in County ,Trends unincorporated Pueblo County (38% in 2030 v. 26% in 2000). This trans- lates into a trend that two- thirds of the future housing development will occur outside the City of Pueblo's corporate limits. ■ Existing rural subdivisions such as Hatchett Ranch, Midway, Red Creek Ranch, and Signal Mountain consume 48,000 acres, and if fully devel- oped (1 unit per 60 acres), they would add over 800 dwelling units in the rural areas. Land use densities of rural subdivisions currently consume land at a rate of 180 times that of urban development (1 unit per 60 acres compared to 3 units per acre in the urban area). Page 28 ■ Factual Foundation The Burnham Group Regional Development Plan Plan Overview Previous sections of the Plan have reviewed the history of the Re- gion, the Plan s community outreach efforts, community issues and the Re- gion s capacity and demand for development. These sections serve as the historical, factual and perspective foundation for the Regional Development Plan. The Regional Development Plan synthesizes this information into four The Regional Development Plan components: I) The Plan s Guiding Principles, 2) Development Action Plan has four Plan com- Areas, 3) Future Land Use, and 4) Regional Transportation Plan. ponents: 1. The Plan's Guiding • Regional Plan Guiding Principles: This establishes the Plan s over- Principles: arching goals and objectives related to future regional needs, urban 2. Development Action needs, rural needs, neighborhood needs and design/environmental Areas; needs. These Guiding Principles are built on the issues, ideas and vi- 3. Future Land Use: and sions gleaned through the community outreach initiatives as well as the factual foundation established in the Capacity and Demand Analysis. 4. Regional Transporta- tion Plan. ■ Development Action Areas: This defines development timing and/or character, and infrastructure policies by geographic sub -areas of the Region. This is the growth management component of the Plan. Based on the provision of public services and proximity to existing urban ar- eas, the timing of development is addressed. Likewise the capacity of the growth areas to accommodate projected 2030 population and eco- nomic grow is reviewed. ■ Future Land Use: The Future Land Use component identifies and de- fines the specific land uses that are appropriate within the Region; also identified are recommendations on development densities by land use category. The Future Land Use is the Plan s more fine grained aspect of the development picture; after examining the Region s large undevel- oped macro level, this component identifies the more site - specific mi- cro level of appropriate land uses. ■ Regional Transportation Plan: This addresses the future circulation The 'Guiding Principles" system to accommodate growth and ensure the continuation of the set the framework for the street network. This portion of the Regional Plan is a 20 -year transpor- Plan by establishing the tation plan that will be updated in the future to reflect, the Regional De- over- arching goals and velopment Plan s 2030 planning horizon. objectives for the Region's future development, rede- Regional Plan Guiding Principles velopment orpreservation. This is what 'drives" the The Regional Plan s Guiding Principles set the framework for the production of the Plan and Plan by establishing the over - arching goals and objectives for the Region s its ultimate implementa- future development, redevelopment or preservation. This is what drives tion over the long term. the production of the Plan and its ultimate implementation over the long term. Page 29 The Burnham Group Plan - Principles ■ LM Guiding Principles The Guiding Principles The Guiding Principles are divided into five categories: 1) Regional are divided into five cate- Development, 2) Urban Development, 3) Rural Development, 4) Neighbor - gories., hoods and, 5) Design Character and Environmental Quality. These Guiding 1. Regional Development; Principles shape the physical layout of the Plan and the implementation 2. Urban Development; strategies for future growth and development, as well as preservation and rehabilitation of existing urban and rural areas within the Region. 3. Rural Development; 4. Neighborhoods; and, 5. Design Character and Environmental Quality. Regional Development Principle - Encourage efficient and prudent ex- tensions of infrastruc- ture in a manner that considers impacts to both service providers and taxpayers. Regional Development Principles ■ Encourage efficient and prudent extensions of infrastructure in a manner that considers impacts to both service providers and taxpayers. ■ Develop seamless development regulations that consider geo- graphic locations, physical and infrastructure constraints, and desired densities, regardless of jurisdictional boundaries. • The type and intensity of development should conform to the recommendations of the Development Plan and should not be hindered by jurisdictional boundaries. • Identify lands appropriate to accommodate future service and industrial growth. Urban Development Principles Urban Development Prin- ciple - Provide public services and infrastruc- ture to areas of the Re- gion that are environ- mentally and economi- cally suitable for urban growth. Page 30 0 Plan - Principles ■ Provide public services and infrastructure to areas of the Region that are environmentally and economically suitable for urban growth. • Identify environmental and economic factors that make land suitable. • Provide for zoning consistent with the guiding principles. ■ Support a Regional land use plan that maintains a strong and healthy urban core. • Make developing in the urbanized area easier by providing design standards that are flexible and market driven. ■ Clearly define the role of the Metro Districts within the Region. • Provide a Regional land use plan that recognizes the relative importance of Pueblo s Downtown to the Region. ■ Encourage economic planning that is consistent with the Re- gional Plan. • Create a Regional land use plan that reduces the impact of de- velopment on the Region s transportation system. • Adequately address arterial roadway system improvements in advance of development. The Burnham Group automobile. • Provide bus service to major employment centers. • Provide for mixed use and in -fill development that make it convenient for employees to walk or bike to work. • Improve and extend access to the bike paths. • Provide a balance between developing new commercial and industrial sites and maintaining the viability of existing de- ! velopment. i t Rural D evelooment Principle ■ Achieve a balance between urban and agricultural interests. • Make protecting property rights a top priority. Rural Development Principle Preserve agricultural land by promoting development in ar- Region character the • Region's rural areas and eas adjacent to the urbanized area. communities. r • Discourage leap -frog development on prime agricultural land. • Preserve land through purchase or donation of development rights, including landowner education of the estate planning benefits of such conservation actions. • Protect water resources necessary for agricultural uses. ■ Preserve character of the Region s rural areas and communities. • Promote right -to -farm laws. • Promote the benefits of the local agriculture industry. • Encourage subdivisions in rural areas to develop as cluster developments with smaller lots surrounded by large areas of common open space. Design Character & Environmental Quality Principles • Plan growth to enhance the Region s natural and historic char- acter. Design Character and Envi- Determine methods to enhance and preserve the natural a pl me - ronm Enccoo Quality devvelop e l op - - • and historic features (e.g. preservation via conservation 1 m e - easements). � ent that adds to the aes- thetic quality of the Re- Encourage development that adds to the aesthetic quality of the } gion. Region. I i • Create an aesthetic vision that reflects the residents de- sires • Encourage development in existing areas where existing in- frastructure is provided i Page 31 The Burnham Group Plan - Principles ■ Neighborhood Principle - Promote new subdivision developments that are re- flective of Pueblo's older, traditional neighborhoods (mix of housing types and sizes, interconnected streets, neighborhood commercial and office, pedestrian friendly, acces- sible to parks, an abun- dance of street trees, etc.). Page 32 0 Plan - Principles use plan. • Define open space by habitat, agriculture, parks, buffers & wildlife corridors. ■ Provide a Regional Plan that recognizes the importance of the natural environment to the Region s future. i • Identify those lands deemed valuable to be maintained as { part of the natural environment. Neighborhood Principles ■ Promote both historic & economic neighborhood revitalization & preservation. ' Promote new subdivision developments that are reflective of Pueblo s older, traditional neighborhoods (mix of housing types ' and sizes, interconnected streets, neighborhood commercial and office, pedestrian friendly, accessible to parks, an abundance of street trees, etc.). i • Address open space and wildlife corridors in new neighbor- hood development. Update ordinances & building codes to provide more design flexibility. The Burnham Group Development Action Areas The Growth Management Component The Pueblo Region has a vast amount of land area 2400 square miles or 1.5 million acres. Of this, 1915 square miles, or 1.2 million acres, is considered developable (unconstrained by existing development or environ- mental factors). Developable land includes land that is in active agricul- tural/ranching use. This land is not necessarily available for development, but because there are currently few limitations on agricultural/ranching lands being converted to "developed" acres, they were included in the devel- opable or growth capacity acres. Given the Region s size, it is very important to have a Plan to iden- tify the timing for when areas should develop and to articulate the required infrastructure policies. Without a Plan, the demand on City, County, Metro Districts, State and Federal agencies, utility boards and community service organizations to provide services to remote, poorly served, and/or scattered developments can be extremely costly. Without a Plan, ill -sited and ill - suited development greatly impacts the natural environment or the estab- lished agricultural/rural settlement patterns. Full use of the Regional De- velopment Plan will provide the Pueblo Region with greater development predictability as well as efficiency in service delivery. This is particularly critical when considering the on -going trend of people choosing to live out- side of the City in the unincorporated areas. Description of Development Action Areas The Regional Development Plan identifies Development Action Ar- eas, which are geographically delineated development areas identified for future growth. Table 9 lists the six Development Action Areas and the De- velopment Action Area Map shows the geographical locations of these areas. Table 9 - Development Action Areas Developed Urban Area City of Pueblo Developing Urban Area Urban Fringe Developing Metro District Pueblo West Developing Metro District Colorado City Mid -Term Growth Area Long -Term Growth Area Source: The Burnham Group, 2000. Full use of Region Devel- opment Plan will provide the Pueblo Region with greater development pre- dictability" as well as efficiency in service deliv- eiy. The Regional Develop- ment Plan identifies six categories of 'Develop- ment Action Areas.' The Action Areas are geo- graphically delineated development areas identi- fied for future growth. Page 33 The Burnham Group Plan - Action Areas ■ "Developed Urban Area" to. implies "ready for devel- opment - all infrastructure in place" 'Long -Term Growth Area. " implies highly premature for development - no infra- structure in place." A key component of the six Development Action Ar- eas "is the issue of "timing" of development. Timing can range from immediate ("Developed Urban Area " Action Area) to greater than 15 years before development would be appropriate ( "Long Term Urban Development "Ac - tion Area). These areas range from Developed Urban Area to Long -Term Growth Area. The former category implies ready for development all infrastructure in place with the latter implying highly premature for de- velopment no infrastructure in place. Within the City limits of Pueblo (Developed Urban Area) and the City s immediate periphery (Developing Urban Area), much of the infrastructure is in place or the cost for the exten- sion of services is more efficient for local government and utility boards to serve. Portions of the Pueblo West and Colorado City Metro District are categorized as Developing Metro District, which implies short -term suit- ability for urban development, although limited utility services, particularly in Colorado City, will most likely affect development timing. Timing of Development A key component of the six Development Action Areas is the issue of timing of development. Table 10 summarizes the projected timing of the respective Action Areas. Timing or scheduling when these areas will most likely be developed is based on their proximity to existing development and the ease of providing public utilities, primarily sanitary sewer. Thus, identifying the timing of when development will most likely occur makes it possible to plan more systematically for expansion of public services Table 10 - Timing of Development Development Action Areas Developed Urban Area Developing Urban Areas Developing Metro Area Pueblo West Developing Metro Area Colorado City Mid Term Urban Development Long Term Urban Development Timing On -going infill & redevelopment. 1 5 years 1 5 years 1 10 years 5 15 years > 15 years Source: The Burnham Group, 2000 Developed Urban Area - City of Pueblo Existing_ Character The Developed Urban Area encompasses the City of Pueblo s exist- ing city limits and developed urban areas in close proximity to the City. Much of this area is fully developed with water, sewer and roads. This Area covers about three - fourths of the existing development within the Region. The Developed Urban Area can generally be broken down into four Plan- Page 34 ■ Plan - Action Areas The Burnham Group ning Quadrants, which are identified below with their respective neighbor- Developing Urban Area - hood areas. on periphery, in areas that development activity is be- • Northeast Planning Quadrant: Belmont, Eastwood and University ginning to occur or is im- • Northwest Planning Quadrant: Country Club, Downtown, The Grove, Developed Urban Area - Hyde Park, Northside, Skyview, and Ridge encompasses the City of Pueblo's existing city limits • Southeast Planning Quadrant: Eastside and Lower Eastside and developed urban areas stantial building already taking place. There remains, however, additional in close proximity to the • Southwest Planning Quadrant: Aberdeen, Bessemer, Beulah Heights, El City, Camino, Highland Park, Lake Minnequa, Mesa Junction, Regency, South Gate, South Pointe, State Fair, Sunny Heights, and Sunset Park Future character... major mixed use, cultural, gov- Future Character ernmental, low, medium and high density residen- The future character of the Developed Urban Area will be major tial with compatible infill mixed use development (residential, office and commercial), as well as cul- and redevelopment... tural I governmental facilities within the downtown area. Medium to high density residential, as well as detached and attached single - family residen- Will continue to serve as tial will continue to be the dominant land use feature throughout the area. the major retail, office and service center for the Re- The Area will also experience compatible infill and redevelopment with density and intensity of development remaining consistent with established ` lion. patterns of development. The Developed Urban Area will also continue to serve as the major retail, office and service center for the Region. The City of Pueblo s Quadrant Planning, as well as its neighborhood planning will assist greatly in more specifically defining the development, infill and redevelopment character within the Developed Urban Area. Developing Urban Area Developing Urban Area - Existing Character on periphery, in areas that development activity is be- The Developing Urban Area, which lies on the periphery of the De- ginning to occur or is im- veloped Urban Area, includes areas in which development activity is begin- minent ... University Park, Northridge, SouthPointe ning to occur or is imminent. In general, this is an area in which major in- and Southwest Pueblo. -frastructure already exists, for the most part, and in which there is sub- stantial building already taking place. There remains, however, additional infrastructure investment to be put in place before full development can be realized. The Developing Urban Area includes University Park, Northridge, SouthPointe and Southwest Pueblo. Future C h a racter - University Park The University Park Developing Urban Area will continue to be University Park - domi- dominated by suburban residential development with major regional com- nated by suburban residen- mercial service area along Dillon Drive, between Fountain Creek and I -25. tial with major regional High density residential is considered appropriate as a transitional land use commercial ... create cohe- between the commercial and lower density suburban development. Future sive commercial nodes with development should create cohesive commercial nodes with improved pedes- improved pedestrian link - trian linkages and vehicular circulation, including extension of 48th Street ages and vehicular circula- into University Park. Neighborhood commercial service uses should be en- tion. Page 35 The Burnham Group Plan - Action Areas ■ couraged in village setting near the University. Substantial efforts should be made to protect 100 -year floodplain of Fountain Creek. Future Character - Northridge The Northridge Developing Urban Area will continue to develop as Northridge - continue ur- urban residential with high density residential as a transitional land use ban residential with high between the commercial and urban residential development. The Medical density residential as tran- Center and the arterial commercial with its emphasis on the hospitality sitional use ...enhance gate- industry will continue to flourish along I -25 and Highway 50. ways into Pueblo along I -25 and Hwy. 50 and address Future efforts should enhance the arterial corridors as gateways commercial lighting into Pueblo with access management on Highway 50 a major component of impacts, as well as protec- the plan. Lighting impacts associated with commercial development should tion of future right -of -ways. also be addressed, as well as protection of future right -of -ways for Pueblo Boulevard. Cohesive development should be encouraged on land at U.S. 50 and Pueblo Boulevard. Future Character - SouthPointe The SouthPointe Developing Urban Area is an 1800 acre planned development with a 20 30 year build out horizon. Its northeastern bound - SouthPointe - 1800 acre ary is located at the intersection of Pueblo Boulevard and I -25, running mixed use planned devel- west to Lariat Road (Old Burnt Mill Road) and south about 1 miles of the opment with a 20 - 30 year City of Pueblo s current city limits. The northeastern section of SouthPointe build out ... commercial, will be developed as commercial, business park and high density residen- business park and variety of residential densities. tial. The central/south section of the development will be commercial, busi- ness park, high density residential and institutional uses. The third and western section will be developed as eight urban villages with low to me- dium intensity development. Southwest Pueblo - con- tinue to develop urban resi- dential pattern served by Highway 78 ... extension of Bandera Boulevard will have a major impact on area ... need to expand the collector road network. Pueblo West Developing Metro Area - the central part of this Metro District with the majority of the Districts 18,000 residents. Page 36 Future Character - Southwest Pueblo The Southwest Pueblo Developing Urban Area will continue to de- velop in its urban residential pattern served by Highway 78 and the pattern of collector streets. Upgrading and extension of Bandera Boulevard north- west, connecting to Stonemoor Hills and Red Creek Springs Ranch Road will have a major impact on this area. Additional commercial development will be limited to northeast of the existing cemetery (Highway 78). As de- velopment occurs, there will be a need to expand the collector road network. Developing Metro Area - Pueblo West (core area) Existing Character The Pueblo West Developing Metro's Core Area is the central part of this Metro District s 31,000 acres (land area slightly larger than City of Pueblo). This area is the portion of the District that is platted for suburban residential development (43% of the 18,700 platted residential lots) and comprises 21% of the Districts total acreage. In 2000, this was the area where most of the Districts estimated 18,000 residents resided. It also in- ■ Plan - Action Areas The Burnham Group cludes the arterial commercial and light industrial uses oriented near Highway 50. uture Character The future character of the Pueblo 9 est Developing Metro Core Area Pueblo West s (core area) - is continuation of existing suburban development patterns on that area future character a continua - served or planned to be served by sanitary sewer. Arterial commercial and tion of existing suburban light industrial mixed -use development will continue as planned in desig- development served by sani nated areas along Highway 50. As development continues, the trail system tarysewer... arterial com- mercial and light industrial will continue to be developed. It is recommended that a reevaluation of the to continue along Highwky land ownership patterns be examined to determine if a more systematic de- 50. velopment pattern can be attained. Developing Metro District - Colorado City (core area) Existine Character The Colorado City Developing Metro Core Area encompasses much of the Districts 8500 acres and includes the 3000 lots with water and sewer (80% of the 16,800 residential lots are ... acre lots). In 2000, this was the area where much of the Districts estimated population of 1900 people re- sided. This Districts population growth has been much slower than that experienced by Pueblo West, due to its more remote location from major population centers such as the City of Pueblo and Colorado Springs. Colorado City Developing Aletro Core Area - encom- passes much of the District's 8500 acres and includes the 3000 lots with water and sewer Future Character Colorado City's (core area) - future character acontinua- The future character of the Colorado City Developing Metro Core tion of residential develop - Area is a continuation of existing residential development patterns in a ment with development of village-type commercial cen- more suburban -t a setting with limited commercial services developed as yP g p tern ... serving as a southern C... serving village -type commercial centers. The area will serve as a southern gateway gateway to Pueblo County. to Pueblo County and expand its hospitality businesses in proximity to the I -25 interchange. Mid -Term Growth Areas Existing Character The Mid -Term Growth Areas are predominantly undeveloped areas located outside the existing developing urban area. These areas are devel- opable with extension of existing infrastructure, but will generally require major capital investments, such as extensions of existing arterial roads, in- terceptor sewer lines and major water distribution lines if development oc- curs prematurely. This area includes Platteville/EdenfUniversity, Bax- ter /Airport, SouthPointe and Southwest Pueblo. Mid -Term Growth Areas - predominantly undeveloped areas located outside the existing developing urban area ... Platteville /Eden / University, Baxter /Airport. SouthPointe and Southwest Pueblo. Page 37 The Burnham Group Plan - Action Areas ■ Future Character - Platteville/Eden/University The Platteville- Eden - University Mid -Term Growth Area wraps Platteville -Eden- University - around the northern tier of the urban area just north of the University of continuation of arterial Southern Colorado and the existing Northridge area. There will be con - commercial along I -25 ...pro- tinuation of arterial commercial along I -25, primarily along the west side of tection of future rights -of -way the interstate with a small amount, on the eastside. Further commercial de- for Pueblo Blvd. a priority, velopment on the east side will be constrained by the Fountain Creek Flood with access control standards Plain. West of the commercial development will be urban residential devel- made a part of the opment. The western boundary of this Mid -Term Growth Area will be the development process. extension of Pueblo Boulevard for which protection of future rights -of -way will be a priority. Cohesive development should be encouraged along Pueblo Boulevard extension with access control standards made a part of the de- velopment process. To the east of Fountain Creek will be a continuation of suburban residential with neighborhood commercial appropriately sited and designed. Future Character - Baxter /Airport Area The Baxter- Airport Mid -Term Growth Area stretches eastward from Baxter Airport - arterial the City of Pueblo to the Pueblo Airport Industrial Park. Its southern commercial and light Indus- boundary is the Arkansas River and its northern boundary generally High - trial nodes will be developed ways 96 and 50 Bypass. Arterial commercial and light industrial nodes will along U.S. 50. be developed along U.S. 50 with primary access from existing north -south roads. Suburban residential will continue north of the Arkansas River to about 200 feet south of U.S. 50. Future Character - SouthPointe SouthPointe is fully addressed in the Developing Urban Area SouthPointe narrative. Future Character - Southwest Pueblo The Southwest Pueblo Mid -Term Growth Area, located generally be- Southwest Pueblo - continua - tween and on either side of Highways 78 and 96, will see a continuation of tion of the residential with the urban residential patterns seen in the Developing Urban Area, with appropriate neighborhood appropriate neighborhood commercial services. Areas closer to the Arkan- commercial services ... future depends on extension of ma- sas River will be more appropriately developed as suburban residential. jor north-south access. Much of the future development depends entirely on extension of major north -south access, upgrading of Red Creek Springs Road and improvement of general connectivity to neighborhoods to the east Long -Term Growth Area General Character There are two Long -Term Growth Areas, one located northeast of Pueblo around the Baculite Mesa and the other located wrapping around southwest of Pueblo from the Arkansas River to I -25, including portions of SouthPointe. These areas are within the planned sewer and water service Page 38 ■ Plan - Action Areas The Burnham Group areas; however, they are currently served by little, if any infrastructure. Although these areas are within the sanitary sewer and water service ar- eas, provision of these services is in the long -term planning horizon. Future Character - Northeast Pueblo - Baculite Mesa The Northeast Pueblo- Baculite Mesa Long -Term Growth Area will continue the suburban residential development pattern seen in the Univer- sity area. Care should be taken to discourage very low- density 40 -acre hobby farms from developing with limited amounts of public services or improvements. This type of rural development pattern will often preempt an area from suburban development opportunities. As this area develops, reservation of future street rights -of -ways needs to be preserved. Future Character - SouthPointe SouthPointe is fully addressed in the Developing Urban Area SouthPoint narrative. utur Character - Southwest Puebl The Southwest Pueblo Long -Term Growth Area will continue the urban residential development pattern seen in the Southwest Mid -Term Growth Area. As in the Pueblo Northeast - Baculite Mesa Long -Term Area, care should be taken to discourage very low- density 40 -acre hobby farms from developing with limited amounts of public services or improvements. This type of rural development pattern will often preempt an area from suburban or urban development opportunities. As this area develops, reser- vation of future street rights -of -ways needs to be preserved. Long -Term Growth Areas - within the.planned sewer and water service areas, but pro- vision of these services is in the long term planning hori- zon. NE Pueblo- Baculite Mesa - continuation of suburban residential ... discourage loo' density 'hobby farms' that preempt suburban develop- ment. SW Pueblo - continuation of urban residential ... discour- age low- density rural devel- opment pattern from pre- empting urban development opportunities. Future Development Capacity The Development Action Areas' capacity to accommodate future de- velopment is a key test for determining the adequacy of the delineated Ac- Population and employment tion Area boundaries. Population and employment projections through projections through 2030, 2030, indicate that the Pueblo Region will grow by 60,000 people and add indicate the Region will grow 73,000 jobs. This growth will create a demand for 30,000 dwelling units that by 60,000 people and add J gT will consume a projected 21,000 acres. Likewise, the projected job growth 73.000 jobs. will consume a projected 9,000 acres for new commercial, office, industrial, and institutional uses. [See Table 51 Table 11, Capacity of Development Action Areas, indicates that the Development Action Areas have sufficient capacity to accommodate pro- jected growth in residential development (36,780 dwelling units or 123% of the demand). Regarding capacity to accommodate new commercial, office, industrial, and institutional uses, the Development Action Areas can ac- commodate 65% of the non - residential demand. These capacities are based on how the land is currently zoned and much of the land area identified as suitable for urban development is currently zoned agriculture. Appropri- ate rezoning in the future can increase capacities. This will create a demand for 30,000 dwelling units... job growth will consume a pro- jected 9,000 acres for new commercial, office, indus- trial. and institutional uses. Page 39 The Burnham Group Plan - Action Areas ■ Note: The dwelling and employment capacity figures that are within Action Areas located in the City of Pueblo are very conservative given the fact that capacity is based on the e3dsting zoning. Much of the land area within the Developing, Mid Term, and Long Term Action Areas is currently zoned low density A -1 Agricul- ture. Specifically, there are two urban -level developments within the City of Pueblo, Eagleridge and SouthPointe, that have been master planned but have not been rezoned from A-1 to higher urban densities. If developed as planned, they would increase the City of Pueblo s dwelling unit capacity by over 7000 units and provide a number of employment opportunities. Source: The Burnham Group; Fregonese/Calthorp. 2000 Page 40 N Plan - Action Areas The Burnham Group Table 11 - Capacity of Development Action Areas Residential Employment Development Areas Capacity Capacity Development Action Areas (Dwellings) (Jobs) have the capacity under Developed Urban Area 3,590 12,880 existing zoning to accom- modate 123% of the residen- Developing Urban Areas 8,375 15,760 tial demand and 65% of the non - residential demand .. Developing Metro District Pueblo West 6,180 10,090 capacities can be increased by appropriate rezoning in Developing Metro District Colorado City 11,200 3,115 the future. Mid Term Urban Development 6,185 5,325 Long Term Urban Development 1,250 320 Total 36,780 47.490 Note: The dwelling and employment capacity figures that are within Action Areas located in the City of Pueblo are very conservative given the fact that capacity is based on the e3dsting zoning. Much of the land area within the Developing, Mid Term, and Long Term Action Areas is currently zoned low density A -1 Agricul- ture. Specifically, there are two urban -level developments within the City of Pueblo, Eagleridge and SouthPointe, that have been master planned but have not been rezoned from A-1 to higher urban densities. If developed as planned, they would increase the City of Pueblo s dwelling unit capacity by over 7000 units and provide a number of employment opportunities. Source: The Burnham Group; Fregonese/Calthorp. 2000 Page 40 N Plan - Action Areas The Burnham Group Pueblo Regional Development Plan Final liaoptioi, Future Land Use Planning for Future Land Uses is a shift from the macro level of regional planning and managing growth, to the more fine grain site - specific future land uses. The Future Land Use map at the end of the Plan should be used as a guide for making decisions concerning the appropriate- ness of planned development with respect to land use. Defining Future Regional Land Uses The Region s Future Land Uses span a large spectrum of develop- ment categories, from Country Village in Beulah to Urban Mixed Use in the City of Pueblo. Table 12 lists the Future Land Use categories identified in the Regional Plan maps and discussed below. Table 12 - Future Land Use Categories Rural / Ranch Production Agriculture Large Parks, Open Space & River Corridors Country Village Country Residential Suburban Residential Urban Residential High Density Residential Urban Mixed Use Arterial Commercial Mixed Use Office Park/Employment Centers Institutional Mixed Use Light Industrial Mixed Use Industry Special Study Area Rural/Ranch A significant portion of the 1,900 square miles of developable land in the Pueblo Region is projected to remain in the category of Rural /Ranch. This is sparsely populated acreage devoted to traditional ranching opera- tions, large rural land holdings and ranchettes (developed under Senate Bill 35, s 35 -acre exemption from subdivision requirements). Often carved from large former ranch holdings, "ranchettes" have significant impact on the rural landscape. Without public water or paved streets, this increas- ingly prevalent residential land use is having a significant impact on the demand for public services for remote, very low- density areas of the Region. Residential uses should only be permitted on large acreage tracts or in clus- ter developments that maintain an overall low density, while preserving substantial amounts of contiguous open space. Where possible, developers should incorporate environmentally sensitive areas, including the flood - plain, into the development to preserve and protect the natural environ- ment. Zoning in these areas should limit density to 2 units per 35 -acres (al- The Burnham Group The Regions Future Land Uses span the spectrum of development categories, from 'Country Village" in Beulah to `Urban Afixed Use "in the City of Pueblo. A significant portion of the 1,900 square miles of developable land in the Pueblo Region is projected to remain in the category of Rural/Ranch ... de- voted to traditional ranching operations, large rural land holdings and 35 -acre "ranchettes" Page 41 Plan - Land Uses ■ lowing for the sharing of a single well) but encourage clustering to preserve open spaces. The only commercial zoning in these areas should be to allow such agricultural support activities as livestock auctions, feed and grain sales, fertilizer and chemical sales and farm equipment sales and repair; neighborhood commercial services may be appropriate at major intersec- tions along state highways or arterial -level county roads. Residential development in these areas should follow a planned de- velopment process that includes requirements to minimize adverse impacts on production agriculture. Planning techniques such as undisturbed native plant buffers between farm fields and private yards and separate road sys- tems for farm and residential uses should be used to minimize the negative impacts of residential development on continuing agricultural activities. The only commercial zoning in these areas should be to allow such agricul- tural support activities as livestock auctions, feed and grain sales, fertilizer and chemical sales and farm equipment sales and repair; neighborhood commercial services may be appropriate at major intersections along state highways or arterial -level county roads. Large Parks /Open Space Greenways & River Corridors Large Parks /Open Space, Greenways & River Corridors are primar- ily passive recreational uses such as the Pueblo Reservoir, San Isabel Na- tional Forest, south end of the Fort Carson Military Reservation, Bureau of Reclamation and State of Colorado lands, Mineral Palace, City Park, the Honor Farm, existing and planned greenways, and water courses such as the Arkansas River and Fountain Creek. Page 42 E Plan — Land Uses The Burnham Group Production Agriculture Production Agriculture - The Production Agriculture category pertains to prime agricultural prime agricultural land land located on the St. Charles Mesa east of the St. Charles River and located on the St. Charles within the bottomlands adjacent to Fountain Creek, north of Pueblo. These Mesa east of the St. Charles prime agricultural areas are known to possess rich, fertile soils, and the Soil River and within the bot- Conservation Service has classified the soils as being prime for agricultural tom lands adjacent to use. There remain a number of viable farm operations within these areas Fountain Creek, north of despite increasing pressures from suburban development. The protection Pueblo... known to possess and preservation of the prime agricultural lands is the primary purpose of rich, fertile soils. this land use designation. Some on -site sales of products are appropriate including small farm markets, and similar uses. Any of these associated commercial activities should be limited in size to prevent the proliferation of To conserve agricultural commercial development in rural setting. resources, minimal public infrastructure should be Not all lands within these areas may be prime or suitable for agri- made available, especially cultural. Limited residential development should be permitted, particularly public sewer... residential when such development may contribute to the protection of prime agricul- uses should only be permit- tural lands. However, in an effort to conserve agricultural resources and to ted on large lots or in clus- ter developments that decrease the necessity of selling farmland due to high land values, minimal maintain overall low den- public infrastructure should be made available, especially public sewer ser- sity. vices. Residential uses should only be permitted on large lots or in cluster developments that maintain an overall low density. Residential development in these areas should follow a planned de- velopment process that includes requirements to minimize adverse impacts on production agriculture. Planning techniques such as undisturbed native plant buffers between farm fields and private yards and separate road sys- tems for farm and residential uses should be used to minimize the negative impacts of residential development on continuing agricultural activities. The only commercial zoning in these areas should be to allow such agricul- tural support activities as livestock auctions, feed and grain sales, fertilizer and chemical sales and farm equipment sales and repair; neighborhood commercial services may be appropriate at major intersections along state highways or arterial -level county roads. Large Parks /Open Space Greenways & River Corridors Large Parks /Open Space, Greenways & River Corridors are primar- ily passive recreational uses such as the Pueblo Reservoir, San Isabel Na- tional Forest, south end of the Fort Carson Military Reservation, Bureau of Reclamation and State of Colorado lands, Mineral Palace, City Park, the Honor Farm, existing and planned greenways, and water courses such as the Arkansas River and Fountain Creek. Page 42 E Plan — Land Uses The Burnham Group Presently the Fountain Creek greenway system includes 300 acres Large Parks/Open extending from the confluence with the Arkansas River north to the city Space. Greenways & boundary. The Arkansas River greenway system includes 260 acres extend- River Corridors - the ing from the confluence with Fountain Creek to Lake Pueblo State Park. Reservoir. San Isabel Na- The concept of a major river greenway system in the floodplains of the tional Forest, other federal and stare land holdings. Fountain Creek and Arkansas River has been an integral goal of the Pueblo >Ltinera! Palace, Cicv Park. Region since the 1960 s. The goals and objectives include: the Honor Farm, green - • Controlling or limiting of flood damage by coordinating flood control wAys. and the Arkansas River and Fountain Creek. plans with the natural amenities of the greenway system. • Retaining and restoring the existing natural amenities of the rivers. • Developing a trail system that utilizes the drainage pattern of tributar- ies and transportation networks to connect trails, as well as major rec- reation areas. • Using the floodplain in conjunction with other undeveloped lands that make up the greenway to define and shape the urban form of Pueblo. • Satisfying the physical open space needs of the residents. Flood plains should be preserved for park lands • Expanding the greenway system as the City of Pueblo s boundaries in- and greenways for recrea- tional and conservation crease, including the addition of greenways along the Wild Horse Creek use ... properties with this and the Goodnight Arroyo tributaries. designation should be sub - Plans will be to maintain, expand, and connect these areas through ject to zoning designations that require clustering of a series of linear parks, sidewalks and signage to create a regional wide sys- development. tem of parks, recreation and greenways. As developers plan and design new developments, both residential and non - residential, they should be encour- aged to work to preserve and incorporate the natural environment. Flood plains should be preserved for park lands and greenways for recreational and conservation use. Where properties with this designation remain in private hands, they should be subject to zoning designations that, where possible, require clustering of development. This would move development densities out of the flood - sensitive area and preserve these lands as common open space or include them in land required to be dedicated for public passive recreational use. Country Village Through the Pueblo Region s recent 150 year old history, there have been a number of small -town and community -scale settlement areas that have been a part of that history. The Regional Plan categorizes areas like Beulah, Rye, Avondale and Boone as Country Villages. These areas are situated in more remote areas of the Region, providing both neighborhood housing developments and commercial retail support services to serve the day -to -day needs of residents. Country Villages are encouraged to have commercial services of the scale and character that reflect past development. Likewise, the street net- work of future residential development should maintain the traditional grid Country Villages - areas like Beulah, Rye, Avondale and Boone ... commercial services that reflect past development trends and street network that main- tains traditional grid pat- tern. Page 43 The Burnham Group Plan - Land Uses ■ pattern typical of the area s history. As community potable water and sewer systems area expanded, some higher density development may be appropri- ate. Zoning should maintain 1 -acre and larger lots in areas without public sewer and allow densities up to 3 or 4 units per acre where both public sewer and water are available. Neighborhood commercial zoning will be ap- propriate at appropriate intersections of collector roads or collector and ar- terial roads. Each country village should have one or two areas with com- munity commercial zoning. Many Country Villages are adjacent to agricul- tural and forest lands. When considering the extension of services, consid- eration should be given to ensure adjacent agricultural, forest, or other re- sources aren't harmed or placed in jeopardy. Country Residential Country Residential provides large lot development options typically Country Residential may also exist in the City where full public services and infrastructure may or may not be available. These areas would be country in character and may or may not incorporate urban features such as curb, butter and sidewalks. Editor Note: Discussions are on going concerning the development of sanitary sewer for portions of the St. Charles Mesa. If this occurs, the Regional Development Plan should be amended to change the portion of the Mesa planned for sewer to "Suburban Residential. " Suburban Residential The Suburban Residential land use designation identifies residen- tial subdivisions with densities from 1 to 3 units an acre spread along curvi- linear and cul -de -sac streets. While these communities may include various size and price ranges of homes, the primary land use is single - family de- tached homes. Included in this zone is a mix of uses that are complimentary Page 44 Plan - Land Uses The Burnham Group ranging from 1 5 acres in size. This land use is intended to remain more rural in character without public sewer service, but having some suburban amenities such as public water service designed with sufficient capacity for fire protection services. These Country Residential uses are recommended Country Residential - for the one -to -five acre lot development found in northern and southwestern large lot development portions of Pueblo West, St. Charles Mesa immediately east of the City of typically from 1 - 5 acres ... intended to remain pueblo, Baxter /Airport area (residential area) and areas surrounding the more rural in character edges of Colorado City and the Town of Rye. without public sewer ser- vice, but having public Due to poor drainage in some areas such as the Mesa, lot develop - water service ... northern ment should be maintained as low density. Lot clustering that maintains an and southwestern por- overall low density, while preserving substantial contiguous open space is tions of Pueblo West and encouraged in these areas. Country Residential will be planned to include St. Charles Mesa, Baxter, greenways or preserve agricultural land. Where possible, developers should and edges of Colorado incorporate environmentally sensitive areas, including the floodplain, into City and Rye. the development to create unique neighborhoods while protecting the natu- ral environment. Zoning should reinforce the low- density designations for these areas. The only commercial uses in these areas should be small, neighborhood -level convenience centers, located at intersections of collector roads or of a collector and an arterial road. Country Residential may also exist in the City where full public services and infrastructure may or may not be available. These areas would be country in character and may or may not incorporate urban features such as curb, butter and sidewalks. Editor Note: Discussions are on going concerning the development of sanitary sewer for portions of the St. Charles Mesa. If this occurs, the Regional Development Plan should be amended to change the portion of the Mesa planned for sewer to "Suburban Residential. " Suburban Residential The Suburban Residential land use designation identifies residen- tial subdivisions with densities from 1 to 3 units an acre spread along curvi- linear and cul -de -sac streets. While these communities may include various size and price ranges of homes, the primary land use is single - family de- tached homes. Included in this zone is a mix of uses that are complimentary Page 44 Plan - Land Uses The Burnham Group Ws 1_.13 to residential areas such as schools, parks, libraries, golf courses and neighborhood commercial services. Areas identified as Suburban Residential are developments within the City of Pueblo, including the neighborhoods of Belmont, Country Club, portions of Sunny Heights and El Camino. the area around the University of Southern Colorado, as well as within Pueblo West (eastern area of Urban Residential - smaller lots on sanitary sewer). predominantly within the Suburban Residential will be served by water and sewer services. Suburban Residential - New Suburban Residential will be planned to include neighborhood parks served by water and sewer and greenspaces that provide links with the Region s parks and recreation. services at densities of 1 The number of cul -de -sacs will be minimized, emphasizing multiple connec- to 3 units per acre ... Bel - tions through and between subdivisions. mont, Country Club, por- tance. tions of Sunny Heights Most zoning in suburban residential areas will be for single - family and El Camino, area around USC, and core residential uses at densities of 1 to 3 units per acre. Zoning for duplexes, area of Pueblo West. garden apartments and small office buildings may be allowed along arterial roads passing through these areas, although access to such properties should generally be from separate collector roads. Neighborhood commercial zoning will be appropriate at some intersections of two collector roads or of a collector and an arterial road. Although convenience stores with gasoline and full services may be appropriate at some locations along arterial roads, some neighborhood business areas should be exclude gasoline sales, alcohol sales and drive - through window service of all types. Zoning for institutional uses, such as religious institutions, schools, group -homes and day -care cen- ters will be found in these areas, but these institutional uses may be subject to additional standards, requiring location along collector or arterial roads, buffers from single - family homes, landscaping of parking areas, spacing requirements and/or other standards developed as part of a zoning ordi- nance update. Urban Residential The Urban Residential neighborhoods are found predominantly within the city limits of Pueblo and the urbanizing areas in the City s im- mediate periphery. These neighborhoods have a mixture of housing types and neighborhood commercial services. They are generally located on a grid Urban Residential - roadway network that interconnects a large portion of the urban area. The predominantly within the existing mixture of housing types that range from single family detached city limits of Pueblo and . housing to duplexes and multi - family housing will be continued with em- its urbanizing periphery phasis on maintaining the existing housing stock and in -fill development. ... with densities from 4 to Where appropriate, neighborhood scale commercial services will be created 7 units per acre ... often to provide the necessary day -to -day needs of residents within walking dis- reflect the traditional ur- tance. ban residential layout used in the early devel- Development in these Urban Neighborhoods is typically at densities opment ofPueblo. of 4 to 7 units per acre and often reflects the traditional urban residential layout used in the early development of Pueblo. Their tree -lined streets, front porches and square blocks frequently identify urban neighborhoods. This type of development is also seeing a comeback in newer subdivisions. Page 45 The Burnham Group Plan - Land Uses ■ Pueblo Regional Development Plan - Final Adoption As infill development begins to occur, the urban residen- tial form will be continued ... emphasis on maintaining the existing neighborhood parks and investing in the existing housing stock, and developing compatibility standards for new in -fill construction. High Density Residential - multiple family housing complexes, having densities of 8 to 12 units an acre pri- marily found within the Minnequa. Belmont and Northridge areas of the Pueblo and within Pueblo West along Highway 50. Page 46 As infill development begins to occur, this urban form will be continued. This will help maintain the unique character of these neighborhoods. Em- phasis should be placed on maintaining the existing neighborhood parks and investing in the existing housing stock, and developing compatibility standards for new in -fill construction. Urban Residential neighborhoods are typically found within the City of Pueblo such as Mesa Junction, Eastside, Bessemer, Northside, Ab- erdeen, State Park, and Hyde Park. As the City of Pueblo expands to the north, south (SouthPointe) and southwest, a continuation of these Urban Residential Areas should be continued. Interconnected neighborhoods, sani- tary sewer and neighborhood parks should be an integral part of the development. Zoning in urban residential areas will include a variety of zones for residential, institutional, office, service and commercial uses. Zoning in many areas should remain focused on single - family homes, with minimum lot sizes consistent with existing patterns of development. Zoning for du- plexes, garden apartments and small office buildings may be allowed along collector and arterial roads, including some once -local roads that currently carry traffic loads making them function as collectors or arterials. Neighborhood commercial zoning will be appropriate at some intersections of two collector roads or of a collector and an arterial road. Although convenience stores with gasoline and full services may be appropriate at some locations along arterial roads, some neighborhood business areas should be exclude gasoline sales, alcohol sales and drive- through window service of all types. Zoning for institutional uses, such as religious institutions, schools, group -homes and day -care centers will be found in these areas, but these institutional uses may be subject to additional standards, requiring location along collector or arterial roads, buffers from single - family homes, landscaping of parking areas, spacing requirements and/or other standards developed as part of a zoning ordinance update. Zoning for live -work spaces, allowing a broader range of home occupations than in other areas, should be considered along some collector and arterial streets. Residential uses should be allowed above and behind retail and office uses throughout these areas. High Density Residential There are several areas within the City of Pueblo where High Den- sity Residential land use is located. These multiple family housing com- plexes, having densities of 8 to 12 units an acre, are primarily found within the Minnequa, Belmont and Northridge areas of the City of Pueblo and within Pueblo West along Highway 50. This land use includes townhomes, rowhouses and apartment buildings. Zoning for these areas should encour- age multiple family housing complexes, with appropriate buffers and set- backs to maintain reasonable compatibility with lower density development nearby. It is anticipated that High Density Residential be well integrated into the neighborhood fabric in scale, street network and neighborhood parks. Zoning for adjoining lands may include zoning for community -level retail activities and for offices. ■ Plan - Land Uses The Burnham Group - lit --U'' R Urban Mixed Us Urban Mixed Use is identified as a land use appropriate for the City of Pueblo within the traditional Downtown area. It is supported by the presence of the HARP (Historic Arkansas Riverwalk of Pueblo), the retail corridor of Union Avenue and the Depot, as well as other existing retail and office development found throughout the Downtown. Urban Mixed Use con- sists of a mixture of office, retail, higher- density residential and public uses that tend to spur redevelopment of underutilized commercial and office buildings as well as former downtown industrial sites. The Urban Mixed Use is found along Union Avenue and the HARP and northward toward the Urban Mixed Use - land Pueblo County Courthouse and southward to include Mesa Junction. The use appropriate for City of Lakeside Drive area south of the Downtown and parts of Northern Avenue, Pueblo within the tradi- also have been identified as Urban Mixed Use. tional Downtown area ... supported by presence of Within the Urban Mixed Use, retail uses are emphasized on the first HARP, Union Avenue, the Depot, and existing down - floor of all buildings to maintain a high activity level; at least along selected town retail and office. corridors, zoning should require retail or other active uses on the first floor along pedestrian routes. Office and residential apartments are encouraged on the upper floors in multi -story buildings. Some higher - density, free- standing residential may also exist in this land use category. In addition, all efforts will be made to maintain the unique character of buildings through- out the area and any new development will be built in a style compatible with the surrounding area. The grid pattern street network and building setbacks created by existing buildings will be maintained. Floor area ratios, the relationship of building square footage to the size of the lot, of non- residential development will be encouraged to maintain a ratio of 1.5. Resi- dential densities will be encouraged to reach higher densities than found in typical suburban settings; densities encouraged will reach upwards of 16 units per acre. These suggested densities encourage pedestrian- oriented development patterns reflective of more historic development within the urban area of the Region. Zoning in these areas should provide for a full Arterial Commercial range of commercial, office and selected service uses. Knowledge -based in- Mixed Use - includes dustries should be encouraged in these areas, but assembly and warehous- large commercial areas ing areas should be discouraged because of their generally anti - pedestrian and corridors along I -25. character. Highway 50, Pueblo Boulevard. Highway 47, Arterial Commercial Mixed Use Santa Fe Drive, Prairie Avenue and Northern Arterial Commercial Mixed Use includes the large commercial areas Avenue. and corridors found along key sections of I -25, portions of Highway 50, Pueblo Boulevard, Highway 47, Santa Fe Drive, Prairie Avenue and North- ern Avenue. While the primary focus of these areas is retail sales and per- sonal services, some office space is intermixed. This land use category does not prohibit any compatible land use other than heavy industrial uses. Arte- rial Commercial Mixed Use, located along major routes such as I -25 and Highway 50, is designed more for the regional retail market segment, while Arterial Commercial Mixed Use along other transportation arteries is more geared to community -level shopping and services. Zoning in these areas should provide for hotels, motels, large restaurants and other hospitality Page 47 The Burnham Group Plan - Land Uses ■ uses, as well as highway- oriented auto and truck services and both commu- nity- and regional -scale commercial activities. The geographic boundaries of Arterial Commercial Mixed Use Geographic boundaries of should be controlled to limit uncontrolled strip expansion of commercial Arterial Commercial development along arterial roadways, and instead concentrate on develop - Mixed Use should be con- ing activity nodes. The scale of the commercial development will be reflec- trolled to limit uncon- tive of the service market area (regional versus community). Developers will trolled "strip" expansion be encouraged to develop creative Arterial Commercial Mixed Use that does of commercial develop- not place focal emphasis on the parking areas but on the commercial uses ment along arterial roadways ... instead con- themselves. This can be accomplished by placing some parking to the side centrate on developing or behind buildings and utilizing internal landscaping throughout the park - activity nodes. ing areas. Signage and lighting should be placed to ensure visibility without being excessive. Office Park/Employment Center Institutional Mixed Use Institutional Mixed Use is a category often referred to as public and semi - public such as hospitals, governmental complexes, the State Fair Grounds, the University of Southern Colorado and Pueblo Community Col- lege, high schools, cemeteries, etc. Also included in this designation are Page 48 N Plan — Land Uses The Burnham Group Office Park /Employment Center is a future land use category that is Office Park I Employ- planned with potential for the location of major economic -base employers, ment Center - is a future such as the North and South Pueblo Gateways, D.O.T Test Track, Former land use category that is Army Depot, Airport Industrial Park, and Pueblo West Industrial Park. planned with potential These may be developed as mixed -use office parks, manufacturers and re- for the location of major economic -base employers, gional distribution and service centers. Some of these lands are more fully such as the North and developed than others, but realization of the full potential of these sites will South Pueblo Gateways, depend, in most cases, on significant additional investment in infrastruc- D.O.T Test Track, Former ture; an exception to this is the Airport Industrial Park. Zoning in employ - Army Depot, Airport In- ment centers should allow office uses, warehousing, assembly and light dustrial Park, and Pueblo manufacturing uses. Supporting commercial uses, including restaurants, West Industrial Park. convenience stores and service stations, should be allowed within the desig- nated areas but typically not along the major arterials providing access to the areas; allowing development of a strip of auto - oriented uses at the en- Planned Office Park ar- trance to such an area may create practical, economic and visual barriers to eas ... Porter Draw /Eden and SouthPointe inter- economic development within the area. changes ... developed in a "corporate campus "style Office Park is a future land use category that is planned for two dis- with substantial land- tinct gateway areas into the City of Pueblo, the northern gateway (Porter scaping and open space to Draw/Eden Interchanges on I -25) and the southern gateway (near South - create an attractive en- Pointe along I -25). It is envisioned that these two areas of Office Park land trance gateways. use will be developed in a corporate campus style with substantial land- scaping and open space to create an attractive image. Activities in these areas may include some light assembly and light warehousing, but where such uses exist, there should be separate circulation systems for trucks and autos. Supporting commercial uses should be allowed on the same terms as in the Employment Centers, discussed immediately above. Institutional Mixed Use Institutional Mixed Use is a category often referred to as public and semi - public such as hospitals, governmental complexes, the State Fair Grounds, the University of Southern Colorado and Pueblo Community Col- lege, high schools, cemeteries, etc. Also included in this designation are Page 48 N Plan — Land Uses The Burnham Group support uses for such activities as medical offices, lodging and restaurants. Industry - areas strategically The intention of this category is to allow institutions room to expand while Light Industry Mixed Use - preventing unwanted encroachment into neighborhoods. It is encouraged includes the Airport Indus - that as new urban and suburban development occurs, that these Institu- Institutional Mixed Use - tional Mixed Uses be incorporated into the overall development pattern. public and semi-public uses Site design that ensures site compatibility with adjacent development is such as hospitals, governmen- critical with this category of land use referred to as Institutional Mixed Use. tal complexes, the State Fair concrete plants to areas designated by the zoning district map; many new Grounds, the University of Zoning to allow such institutional uses should generally be applied Southern Colorado and to an area only upon the request of an institutional landowner. In most Pueblo Community College, high schools, cemeteries, etc. cases, zoning to allow major institutional uses should be expanded into to minimize the impacts. residential areas in full -block increments, limiting the situations where ma- jor institutions and residences will exist on the same block. Where institu- tional uses adjoin residential areas, parking and loading areas generally should be kept interior to the institutional use; where such activities occur on the periphery, they should be buffered by significant landscaping and, in appropriate cases, fences and walls. Licht Industry Mixed Use Light Industry Mixed Use, such as manufacturing, assembling, re- Industry - areas strategically search and development provide tax revenues and jobs for the Region. Light Industry Mixed Use - These uses will be continued and expanded upon in a planned manner so as includes the Airport Indus - to minimize the impact on the public infrastructure. Light Industry Mixed trial Park and its environs. Use areas include the Airport Industrial Park and its environs, Pueblo West Pueblo West Industrial Park. Industrial Park, an area east of Runyon Park near the Arkansas River and an area east of Runyon Park in the south of Pueblo along I -25. near the Arkansas River and concrete plants to areas designated by the zoning district map; many new south of Pueblo along I -25 Light Industry Mixed Use will be located within planned industrial ••• when potential land use parks and will offer some commercial and office services. This use will not conflicts occur, buffering and landscaping will be provided include industrial processes that emit significant smoke, noise or odors, or to minimize the impacts. handle hazardous materials. Wherever possible, this use will be located away from residential uses. When potential conflicts between land uses oc- cur, buffering and landscaping will be provided to minimize the impacts. Like residential growth, new industrial growth should be located in areas to best preserve surrounding agricultural uses and the natural environment. Industry Industry - areas strategically located near rail and high - Areas reserved for Industry are strategically located near rail and ways ...designated sites also highways. The designated sites also take advantage of existing brownfields take advantage of existing (older industrial sites) such as the steel mill. This land use classification is brownfields (older industrial sites) such as the steel mill. also used to describe wastewater treatment facilities. Zoning should limit foundries, refineries, petroleum storage, large assembly, and asphalt and concrete plants to areas designated by the zoning district map; many new heavy industrial uses may be made subject to special permit or other review processes rather than permitted by right. Page 49 The Burnham Group Plan - Land Uses ■ ■3.�_�� Pueblo Regional Illevelopment flan - Final Adoption =_ IF Special Develonment Area Special Development Areas have been identified on the Future Land Use Map. These are areas where there appear to be multiple possibilities Special Development for development as well as significant care to be taken with the develop - Areas - undeveloped ment. Most of these areas will be developed through Master Development lands with significant Plans created either by the developer or in cases of publicly owned land, the development and /or open City and the County. space potential in strategic locations ...need for care- Special Development Areas are undeveloped lands with significant ful, location - specific plans development and/or open space potential in strategic locations that suggest for infrastructure and the need for careful, location - specific plans for infrastructure and private master planned develop- development. Master plans should be prepared prior to development or re- ment. development occurring. Future Land Use Intensities A key part of the character of Future Land Uses is the intensity (or density) at which development occurs. Table 13 provides a summary of rec- ommended land use intensities. These intensities should be considered as a guide for future development, not as absolutes. Table 13 - Future Land Use Intensities Land Use Categories Typical Density Pueblo Pueblo West CO City County / Towns Rural/Ranch 1 unit(35 acres ✓ Production Agriculture 1 unit/35 acres ✓ Large Parks/Open Space N/A ✓ ✓ ✓ ✓ Country Residential 1 unit/acre ✓ ✓ ✓ Rye Country Village 1 unit/acre ✓ Suburban Residential 1 -3 unita/acre ✓ ✓ ✓ Urban Residential 4 -7 units/acre ✓ ✓ ✓ High Density Residential >7 units/acre ✓ Urban Mixed Use (MXD) 16 units/acre 1.5 FAR ✓ Arterial Commercial MXD .50 FAR ✓ ✓ ✓ ✓ Office Park/Employment Center .25 FAR ✓ ✓ Institutional MXD .50 FAR ✓ ✓ Light Industrial MXD .25 FAR ✓ ✓ ✓ ✓ Industrial .25 FAR ✓ ✓ Special Development Area TBA FAR Floor Area Ratio (ratio of building area to lot size) ✓ Land use can be found within this geographical area Source: The Burnham Group, 2000 Page 50 ■ Plan — Land Uses The Burnham Group Pucblo Regional Development Plan - Final cldol�tioi Regional Transportation Plan Transportation planning influences, and is influenced by, many other forms of planning— especially those which affect potential and future land uses. Similarly, it must deal with the many uncertainties inherent in the forecasts, projections, and visions of the future that prevail at any single point in time. Because of these unknown and sometimes unknowable issues, transportation planning in the Pueblo area is designed as a continuous and ongoing process. Regional Transportation Goals and Objectives As part of the Pueblo Region s transportation planning process, a set of Transportation Goals and Objectives were developed. Although these goals and objective were developed for transportation planning purposes, it is clear that they are highly supportive of the overall vision contained in the Regional Development Plan s Guiding Principles. The Transportation Goals enumerated below address Mobility, Land Use and Livability, key compo- nents of the Guiding Principles. Mobility Goal Plan, develop and maintain a safe and efficient multi -modal transportation system to preserve and enhance the present and future mobility needs of the Pueblo Region. Objectives 1. Maintain, protect and improve the safety for the multi -modal trans- portation system users, 2. Ensure interconnectivity between major activity centers by developing and promoting mode transfer points (e.g., park -and- ride facilities, bike - on -bus, etc.) to enhance the use of alternative modes within the inter - modal transportation system, and 3. Minimize traffic congestion by efficiently using the existing multimo- dal transportation system by emphasizing transportation system man- agement and operations techniques and travel demand management strategies to improve the passenger carrying capacity of the network. Land Use Goal Coordinate the interaction of transportation systems and land use planning to promote orderly expansion of the multi -modal transportation system serving the Pueblo Region. Objectives 1. Plan, build, and manage the capacity of the multi -modal transporta- tion system to be consistent with approved land use and master plans, Transportation planning influences. and is influ- enced by, many other forms ofplanning— espe- cially those which affect potential and future land use ... transportation planning in the Pueblo area is designed as a con- tinuous and ongoing proc- ess. Set of Transportation Goals and Objectives were developed as part of the Region's transportation planning process ... they address Mobility, Land Use and Livability" Page 51 The Burnham Group Plan - Transportation ■ During 1999, PACOG en- gaged TranSystems Corpo- ration to prepare the Pueblo Regional Trans- portation Plan - Year 2020 that identified major and minor transportation corridors and transporta- tion modes for the next twenty years. The Transportation Plan addresses travel demand, streets and highways, pub -. lic transit, bicycle and pe- destrian mobility, aviation, and freight movement... it was adopted by PACOG in January 2000. Eden Interchange Study - addressed the alignment of the northerly extension of Pueblo Boulevard and a potential connection to In- terstate 25 between Eagleridge Drive and Bragdon. Page 52 2. Develop a rational relationship between transportation facilities and adjacent land uses through comprehensive planning, design, implemen- tation and appropriate maintenance, 3. Require advance right -of -way reservation, corridor preservation, and dedication for transportation facilities through local government land development process and other means, 4. Provide regional multi -modal access for major activity centers; and 5. Encourage development patterns that facilitate transit use and reduce the rate of growth in region -wide vehicle -miles traveled. Livability Goal Create, enhance and maintain a safe, healthful and aesthetically pleasing living environment by integrating transportation mobility needs with those of the citizens within the Pueblo Region. Objectives 1. Minimize air, noise and other adverse transportation related impacts on residential areas, 2. Protect neighborhood integrity by minimizing the volume of traffic that is generated outside of a neighborhood from traveling through the neighborhood, 3. Preserve and enhance the aesthetics of the existing transportation corridors, and 4. Provide for the safe interaction between all modes of transportation and the citizens of the Pueblo Region. Regional Transportation Plan Elements During 1999, parallel to the development of the Regional Develop- ment Plan, PACOG engaged the services of TranSystems Corporation to prepare the Pueblo Regional Transportation Plan - Year 2020 that identi- fied major and minor transportation corridors and transportation modes for the next twenty years. The Transportation Plan addresses travel demand, streets and highways, public transit, bicycle and pedestrian mobility, avia- tion, and freight movement. It was adopted by PACOG in January 2000; the detailed results can be found in the Pueblo Regional Transportation Plan, Year 2020 Final Report. Since the adoption of the Regional Transportation Plan, the following major modifications have taken place: Pueblo Boulevard Extension Study In 2000, the Eden Interchange Study was completed by the Colo- rado Department of Transportation. This study addressed the alignment of the northerly extension of Pueblo Boulevard and a potential connection to Interstate 25 between Eagleridge Drive and Bragdon. This study provides transportation connectivity between Pueblo West Metro District and I -25. N Plan - Transportation The Burnham Group Pueblo Regional Development Plan - Finallldoption F � ' �— Northeast Quadrant Transportation Stud Kimberly -Horn and Associates completed a major transportation study of Pueblo County s northeast quadrant in year 2000. This study, the Northeast Quadrant Transportation Study, identified four potential east - west corridors that could provide access to the Pueblo Chemical Depot (which is now planning major chemical demilitarization activities) and seven north -south corridors between I -25 and the Depot. This overlay of transportation corridors form a basic transportation grid for the northeast quadrant. I -25 Corridor Stud Northeast Quadrant Transportation Study - identified four potential east -west corridors that could provide access to the Pueblo Chemical De- pot. In 2000, a major study of the I -25 Corridor through the center of the Cit y gun of Pueblo was be by CH2M Hill. This was a cooperative venture In 2000, the I - 25 Corri with CDOT, the City of Pueblo, Pueblo County, and several ad -hoc Commu- St dor udy was begun by dor St Hill... cooperative nity Working Groups. This ongoing study, which is also developing a coun- venture with CDOT, the tywide transportation model, is using the same base data, projected land City of Pueblo, Pueblo uses, and socio- economic forecasts, which were developed for the Regional County, and several ad- Development Plan. This will assure that, to the maximum extent possible, hoc Community Working that the assumptions about the future will be consistent and coordinated for Groups. all phases of the current planning process, including this major transporta- Plan. tion facility. Roadwav Corridor Preservation Plan (RCPP In 2000, the Roadway Corridor (and right -of -way) Preservation Plan (RCPP) for the Pueblo Region was adopted by PACOG as a major compo- In 2000, the Roadway nent of the 2020 Regional Transportation Plan. The RCPP was a coopera- Corridor Preservation tive effort between local transportation officials and the Regional Develop- Plan for the Pueblo Be- ment Plan consultant team who provided frequent updates with respect to gion was adopted by proposed land uses and development criteria. In the next year, the RCPP is PA COG as a major com- expected to be incorporated into ordinances and standards within the sub- ponent of the 2020 Re- division regulations in both the City and the County. It will also serve as gional Transportation the future network for the transportation model being developed for the I -25 Plan. project discussed above. Identified future roadway corridor rights -of -way that are desirable to be preserved are shown on the accompanying Devel- opment Action Areas Map and the Future Land Use Plan Map. Integrating Transportation into the Regional Plan As can be seen from the above discussion, there has been and con- tinues to be a constant interaction between the various groups, firms, and agencies that are engaged in the development of various plans for the future of the Pueblo Region. Through this interactive process, the complex rela- tionships among existing and proposed land uses and existing and proposed transportation facilities are constantly examined and modified where neces- sary until each of the components best fits with all of the others. The most obvious example of this can be seen in the fact that the major free - ways/expressways/highways, major arterial streets/roads, minor arterial streets/roads, and collector streets/roads shown on the Regional Develop- Page 53 The Burnham Group Plan -Transportation ■ �T Future land use changes W11 be incorporated into the transportation model- ing and planning process and, reflexively, changes in transportation plans will be incorporated into re- gional development plan- ning. development stan- dards, and zoning deci- sions. Page 54 went Plan are located in the same corridors and with the same transporta- tion characteristics as the Roadway Corridor (and right -of -way) Preserva- tion Plan. Similarly, the land uses which are projected in the Regional Devel- opment Plan are being used for the countywide transportation model being developed through the I -25 Corridor project. The results of that model de- velopment and the model itself will, in turn, become an important transpor- tation- planning tool for PACOG, local governments and districts within the PACOG Region. Future land use changes will be incorporated into the transportation modeling and planning process and, reflexively, changes in transportation plans will be incorporated into regional development plan- ning, development standards, and zoning decisions. To the extent that both land development and transportation planning remain tightly interwoven in the future, the process will truly be deserving of the term regional plan. 0 Plan - Transportation The Burnham Group Pueblo Regional Development Plan - Final Adoptiori w:_ T' Plan Implementation The long -term success of the Pueblo Regional Development Plan The long -term success of the Pueblo Regional Devel- rests largely on the techniques and programs selected by the Region to im- o t Plan rests larger} plement the Plan. A significant amount of work has been completed that techniques on n the and pro - the sets forth the Region's anticipated demand and land absorption needs for grams selected by the Re- new residential, commercial, industrial, recreational and educational land gion to implement the uses through year 2030. Likewise, information has been collected that pro- Plan. vides the Region with an assessment of the Region s capacity to accommo- plementation is to provide date additional growth both from a land use and an environmental perspec- a framework ofpotentially tive. The Guiding Principles, Development Action Areas and Future Land suitable techniques for im- Use address the overarching goals and objectives of the Plan, timing of de- plementing the Regional Development Plan. velopment, infrastructure policies and appropriate land uses throughout the Region. The purpose of Plan Implementation is to provide a framework of potentially suitable techniques for implementing the Regional Development Plan. Implementation Techniques This section provides an assessment of various land use implemen- tation techniques or programs grouped into three major categories: Infra- structure Techniques, Regulatory Techniques, and Miscellaneous Tech- niques. Each of these techniques or programs should be considered by the Region as a possible approach for implementing the Regional Development The purpose of Plan Im- Plan. The techniques or programs discussed are: plementation is to provide a framework ofpotentially • Infrastructure Techniques suitable techniques for im- • Adequate Public Facilities Program plementing the Regional Development Plan. • Capacity Allocation Program • Cost Recovery Program • Targeted Infrastructure Investment • Impact Fees • Special Districts • Priorities for Infrastructure • Regulatory Techniques • Minimum Zoning Density Standards • Zoning Regulation Update or Amendments • Subdivision Regulations Update or Amendments • Residential Cluster Zoning • Overlay Zones Page 55 The Burnham Group Implementation ■ ■ Miscellaneous Implementation Techniques • Open Space Land Acquisition Program • Downtown Business District Enhancement Programs • Intergovernmental Agreements • Redevelopment Authority Capacity Allocation Program Capacity Allocation Pro- A Capacity Allocation Program (CAP) is a type of growth manage - gram - a type ofgrowth ment that allocates scarce capacity in sewer, water or other public systems management that allocates to new users in accordance with policies that implement the adopted land scarce capacity in sewer, use plan. This program differs from an "Adequate Public Facilities" (APF) water or other public program primarily in how it uses "allocation" of public services to manage systems to new users in growth. Local government predetermines priority areas within its jurisdic- accordance with policies tion where it wishes to see growth and development occur, as has been done that implement the adopted in this Plan. land use plan. Through a CAP, a community directs growth into areas that it con- siders its high priority growth sectors. This growth management tool puts Page 56 ■ Implementation The Burnham Group Public Facilities Financing Techniques Adequate Public Facilities Program An Adequate Public Facilities (APF) program requires that new de- velopment be approved only when and if adequate public facilities will be Adequate Public Facili- available to serve it at the time of actual development. In some states this is ties - requires that new called a concurrency requirement, because it provides standards for ensur- development be approved only when and if adequate ing that new facilities are available concurrently with the demands for public facilities will be those facilities created by new development. Basic APF criteria have long available to serve it at the been part of Colorado s Senate Bill 35, which governs county subdivision time of actual development regulations; unfortunately, those criteria are often implemented loosely. ... often called a "concur - rency "requirement. be- The purpose of an APF program is to ensure the availability of ade- cause it provides standards quate public facilities for new development. It ensures that the off -site im- for ensuring that new A- pacts of development are considered as part of the development approval cilities are available "con - process. It also ensures that new development will not negatively reduce currently" with the de- current or future infrastructure levels of service. mands for those facilities created by new develop- ment. An APF can be implemented separately or go hand -in -hand with the "Capacity Allocation Program" discussed below. However, an important dif- ference between the programs is in the area of "control." In an APF, the de- veloper must demonstrate that there are adequate off -site public facilities to accommodate the proposed development. If there are not, then the devel- oper cannot go forward with the development until the developer provides the facilities. With the Capacity Allocation Program, the City or County "al- locates" certain capacities to respective geographical areas and establishes when the City or County will provide those capacities or when it is appro- priate for the development community to provide them. Capacity Allocation Program Capacity Allocation Pro- A Capacity Allocation Program (CAP) is a type of growth manage - gram - a type ofgrowth ment that allocates scarce capacity in sewer, water or other public systems management that allocates to new users in accordance with policies that implement the adopted land scarce capacity in sewer, use plan. This program differs from an "Adequate Public Facilities" (APF) water or other public program primarily in how it uses "allocation" of public services to manage systems to new users in growth. Local government predetermines priority areas within its jurisdic- accordance with policies tion where it wishes to see growth and development occur, as has been done that implement the adopted in this Plan. land use plan. Through a CAP, a community directs growth into areas that it con- siders its high priority growth sectors. This growth management tool puts Page 56 ■ Implementation The Burnham Group the community in the "driver's seat" as to when and where growth will oc- cur. This approach leads to a more systematic expansion of a community's urban area and reduces the likelihood of growth occurring in a completely random pattern based on individual development choices. It also provides the community more predictability in determining future facility needs and capacities. A Capacity Allocation Program can be used in tandem with an APF. Once a certain sewer or water capacity is "allocated" to a specific geographic area, the APF could require that development not occur in unserved areas until the developer demonstrates that he or she can provide not only ade- quate off -site water and sewer facilities, but also meet other adequate facil- ity requirements such as roads, parks and fire protection. Cost Recovery Program Capacity Allocation Pro- grams can be used in tan- dem with Adequate Public Facilities ...once infra- structure capacity is allo- cated" to a specificgeo- graphic area, the jurisdic- tion could require develop- ment not occur until the developer demonstrates adequate off -site facilities can be provided. A Cost Recovery Program is a payback fee or site - specific impact fee from which the revenues are used to reimburse a third party (usually an- Cost Recovery Program - other developer) which paid the cost of extending sewer and/or water service a payback fee or site - necessary to serve the new development. It is easiest to apply to sewer and specific impact fee from water systems but is occasionally used for major road or stormwater which the revenues are improvements. used to reimburse a third party which paid the cost of One purpose of such a fee is to provide equity in allocating the costs extending sewer and /or of expanding systems by ensuring that all developments that benefit from water service necessary to an extension contribute to the cost of that extension. Another purpose is to serve the new development. provide developers or local government with an incentive to extend major water and sewer lines by providing them with a reasonable opportunity to recover part of the costs of that extension. Targeted Infrastructure Invest Local governments once actively built major roads and extended sewer and water lines in advance of need. Today, most local governments depend on developers to take the initiative to expand infrastructure to meet growth- related needs. Targeted Infrastructure Investment Policies require the city, county and other providers to get back into the business of provid- ing some infrastructure in advance of need but to do so in targeted areas, carefully coordinated with other service and facility providers. Impact Fees An impact fee is an exaction that requires that a developer pay a roughly proportional share of the cost of expanding those major off -site pub- lic facilities that will absorb the impacts of the project. Impact fees are commonly used for roads, water, sewer, stormwater and parks; sewer and water connection fees that exceed the costs of physical connections and in- spections are essentially impact fees, although they actually predate most impact fees and often are called something else. Targeted Infrastructure Investment Policies - require the city, county and other providers to provide some infrastructure in ad- vance of need —but to do so in targeted areas. Impact Fee - an exaction that requires that a devel- oper pay a roughly propor- tional share of the cost of expanding those major off- site public facilities that will absorb the impacts of the project. Page 57 The Burnham Group Implementation ■ Unwanted. Some infrastructure will simply be inconsistent with the plan. This would be infrastructure that encourages a type of develop- ment inconsistent with that reflected on the Development Action Areas map or that encourages development in floodplains or other undesirable areas. Local governments should not approve any plans showing such in- frastructure, nor accept its dedication. Recording instruments should be considered to warn purchasers that the public will not maintain their roads or other infrastructure. Regulatory Techniques Minimum Density Standards The City and County could establish minimum densities, as well as the traditional maximum densities, in selected urban, suburban and ex- Page 58 ■ Implementation The Burnham Group Special Districts Special Districts under-Colorado law can range from simple taxing districts affecting a limited geographical area within a larger jurisdiction, to Special Districts - pro- specialized units of government (such as water and sewer districts) to full - vide the Region with a fledged metropolitan districts, such as those that serve Pueblo West and mechanism for funding Colorado City. area - specific improvements desired by some areas of the Region while not seen Special Districts provide the Region with a mechanism for funding as priorities in other areas. area - specific improvements desired by some areas of the Region while not seen as priorities in other areas. An example of this would be a subdivision currently served by septic tanks that desires to be served by public sewer. Another type of improvement district could be created for the Downtown Business District for construction of a variety of improvements. Priorities for Infrastructure The city and county should each adopt plans and policies that place future inventory in four categories: Infrastructure Priori- ties: High priority. Infrastructure in this category would include infrastruc- High priority - infra- ture that is already needed or infrastructure that is part of the targeted structure that is in the CIP or part of a targeted plan. infrastructure investment program. All elements on the 5 -year CIP Medium priority - infra- should be considered high priority. structure that is on Medium priority. Infrastructure that is on adopted long -range plans adopted long -range plans but not in the current CIP would fall in this category. Local governments but not in the current CIP. Low priority - infrastruc- should accept dedication of such infrastructure where a developer offers ture consistent with to provide it and should enter into cost recovery agreements to encour- adopted plans but no clear age developers to provide such infrastructure. need and unlikely to be a Low priority. Infrastructure that is generally consistent with adopted clear need within 10 years. Unwanted - infrastructure plans but for which there is no clear need and is unlikely to be a clear that is inconsistent with need within the next 10 years would fall in this category. A local gov- the Regional Plan. ernment might elect to accept dedication of such infrastructure if it is provided but would refuse to enter into cost recovery agreements for it or otherwise encourage its construction. Unwanted. Some infrastructure will simply be inconsistent with the plan. This would be infrastructure that encourages a type of develop- ment inconsistent with that reflected on the Development Action Areas map or that encourages development in floodplains or other undesirable areas. Local governments should not approve any plans showing such in- frastructure, nor accept its dedication. Recording instruments should be considered to warn purchasers that the public will not maintain their roads or other infrastructure. Regulatory Techniques Minimum Density Standards The City and County could establish minimum densities, as well as the traditional maximum densities, in selected urban, suburban and ex- Page 58 ■ Implementation The Burnham Group Pueblo Regional Development flan Final.ldoptinn _- I urban zoning districts. For example, in an area that was served by existing sewer, the maximum size of any residential lot might be set at 15,000 square feet, thus prohibiting rural type development within areas that need to be reserved for urban densities. Minimum. Densities - ensures that urban devel- This approach ensures that urban development is sufficiently dense opment is sufficiently dense to be viable, thus supporting appropriate infrastructure investments and to be viable, thus support - neighborhood shopping, schools and parks. It also limits the pressure on ing appropriate infrastruc- rural land, by ensuring that more development is absorbed within the ur- ture investments. ban area. Zoning Regulation Uadate or Amendments Both city and county should consider updates or amendments to their respective zoning regulations. Those should focus on such issues as: • Creating pedestrian- friendly development • Creating transit - friendly development • Encouraging mixed use in appropriate locations, • Encouraging redevelopment in designated areas • Encouraging pedestrian- oriented development in urban mixed use areas, with public or clustered parking and minimal front setbacks • Ensuring the protection of identified neighborhoods • Ensuring that zoning for stable neighborhoods treats most existing buildings/uses as conforming uses, so they can be updated or replaced Regulatory Updates and • Protecting sites for future employment centers Amendments - both city and county should consider • Enhancing the character of the Region s gateway entries updates or amendments to their respective zoning • Ensuring that the rural character of the Region is maintained regulations. Subdivision Regulation Update or Amendments Both city and county should consider updates or amendments to their respective zoning regulations. These should focus on: • Establishing basic adequacy standards for improvements for all devel- opment • Addressing issues of suburban development in rural areas • Creating more pedestrian- friendly urban and suburban neighborhoods • Implementing three tiers of infrastructure standards urban, suburban and rural with regard to existing and planned character of the area and with less regard to whether property is within city limits or not. Residential Cluster Zoning Also known as open space subdivisions, residential cluster zoning involves the adoption of design standards for use in certain rural and/or en- Page 59 The Burnham Group Implementation ■ Overlay zoning is a mapped zone that imposes a set of requirements Overlay Zoning - a and a review process over existing zoning districts. When an overlay zone is mapped zone that imposes put into place it acts as a second layer of zoning to accomplish a specific a set of requirements and a purpose while maintaining the existing underlying zoning regulations. review process over exist- Pueblo County s Zoning Ordinance provides for a Hazardous Wastes Indus - ing zoning districts ... trial Overlay District. Other examples of overlay zones are flood hazard ar- when an overlay zone is eas, historic districts and gateway entrance overlays. In most cases the un- used it acts as a second derlying zoning requirements remain the same, however there is an addi- layer of zoning to accom- tional set of development guidelines or requirements that must be followed plish a specific purpose if the subject property falls within an overlay zone. In some instances over - while maintaining the lay zones may modify the existing zoning district requirements. As an ex- existing underlying zoning ample, a central business district overlay may reduce the traditional regulations. amount of parking required by a new development. The purpose of overlay zoning is to provide an additional zoning tool to provide both flexibility and additional criteria for development in order to accomplish the policies of the Regional Development Plan. The Region may wish to consider the use of overlay zones in areas suitable for open space protection and greenway development. Other communities have developed overlay zones to protect property from development on unstable land (steep slopes); soil erosion and stream siltation; destruction of mature or unique vegetation or habitats; destruction of wetlands and prime agricultural Page 60 ■ Implementation The Burnham Group vironmentally sensitive areas. This involves site planning designed to en- courage preservation of open space particularly as they related to flood plain and farm or ranch land protection. Cluster residential zoning clus- ters development onto smaller lots away from the protected areas, while Cluster Residential leaving the remaining area in open space, thus reducing development im- Zoning - 'clusters' devel- pact. The existing permitted residential densities are maintained and can opment onto smaller lots even allow density bonuses for employing the cluster technique. awayfrom protected "ar - eas, while leaving remain - The following is an example of how cluster residential might be used ing area in open space, thus reducing development in Pueblo County on 2000 acres zoned County A -1. The A -1 zoning permits impact ... existing permit- 1 unit per 40 acres; total permitted units on 2000 acres would be 50 houses. ted residential densities Cluster Residential would require this overall density to be maintained (50 are maintained and can units on 2000 acres), but might permit lots to be reduced to 5 acres. This even allow density bonuses would leave 1750 acres in commonly held open space owned by the home - for employing the cluster owners (50 lots x 5 acres = 250 acres, minus 2000 acres = 1750 acres). The technique. commonly held acres could not be further subdivided but would be large enough to be more useable for ranching purposes. Likewise, because the road network would be much more limited due to a smaller amount of being developed for home sites (250 acres versus 2000), the cost to the developer and ultimately the County, for maintenance would be reduced. Added bene- fits would be maintaining more of the rural character of the County and having less impact on wildlife habitat corridors. It is also conceivable that some housing density bonus might be permitted for employing Cluster Resi- dential Zoning. Also, this same technique works well for development near flood prone areas and more steep terrain. Overlav Zones Overlay zoning is a mapped zone that imposes a set of requirements Overlay Zoning - a and a review process over existing zoning districts. When an overlay zone is mapped zone that imposes put into place it acts as a second layer of zoning to accomplish a specific a set of requirements and a purpose while maintaining the existing underlying zoning regulations. review process over exist- Pueblo County s Zoning Ordinance provides for a Hazardous Wastes Indus - ing zoning districts ... trial Overlay District. Other examples of overlay zones are flood hazard ar- when an overlay zone is eas, historic districts and gateway entrance overlays. In most cases the un- used it acts as a second derlying zoning requirements remain the same, however there is an addi- layer of zoning to accom- tional set of development guidelines or requirements that must be followed plish a specific purpose if the subject property falls within an overlay zone. In some instances over - while maintaining the lay zones may modify the existing zoning district requirements. As an ex- existing underlying zoning ample, a central business district overlay may reduce the traditional regulations. amount of parking required by a new development. The purpose of overlay zoning is to provide an additional zoning tool to provide both flexibility and additional criteria for development in order to accomplish the policies of the Regional Development Plan. The Region may wish to consider the use of overlay zones in areas suitable for open space protection and greenway development. Other communities have developed overlay zones to protect property from development on unstable land (steep slopes); soil erosion and stream siltation; destruction of mature or unique vegetation or habitats; destruction of wetlands and prime agricultural Page 60 ■ Implementation The Burnham Group lands; pollution of the water supply resources; or incompatible development in established residential areas. Miscellaneous Implementation Techniques Open Soace Land Acauisition Program The City and County and, possibly, other entities, would actively seek to acquire fee and less- than -fee interests in selected lands in the city and county. Acquisition in fee simple gives the purchaser full title to and possession of all rights associated with the purchased property. Fee simple Open Space Land Acqui- ownership provides the simplest and most effective means of effecting con- sition Program - activeh• trol; where government owns the land, government controls its development seek to acquire fee and less- or preservation. than -fee interests in se- lected lands in the city and As an alternative to acquisition in fee simple, acquisition programs county that should be pre - may seek to acquire easements. There are two distinct types of easements. served as open space. Positive easements grant affirmative rights to use property in a specified manner. A right of access across a neighboring property is a common exam- ple of a positive easement. In contrast, negative easements affix restrictions Increasing interest in Re- upon the landowner's property rights. For example, where the aim is the gion for protecting produc- preservation of scenic vistas, scenic easements may prevent new construc- rive agricultural land, flood tion that exceeds height limitations or blocks specified views. Increasingly, plains, wildlife habitats non -profit land trusts are involved in acquiring properties for conservation and environmentally sensi- purposes or in receiving conservation easements from landowners. In re- tive land ... 96% of the re- spondents to a survey that turn, the landowner can take a substantial federal income tax deduction. was conducted as part of the Plan agreed... 77% There has been increasing interest within the Pueblo Region for indicated a willingness to protecting productive agricultural land, flood plains, wildlife habitats and pay 5 cents per day to fund environmentally sensitive land. In fact, an overwhelming 96% of the re- such programs. spondents to a survey that was conducted as part of the Plan, agreed with the recommendation and 77% of them indicated a willingness to pay 5 cents per day to fund such programs. In the City of Boulder, Colorado, voters ap- proved a specially earmarked 0.73 percent sales tax that has funded the purchase of 25,000 acres of dedicated open space to establish a greenbelt around the city. [The narrative on land acquisition programs has been cour- tesy of Clarion Associates] Downtown Business En- hancement Programs - to Downtown Business District Enhancement Programs reinvigorate the business climate of the Downtown by Maintaining a viable Downtown Pueblo is important to the entire identifying the market Region. Significant projects have been on going within the downtown, such niche the area could possi- as the HARP project and redevelopment and in -fill near Union Avenue. The bly capture of the Region's overall purpose of the Downtown Business Enhancement Programs is to retail, office and residential reinvigorate the business climate of the Downtown by identifying the mar- uses. ket niche the area could possibly capture of the Region s retail, office and residential uses. A healthy and appealing Downtown also serves to further stabilize and enhance the adjacent, long- established residential areas sur- rounding the Downtown. The HARP project should be used as a major building block for continuation of Downtown rehabilitation, redevelopment and in -fill. Page 61 The Burnham Group Implementation ■ 1, [3 The relationship between the Implementation Tech- niques and the Plan's Guiding Principles is im- portant in order to main- tain continuity throughout the planning process. Page 62 ■ Implementation Intergovernmental Agreements Intergovernmental Although included here, intergovernmental agreements do not rep - Agreements - an effective way to coordinate imple- resent a truly separate technique. They represent an effective way to coor- mentation techniques dinate implementation of most of the techniques listed here across jurisdic- acrossur across jur isdictional g tional boundaries thus coordinati actions of schools and sewer provid- boundaries —thus coordi- ers, city and county, and special districts planning entities. nating actions of schools P and sewer providers, city and county, and special Linking Implementation and Guiding Principles districts planning entities. Cost Recovery Program As an overview, the matrix provided below illustrates the relation - ship between the implementation techniques and the Regional Development Targeted Infrastructure Investment Plan s Guiding Principles. The relationship between the techniques or pro- P grams and the Plan's Guiding Principles is important in order to maintain continuity throughout the planning process. P Table 14 - Implementation Techniques, by Guiding Principles The relationship between the Implementation Tech- niques and the Plan's Guiding Principles is im- portant in order to main- tain continuity throughout the planning process. Page 62 ■ Implementation The Burnham Group Guiding Principles Implementation Techniques Urban Develop- meat Rural Develop- meat Neighbo rhoods a Design Cacter I & Environ. Quality Adequate Public Facilities Program P P Capacity Allocation Program P P Cost Recovery Program P Targeted Infrastructure Investment S P Impact Fees P P Special Districts P P Priorities for Infrastructure P P Minimum Density Standards S P S P Zoning Update S P P Subdivision Update P S S P Residential Cluster Zoning S P P Overlay Zones P P Open Space Land Acquisition P P Downtown Enhancement P S S P = Primary Technique S = Secondary Technique The Burnham Group Infrastructure Policies It is the recommendation of the Regional Plan to manage the timing and character of development through the provision of infrastructure. Ta- bles 15 and 16 reflect the infrastructure policies recommended for the De- velopment Action Areas and the Land Use Areas. Table 15 - Infrastructure Policies - Development Action Areas The Burnham Group Page 63 Implementation ■ Developed Developing Developing Mid- Long - Urban Areas Urban Metro Term Term Areas Districts Growth Growth PW & cc Areas Areas Water Public water with 8 -inch lines, meets minimum fire -flow /pressure rating Sewer Public sewer connection required Public sewer connection required, or interim septic as a temporary meas- ure but must install dry lines to standards of nearest provider and stub out to each lot Drainage Fully public, un- On -site detention to minimize peaks, combined with derground collec- surface and sub - surface collection tion Street ROW Urban street pro- Suburban street profile - 120 -foot arterial, 70 -foot file: 120 -foot arte- collector, 50 -foot local rial, 80 -foot collec- tor, 60 -foot local Sidewalks Both sides of street; 5 -foot side- Same as Developing Urban Areas,, walks on local residential streets, except cul-de -sacs less than 500 ft. 8 -foot in non - residential areas and do not require sidewalks along arterial streets; separated from curb by "parking strips" the width of sidewalk Fire/EMS Response time less than 5 minutes Response time less than 7 minutes Parks /Open Neighborhood and community parks Regional park; Space neigh. parks Schools Neighborhood schools Bus to regional schools Infrastruc- Developed Urban Area Immediate, site - related improvements and ture Financ- minimal connection and impact fees required ing Developing Urban Area and Mid -Term Growth Areas Suburban development requires standard impact and connection fees with credits for developer - installed off -site infrastructure consistent with capital improve- ments plan Long -Term Growth Areas Higher impact & connection fees, must pro- vide missing off -site infrastructure in accordance with capital improve- ments plan, with 80 percent credit against 50% of the impact fees with balance to be paid from future fees from other developers Source: The Burnham Group, 2000 The Burnham Group Page 63 Implementation ■ Table 16 - Infrastructure Policies - Land Use Areas Page 64 ■ Implementation The Burnham Group Office Country Resi- Country Produc- Rural /Employment dential Village tion Ag. Ranch Centers Water Public water with 8 -inch lines, meets minimum fire- Wells allowed for flow /pressure rating res., commercial and industrial uses; wa- ter provisions for hospitals, nursing homes, schools sub- ject to review Sewer Public sewer con- Septic tanks permitted and small scale, low- impact nection required, non - residential or interim septic as temp. measure but must install dry lines to stan- dards of nearest provider and stub out to each lot Drainage On -site detention to minimize peaks, None required combined with surface and sub- surface collection Street Urban profile - Exurban - 120 -foot arterial, 80 -foot collector, 60 -foot ROW 120 -foot arterial, local; see County Road Standards 80 -foot collector Sidewalks Both sides of Sidewalks along None required street; 8 -foot side - arterials, with walks; separated pkg. strips; ROW from curb by "pkg. for sidewalks on strips" the width collector and of sidewalk arterial Fire/EMS Response time less EMS under 10 EMS under 15 min.; fire w/ 10 for than 5 minutes min.; fire w/ 10 facilities serving >100 people for facilities serv- ing >100 people Parks/Op NA Regional park; neighborhood parks if developed as en Space subdivisions Schools NA Bus to regional schools Infra- Employment Center Growth Area - Increased impact and connection structure fees, developer must provide missing off -site infrastructure in accordance Financing with capital improvements plan, with 80 percent credit against 50% of the impact fees with balance to be paid from future fees from other developers Country Residential Suburban - standard impact and connection fees required with credits for developer - installed off -site infrastructure consistent with capital improvements plan, but in general city Country Village, Production Agriculture & Rural Ranch - Developer responsible for any and all missing infrastructure to meet standards above, no credit; impact fees applicable for selected service Source: The Burnham Group, 2000 The Burnham Group 10 1.-. Continuation of Planning Efforts Planning is part product and part plan. It is important that the de- livery of this product not end the process. PACOG should consider a con- tinuing planning coordination effort. One way to accomplish that would be to continue the Plan Management Committee and charge it to prepare an annual synthesis of major planning policies for use by appointed and elected officials in making decisions. The purpose of that effort would be to ensure that the school districts capital plans, capital improvement plans for the city, county, water board and metro districts, WO transportation plan, the pending human services plan, annexation plans and this Regional De- velopment Plan form the parts of a cohesive Regional Plan. The Burnham Group Planning is part product and part plan. It is im- portant that the deliver} of this product not end the process. PA COG should consider a con- tinuing planning coordi- nation effort. Page 65 Implementation ■