Crestone Baca Comprehensive Plan Background Issues Report S A G U A C H E C O U N T Y C R E S T O N E B A C A P L A N N I N G C O M M I S S I O N Background Report Part 1: produced for May 17th Discussion Forum May 9, 2011 Why Does the Crestone Baca Need a New Comprehensive Plan? Crestone Baca Community A comprehensive plan is a strategic policy document that contains goals and strategies articulating a community s desires for its future. The Crestone Baca Planning Commission is enabled by the Saguache County Board of County Commissioners to plan for the future growth of the Crestone-Baca planning region and under state law is the legal body that creates comprehensive plans. Once a plan is adopted by the Planning Commission, it provides guidance for County decision-makers on development related issues and ordinances. The 1995 Crestone Baca Subarea Comprehensive Plan was an important first step in planning for the area. The plan resulted in the current sub-area land use zoning and provided programmatic direction for numerous community development goals such as the creation of the credit union, the Crestone Baca Land Trust, and Sustainability 2000. However, there are new community needs and challenges for which the 1995 plan and land use development code have provided inadequate guidance. This first Issues Report outlines a number of planning challenges that the Planning Commission is facing as well as questions regarding what future direction residents want to take the Crestone-Baca community in the future. The planning issues were identified in a series of Planning Commission work sessions held in the fall of 2010 and facilitated by the Sonoran Institute. This list is not meant to be exhaustive, nor cover all of the community s development goals. Instead, it is intended to inform the community of the Planning Commissions most frequent and pressing planning challenges that the Comprehensive Plan should, at minimum, address. Community Meeting Schedule TUESDAY, MAY 17TH COMMUNITY ISSUE FORUM #1: LAND USE PLANNING ISSUES FROM 6 TO 8 P.M. AT THE BACA GRANDE POA HALL. WEDNESDAY, MAY 25TH COMMUNITY ISSUE FORUM #2: COMMUNITY DEVELOPMENT ISSUES FROM 6 TO 8 P.M. AT THE BACA GRANDE POA HALL. SATURDAY, JUNE 4TH ALTERNATIVE FUTURES SCENARIOS WORKSHOP FROM 9:00 A.M. TO 12:00 P.M. AT THE BACA GRANDE POA HALL. Getting Involved in the Comprehensive Plan Update The purpose of the upcoming community meetings is to solicit feedback and ideas from community members on community values, concerns, desired changes, and a vision for the future. We hope that you will take the time to review the Background Reports as well as attend the upcoming meetings. The Crestone Baca Planning Commission began the update process for the Crestone Baca Master Plan in summer of 2010. The process began with surveys in July. The Planning Commission received 708 surveys of the more than 3,800 sent out. The Planning Commission contracted with the Sonoran Institute in November 2010 to help identify the primary land use planning issue effecting decision making in Planning Commission meetings. Land use issues will be the focus of the first scheduled community issues forum. A second community issues forum will engage community members in a discussion about broader community development concerns that are less influenced by County land use policies. These 2 issues forums will be followed in June with a Crestone-Baca Alternative Futures Scenarios forum. Visioning is an important component of the community planning processes. This meeting will engage community members in exploring the implications of four contrasting future scenarios for the Crestone Baca Planning Area then in choosing a preferred scenario for the community s future. The vision will be used to guide the development of the new plan s goals and strategies.
Crestone Baca Subarea Land Ownership Map Private CASITA PARK RANCHETTES BLM Private Private BLM CRESTONE Private USFS Educ Fndtn Educ Fndtn Chalet I Open Space Center Centers USFS Natl Wildlife Refuge (USFW) Educ Fndtn Chalet I Centers Educ Fndtn Chalet II Centers Grants Chalet II Conservation Easement Chalet III Center Page 2 Crestone Baca Land Ownership The Baca Grande is a development of around 14,000 acres. The area is surrounded by federal land managed by the US Forest Service, the National Park Service, US Fish and Wildlife Service, and the Bureau of Land Management. The planning processes and Great Sand Dunes (NPS) management directives are carried out by various designated federal land managers for each agency. The Town of Crestone, the Baca Grande POA, and Saguache County manage the private lands within the sub-area. The diverse ownership requires collaboration on decisions that may impact the larger landscape.
Crestone Baca Zoning Map Crestone Baca Current Zoning The Town of Crestone s Zoning Regulations provide for five types of residential zones (rural, low density, medium density, high density and a mobile home district). In addition the zoning district regulations includes provision for a commercial business district to provide a full range of retail sales and services, as well as small fabrication facilities approved by conditional use. Recently the Town annexed property located between the Town boundary and the Baca Grande Chalet One boundary for the purposed of creating a community services and recreational district. The Baca Grande sub-area designates 9 development types. There is limited commercial activity with predominately residential, open space, and institutional zones. Over 4,000 acres of the subdivision is designated as recreational areas such as greenbelts, parks, and riding trails. The Baca Grande Subdivision contains predominately three types of residential use zones characterized by lot size and terrain. In the Chalets there are small lots (typically 0.5 acre) in densely treed areas while in the Grants there are large lots (typically 2 to 5 acres) and in Casita Park there are very small lots (0.125 acre) that both lack vegetation. Page 3
Crestone Baca Comprehensive Plan Background Issues The Goals and Objectives in the 1995 plan aimed to preserve the area s sense of place. Many of these will likely still be important to the community. Preserve pristine natural beauty and natural views. Minimize impacts of growth. Preserve existing agricultural lands for production, open space and quality of life. Manage density to create open space. Centralize commercial and public facilities to accommodate probable growth. Preserve a transition zone between wilderness and development. Encourage architecture which reflects the character and values of the community. Further the spiritual infrastructure and character of the community. Promote long term sustainability. Create a structure where development is required to pay its way. Encourage self governance. Empower government with the tools to manage growth. Page 4 How Fast Is Our Community Growing? A consistent concern of the Crestone Baca residents has been how quickly the population is increasing, when the Baca will finally be fully built out, and what impact that might have on the community over time. The 1995 Crestone Baca Comprehensive Plan predicted the population of the planning area to increase from a then population of 777 to 3,960 by 2010, an increase of 3,183 people at a 10% annual growth rate. The actual growth rate has been much slower with the latest A conditional use permit (CUP) is granted by a local government to authorize a type of development or land use on a specific lot that would not otherwise have been permitted by the underlying zoning code. Since 1997, the Crestone Baca Planning Commission has reviewed 39 individual CUPs of which 30 have been approved. The types of use requested include spiritual/ institutional uses, additional residences/accessory dwelling units, small businesses, openair cremations, retreats/ 2009 the sub-area population estimated at around 1,200 in 2009, an increase of only 423 people or a growth rate of about 5% annually. Census data for growth in the West indicate the growth rate slowed between 2000-2010. Additionally, the recent economic upheavals have affected migration patterns, homeownership, and the real estate market all large players in growth in the Crestone Baca. Future trend analyses are predicting the slower growth rate in the Challenge #1: Overuse of Conditional Use Permits lodging, and holistic healing facilities. While CUPs have played an important role in the sub-area in making many small businesses possible and contributed to the area s growing spiritual community, their frequent indicates the zoning code is probably not meeting changing community needs. The 1995 comprehensive plan identified the Town of Crestone to be the commercial center for the sub-area with additional commercial uses by West to continue over the next decade. While alarmist concerns about excessively rapid growth and increased population may not be warranted for the region, change is inevitable regardless of the growth rate. Thus the focus for our community ought to be on how the community can be proactive in ensuring thoughtful and intelligent planning guides future development in a way that is consistent with community values. What Are Our Principle Land Use Planning Challenges? Decisions guiding land use are established in the comprehensive plan as policy goals and strategies, future land use classifications (zoning districts) and a future land use map. Relevant land use policies were codified into the legally binding regulations of the Saguache County Land Development Code. Article XVI of the Code establish the sub-area s land use zones that delineate the density of development, the types of uses that occur (both by right and through a special permitting process), the location for these zones (a zoning map), and finally the form, or design standards, for the types of development. Recurrent issues with the application of the planning code generally indicated that a comprehensive plan and development code require updating. The challenges outlined in this report speak to the most pressing issues the Planning Commission is facing within the current plan and code. right along County Road T. While many businesses have located within these designated areas, numerous other non-residential uses have been approved through CUPs. Additionally, while the 1995 comprehensive plan included areas for development spiritual/ institutional uses, especially on Manitou Foundation lands, very few institutional parcels remain available for future development. This has resulted in new institutional uses requested through CUPs. The downside for the
Background Report Part 1: produced for May 17th Conditional Uses (cont) community is that when CUPs are used as a substitute for planning, it can create unnecessary tension among residents over potential community impacts of unplanned development as well as be a disincentive to investment by business owners due to their conditional nature requiring annual reviews. Conditional Use & Home Occupation Map The Comprehensive Plan update provides an opportunity for the community to make deliberate decisions about future growth areas. These decisions will have both positive and negative consequences that need to be carefully weighed. However, if the community desires to become more self-sufficient, it will become increasingly important to facilitate future development areas which allow certain uses to occur by right and in a coordinated manner, not through the piecemeal approach of conditional use permits. Thus, the community needs to discuss: Where should future commercial uses (such as lodging units, small retail businesses, home based businesses, etc.) be located? Should current zones be expanded? How should the Town of Crestone and Baca Grande integrate commercial development needs? Should residential zoning allow for home based offices, private greenhouses, and accessory dwelling units? Should there be mitigation standards? Should new areas be designated for future retreat and spiritual facilities? Does the new Town of Crestone community services area provide adequate space for future public needs? Or are there future public uses that have not yet been considered that should be planned for? Page 5
Crestone Baca Comprehensive Plan Background Issues Challenge #2: Inflexibility of the Baca Grande Subdivision The Baca Grande Subdivision, a development of around14,000 acres, was established in 1971 prior to the State of Colorado requiring counties to adopt subdivision regulations beginning in1972. Due to the fact the of the Baca Subdivision is already 100% subdivided with thousands of owners and with few large undeveloped parcels, there are very few opportunities for making any significant changes to the existing land use pattern. There are about 4,200 lots in the Baca Grande but fewer than 25% have been developed. Over 4,000 acres of the subdivision is designated as recreational areas such as greenbelts, parks, and riding trails. The Baca Grande Subdivision contains three types of residential use zones characterized by lot size and terrain. In the Chalets there are small lots (typically 0.5 acre) in densely treed areas while in the Grants there are large lots (typically 2 to 5 acres) and in Casita Park there are very small lots (0.125 acre) that both lack vegetation. As vacant lots are gradually developed, the density of lots and the lack of vegetative screening have resulted in community members being concerned about development impacts to adjacent property owner s privacy and the area s rural character. Any significant change in the Baca will require deliberate implementation of a comprehensive set of strategies aimed at consolidating private ownership into parcel sizes which offer more flexibility for site design. These tools include: lot vacations, lot consolidations, conservation easements, voluntary replatting of consolidated lots, or a transfer of development rights program. The community land trust has been successful at placing conservation easements on some environmentally sensitive lands. Additionally, the total number of lot consolidations has continued to increase with a total of 2,504 lots in 2009. Unfortunately, given the requirements for lot consolidations (adjacency and undeveloped) the pace of lot consolidations is likely to slow. Estimates are around 500 additional lots. If the community is interested in influencing the Baca s development pattern, it will be necessary to develop a new and innovative program with clearly defined goals. Maintaining community services and infrastructure to the Baca s widely dispersed population will be a long term challenge. Community services such as roads, water, sewer, and fire protection, are expensive. An unintended consequence of efforts to reduce development opportunities and population densities is that it will likely increased cost to the remaining property owners. As the number of property owners is reduced, remaining residents will be required to cover a larger percentage of a fixed cost. Page 6 The community values the Baca Grande s rural character, beautiful landscape, natural resources, and iconic views. However, it also recognizes the inefficiency of maintaining miles of roads and infrastructure for a relatively small population as well as the environmental implications of full build out. Given limited opportunities for altering the final pattern of the subdivision, community decisions during the comprehensive plan should include discussions about the following: Is reducing the ultimate number of developable lots in the Baca still a goal? If so, what is should it be trying to accomplish - fiscal, social, or environmental goals? Should the Baca Grande residential zoning types continue as they are, or should additional residential development options be allowed that meet new community needs and/or goals (e.g. uses such as co-housing, individual greenhouses, home based businesses, multi-family)? Should commercial or mixed use nodes be encouraged in the Baca Grande? Should incentives to consolidate lots be provided in order to meet broader community development goals?
Background Report Part 1: produced for May 17th Lot Consolidation Map Saguache County regulations do not limit the number of lots that can be consolidated as long as the lots are contiguous. Page 7
Background Report Part 1: produced for May 17th Challenge #3: Getting Around The Community Currently there are two major transportation planning issues for the community to consider during the comprehensive plan update. First, the Town of Crestone, Baca Grande POA and Saguache County need to develop a coordinated plan for road infrastructure and maintenance. However, it is not simply a road engineering and public works issue. It is also a watershed and storm water management issue. Since our roads currently provide the easiest path for water down the mountains, almost all areas of the subarea experience problems related to storm-water runoff and erosion. This problem will only increase as the number of homes increases. Second, an increasing desire of residents is to develop energy efficient alternatives to having to always use a car as well as promote healthy lifestyles by developing a bicycle and pedestrian trails network that could link open spaces through the area and to connect the Baca Grande Subdivision with the Town of Crestone. How can we promote better coordination for road maintenance? What should be our community stewardship goals for erosion and storm water management? Do we want more pedestrian friendly community zones? Where should those be? Where should trails connectivity be enhanced? Challenge #5: Energy & Communication Infrastructure Much has changed since the last community plan. Changes in technology have created opportunities for localized solar farms and communication infrastructure such as cell towers that were not anticipated in 1995. A revised Comprehensive Plan could include a policy which encourages community distributed generation in the sub-area as well as private development of renewable Should renewable energy be promoted? Where should renewable energy infrastructure be allowed? Challenge #6: Visual Resource Protection County Road T is currently protected from visual congestion through a Scenic Resource Overlay (SRO) zone in a series of graduated areas. The SRO is a strip that runs 1,000 feet to the North and South of the road centerline and begins at the entrance to Casita Park and continues to the entrance to the Baca Grande Chalets. The SRO identifies definitive guidelines to protect these visual resources along County Road T through setbacks, height limitations, and use limitations. Given the beauty energy in residential areas including solar and wind technologies. Mitigation strategies should be discussed, but will be part of the development code or building covenants. How should communication infrastructure be planned for? Where should it be located? of the area is an important community value, the community needs to determine if any additional areas should be included within the SRO including other major arterials such as: Camino Baca Grande, Camino Del Rey, Wagon Wheel and County Road 71 going into Crestone. Should any other roads be added to the Scenic Resource Overlay? Are there other views that we want to ensure are protected? Where they are and what do the threats include? Page 8