Fort Carson Regional Growth Plan, Phase II
Supplemental Report
Update of Phase I Tasks and Recommendations
June 2010
Fort Carson Regional Growth Plan
Supplemental Report
Update of Phase I Tasks and Recommendations
Phase II of the Fort Carson Regional Growth Plan (1 July 2008-30 June 2010) was
conducted following the initial growth planning phase (completed in June of 2008). The
Phase II analysis focused on key issue areas needing additional study, as identified in Phase I.
The Pikes Peak Area Council of Governments (PPACG) has continued to monitor the
impacts of Fort Carson growth on issue areas addressed in Phase I but not specifically
covered in Phase II tasks. Partnership groups related to Planning, Zoning & Land Use
Compatibility; Public Safety; and Utilities have continued to meet periodically to address the
status of impacts to services, changing conditions and trends, and continued communication
and coordination. This supplemental report provides an update on these issue areas.
Additionally, an update on all Phase I recommendations and action items is provided in
Appendix A.
Planning, Zoning & Land Use Compatibility
Planning, zoning and compatibility issues have been addressed indirectly through various
components of the Phase II analysis, particularly sections on housing, transportation, and
sustainability. Ongoing stakeholder efforts continue to address the findings of the Phase I
Growth Plan. The key issues identified in Phase I included the following:
Planning & Zoning:
Lack of a formal process to foster regional communication and coordination across
jurisdictions regarding land use planning;
Lack of quality, affordable, new multi-family housing in close proximity to Fort
Carson; and
Available opportunities for mixed use commercial and residential development along
major transportation corridors.
Compatibility:
Incompatible land uses in some areas adjacent to Fort Carson;
Increased noise impacts outside Fort Carson as training increases;
Light pollution effects on night training; and
Air space and bandwidth challenges as Fort Carson grows.
Recommendations to address these issues included continued and enhanced cooperative
planning and information-sharing, as well as continuation of the installation’s sustainability
and Army Compatible Use Buffer (ACUB) program with regional partners. Fort Carson
involvement in development discussions and land use and transportation planning is an
ongoing process, and the Fort Carson Regional Growth Plan partnership group meetings,
along with Fort Carson’s direct involvement with local government initiatives, continues to
provide valuable opportunities for information-sharing and coordination. An update on
these ongoing efforts is provided below.
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Regional Information-Sharing and Collaboration
Ongoing information-sharing and collaboration was enhanced through a Transportation and
Land Use Forum hosted by PPACG in September 2009. Fort Carson representatives and
local governments in the region shared information on current and planned land uses in the
Fort Carson region and provided entities an opportunity to discuss key issues and concerns,
as well as further opportunities to ensure Fort Carson participation in regional land use and
transportation planning efforts. Periodic meetings of the joint Planning, Zoning &
Compatibility and Transportation partnership groups also provided a forum for Fort Carson
and local officials to discuss issues related to Fort Carson growth, land use, transportation
and other topics.
Additionally, Fort Carson through regional partnerships with local governments, non-profit
entities, and local landowners, has continued to implement the establishment of a 1 ½-2-mile
buffer zone adjacent to the southern and southeastern boundaries of the installation to
mitigate incompatible land uses and ensure future compatibility with Fort Carson’s training
mission. Fort Carson has partnered with El Paso County, the Nature Conservancy, and
others to purchase undeveloped lots in subdivisions near impact areas and obtain
conservation easements to ensure continued compatible uses adjacent to the southern and
southeastern areas of the installation.
Through Fort Carson’s partnership with El Paso County to-date, approximately $4 million
has been spent to purchase 117 undeveloped lots (approximately 900 acres). More than
16,000 acres have been acquired in permanent conservation easements, with an additional
7,000 acres under annual lease agreements with options to purchase permanent conservation
easements. DoD and regional partners have spent a total of more than $24 million to
support Fort Carson’s ACUB program. It is anticipated that an additional $13 million is
needed to purchase additional conservation easements, and Fort Carson continues to build
on the successes of the ACUB program with its partners.
South Academy Boulevard
The Phase I analysis identified opportunities for mixed use redevelopment along South
Academy Boulevard to benefit Fort Carson and the region. Major infrastructure
improvements, as well as planned and ongoing studies by the City of Colorado Springs
provide excellent opportunities to develop/redevelop the corridor in response to Fort
Carson growth and address key transportation, housing, and commercial needs.
South Academy Boulevard serves as the northern border of Fort Carson and is an
expressway/northern arterial as one travels north from unincorporated El Paso County into
Colorado Springs. South Academy has undergone significant capital improvements as part
of the $67 million South Metro Accessibility project funded by the Pikes Peak Rural
Transportation Authority (PPRTA). This project involves phased improvements along
South Academy Boulevard, including widening and other capacity/safety improvements on
South Academy Boulevard between State Highway 115 and Interstate 25. The El Paso
County portion of the project is currently in its fourth and final phase.
These improvements have provided capacity and safety enhancements to serve Fort Carson,
as well as residential and commercial properties near the installation. The improvements will
also result in greater regional mobility and increased potential for development/
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redevelopment in the corridor near Fort Carson. Immediately outside Gates 3 and 4,
multifamily housing and retail currently serve Fort Carson. Additionally, vacant land across
from Pikes Peak Community College will benefit from the infrastructure improvements
along South Academy. Several possible development scenarios have been proposed for this
site but none has come to fruition to-date because of current economic conditions.
The South Metro Accessibility project also includes components within the City of Colorado
Springs. When completed, this project will eventually lead to enhanced regional mobility
between Fort Carson/southern El Paso County and southeastern Colorado Springs.
The City of Colorado Springs is also pursuing separate transportation and land use planning
studies along the South Academy corridor that will benefit Fort Carson and the region.
Specifically, the city has hired a consultant team to develop the Academy Boulevard Corridor
Multi-modal Transportation and Transit Readiness Plan. This revitalization plan along a 6-mile
segment of South Academy Boulevard between Maizeland Road and Drennan Road/Proby
Parkway will include travel demand modeling, a review of existing plans and data, an
alternatives analysis, and bike/pedestrian elements, as well as short-, medium- and potential
long-term recommendations for multi-modal transportation along the corridor.
Concurrently, the city is also conducting a land use vision plan for the corridor. Fort Carson
representatives should continue participation in these planning efforts to ensure that Fort
Carson needs are addressed in the planning process.
Other Initiatives
As Fort Carson planners seek to decrease use of single-occupancy vehicles and implement
the installation’s sustainable transportation planning initiatives, the post is seeking to work
with surrounding communities to pursue transit-oriented development (TOD) opportunities
near Fort Carson’s gates. Fort Carson has initiated discussions with a private developer and
the City of Fountain and is also seeking interest for TOD opportunities in El Paso County
and the City of Colorado Springs. The South Academy project noted above may offer
opportunities for TOD that can benefit Fort Carson and the region.
In 2010, the State Legislature approved HB 12051, a bill requiring jurisdictions to notify
military installations regarding zoning or comprehensive plan changes affecting areas within
two miles of the installation. This bill was signed by the Governor on 21 May 2010.
Land Use Mapping
As part of the Phase II transportation task, PPACG continues to develop databases and
mapping of land use information based on a review of currently available land use plans
from the jurisdictions surrounding Fort Carson and updated information presented at the
partnership group meetings and the September 2009 Transportation and Land Use Forum.
Figure 1 below illustrates the existing land uses in the Fort Carson region. Figure 2 provides
more detailed land use information in areas closer to Fort Carson gates.
1
A copy of HB 10-1205 can be obtained at
http://www.leg.state.co.us/clics/clics2010a/csl.nsf/fsbillcont3/56DCA64967338B2F872576AC005F5965?o
pen&file=1205_enr.pdf.
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Figure 1. Land Uses Surrounding Fort Carson
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Figure 2. Land Uses Near Fort Carson Gates
PPACG will continue to update its database as new information becomes available to ensure
that Fort Carson and local government officials have mapping and other information related
to transportation, land use and compatibility issues in the region.
Public Safety
Phase I of the Growth Plan identified public safety challenges related to general growth and
military-specific concerns. The key findings of the Phase I analysis included:
Concerns that troop increases will exacerbate challenges of local jurisdictions in
meeting public safety and emergency service needs in the region;
Emerging military-specific law enforcement concerns, particularly related to Post-
Traumatic Stress Disorder (PTSD) or Traumatic Brain Injury (TBI), will increase
with increased numbers of troops; and
Ongoing challenges in coordinating public safety services across numerous
jurisdictions.
Recommendations to address these challenges included identifying funding opportunities to
increase public safety services; increased data collection and data sharing regarding law
enforcement issues, and enhanced coordination with Fort Carson to address military-specific
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law enforcement concerns. An update on these issues and recommendations is provided
below.
Local Fiscal Challenges
Because of national and local economic conditions, the region experienced less general
population growth than anticipated in the Phase I analysis, and this slowdown has mitigated
some initial concerns about growth-related public safety impacts. However, local economic
conditions have resulted in significant local and state budget constraints that have limited the
ability of the state and local jurisdictions to increase public safety and other public services.
In November 2008, El Paso County voters rejected a 1 percent sales tax for public health
and safety services. This tax would have provided approximately $70 million in funding for
the El Paso County Sheriff’s Office and Health Department, as well as the Fourth Judicial
District Attorney’s office and eight municipal police and fire agencies within the county. In
November 2008, voters in the Security Fire Protection District also defeated a mill levy
increase that would have funded additional staff and operations for the district. In
November 2009, voters in the City of Colorado Springs rejected a phased mill levy (property
tax) increase to help fund city services, including public safety services. Therefore, law
enforcement and public safety agencies in the region are currently experiencing continued
challenges in service provision across the region.
Deployment and Behavioral Health Challenges
Some initial law enforcement concerns about Fort Carson growth (such as increased gang
activity from units moving to Fort Carson) did not develop into significant challenges;
however, issues related to behavioral health and substance abuse remain a concern. These
issues include increased contacts with law enforcement outside downtown bars, as well as
some incidents of more serious crimes. Fort Carson, public safety agencies, behavioral
health providers, and others continue to develop strategies (and identify funding) to address
these concerns.
In July 2009, the Army released the results of an EPICON study initiated by Fort Carson to
address a series of homicides committed by Fort Carson troops from one brigade combat
team.2 The purpose of the study was to investigate if there were any common threads in the
six perpetrators of the homicides that occurred in a one-year period; whether increasing
violent behavior or criminal activity was unique to Fort Carson; a link, if any, between moral,
behavioral health or educational waivers and violent behavior; any relationships between
deployment and aggressive behavior; adequacy of Fort Carson’s behavioral health services;
and any barriers to Soldiers seeking behavioral health and social support services. The report
notes that the six Soldiers implicated in the homicides addressed in the study represent a
very small portion of the Fort Carson population. However, Fort Carson and the Army felt
that the seriousness of the crimes warranted the investigation.
The study found that, while the alleged perpetrators were at risk for violent behavior based
on prior history of criminal behavior, there were no common threads among the individuals
2
U.S. Army Center for Health Promotion and Preventive Medicine, Epidemiologic Consultation No. 14-
HK-OB1U-09, Investigation of Homicides at Fort Carson, Colorado, November 2008-May 2009, July
2009.
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other than the fact their unit experienced greater levels of intense combat. The study also
found that stigma associated with seeking behavioral health support and lack of referral for
substance abuse issues were barriers to Soldiers receiving treatment. The study also
concluded that exposure to intense combat may lead to increased risks for some Soldiers.
Fort Carson has taken steps to address the findings of the study, including instituting mobile
behavioral health teams that accompany units on deployments and increased screenings of
Soldiers during and after deployments to better assess and treat behavioral health and
substance abuse issues. Fort Carson has also instituted measures to reduce the stigma of
seeking behavioral health assistance. Additionally, the Phase II analysis has identified
behavioral health services as a critical need for the region. (See Section VIII of the Phase II
Growth Plan.) Continued partnerships between Fort Carson, local public safety agencies,
and behavioral health and substance abuse treatment providers is needed to mitigate the
impacts of continued deployments on Fort Carson Soldiers and families.
Veteran Trauma Court
Local, state and federal partners established a Veteran Trauma Court (VTC) in the Fourth
Judicial District in late 2009 to assist veterans in the criminal justice system. The goal of this
program is to decrease the number of veterans entering the criminal justice system by
assisting them in obtaining treatment for service-related issues that may have resulted in
criminal activity. The VTC does not currently serve active duty Soldiers, but seeks to
minimize veteran involvement in the criminal justice system. (See Section VIII of the Phase
II Growth Plan for additional information on the VTC.) One of the outcomes of the VTC
is better tracking of military members involved in law enforcement activities and the criminal
justice system and greater coordination with local military installations.
Regional Collaboration
Despite the fiscal challenges noted above, local public safety agencies have continued to
work with Fort Carson to enhance communication, information-sharing and collaboration to
address law enforcement issues. In addition to the partnership effort of the VTC, local law
enforcement agencies and military personnel established a Civilian/Military Law
Enforcement Collaborative in January 2009 to address common concerns, including
communication of arrest data to the relevant military installation; legal issues, including
intergovernmental agreements; and training partnerships. One of the many benefits of this
effort is the establishment of strong collaborative relationships between local law
enforcement officials and the military installations to help overcome high turnover in
military personnel. Members of this collaborative include:
Colorado Springs Police Department
El Paso County Sheriff’s Office
Fountain Police Department
Fourth Judicial District Attorney’s Office
Fort Carson – Criminal Investigation Division
Fort Carson – Office of Emergency Services
Fort Carson – Police/Provost Marshal Division
U.S. Air Force Office of Special Investigations
Schriever Air Force Base – 50th Security Forces Squadron
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Headquarters Air Force Space Command
NORAD – NORTHCOM
21st Security Forces Squadron
Through such collaborative efforts, Fort Carson has also begun courtesy patrols on
weekends and is pursuing joint patrols with the Colorado Springs Police Department to
establish a military presence in areas off-post where Soldiers congregate. While Fort Carson
personnel have clearly defined limitations under the joint patrols, local law enforcement
agencies and Fort Carson have noticed a marked improvement in incidents involving
military personnel as a result of the increased presence of civilian and military law
enforcement in the downtown area of Colorado Springs, including a 9 percent decrease in
service calls in 2008.3
Utilities
The Phase I Growth Plan findings regarding public utilities and infrastructure found that
local utility providers have generally planned well for Fort Carson and other growth. Key
issues identified include the following:
Increased growth on and off-post will increase demand for utility services; and
Increased utility consumption can be mitigated through Fort Carson and community
sustainability efforts.
Ongoing Infrastructure Improvements
Fort Carson and local utility providers have planned and initiated infrastructure projects to
meet Fort Carson and long-term general growth demands for the region. These efforts
include:
Continuation of planning for the Southern Delivery System to bring water supply to
the region for Colorado Springs Utilities and other regional utility partners;
Completion of a gas line extension to Gate 5 in 2009 and planned extension of a gas
line to Gate 6 to supply Fort Carson to begin in June 2010; and
Continued efforts by Fort Carson to meet the installation’s sustainability goals
related to energy and water use and ongoing community efforts to enhance
sustainability planning in the region.
Additional community sustainability efforts in the region are needed to assist Fort Carson in
meeting the installation’s sustainability goals. As detailed in Section X of the Phase II
Growth Plan report, regional coordination of sustainability efforts continue to pose
challenges. However, many communities have recently signed a Statement of Commitment
to pursue regional sustainability planning, and Fort Carson and other regional partners are
3
For additional information on civilian/military law enforcement collaboration, see Gibson, Ron, Deputy
Police Chief, Colorado Springs, Colorado Police Department, Colorado Springs, “Colorado: An Example of
Civilian and Military Police Cooperation,” The Police Chief, Vol. LXXVI, No. 12, December 2009.
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making progress toward more coordinated regional sustainability planning in order to assist
the post and other partners in meeting sustainability goals. A copy of this letter is attached
as Appendix B.
Fiscal Challenges
While utility providers have generally planned well for Fort Carson and regional growth, the
economic downturn has posed new challenges for local utility providers near Fort Carson.
Local utilities, such the City of Fountain Water Utility and Widefield Water & Sanitation
District, have several infrastructure projects planned to meet water needs related to Fort
Carson growth; these project would normally be funded via tap fees assessed on commercial
and residential developments. However, because residential and commercial construction
have been severely restricted because of limited financing and demand for new houses,
sufficient tap fees have not been collected to fund the projects. These fiscal constraints have
essentially resulted in cash-flow challenges for these utilities. Therefore, several water
infrastructure projects are currently on hold until alternative funding becomes available or
additional resources are identified. The key projects still in need of funding are listed in
Appendix C.
Community Response to Fort Carson Growth
Overall, the Fort Carson region continues to develop and enhance regional partnerships and
collaborative efforts to meet Fort Carson growth-related needs. However, fiscal challenges
continue to limit the region’s ability to address all service needs. Ongoing information-
sharing and coordination continue through the Growth Plan partnership groups and the
Colorado Defense Mission Coalition (CDMC). PPACG continues to work with Fort
Carson, local governments, and off-post providers in the region to ensure that up-to-date
information regarding troop movements, deployments, and other Fort Carson efforts that
affect local communities are shared throughout the region. These groups participated in the
analysis and development of recommendations for the Phase II Growth Plan and continue
to monitor and update the Phase I recommendations. The status of the Phase I
recommendations for all issues addressed in the Growth Plan is included in Appendix A.
Regional partners participating in the growth planning process continue to implement
Growth Plan recommendations and local plans, including developing new programs and
projects to support Fort Carson growth-related needs, as well as identify funding to meet
those needs. A list of key community projects that support Fort Carson growth is provided
in Appendix C. As this list demonstrates, the region has identified more than $200 million in
infrastructure and programming to assist the region and support Fort Carson growth. The
region has identified more than $100 million in local and other funding to meet these needs.
In some cases, local entities have maximized allowable debt capacity or drained capital
reserves to complete needed projects. Other infrastructure projects have been delayed
because of local and state budget restrictions. Therefore, additional funding is still required
to complete implementation of these projects. PPACG and our regional partners will
continue to update the Growth Plan recommendations and work to fund and implement
identified infrastructure and operational needs in the region to accommodate Fort Carson
growth.
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