Monument Comprehensive Plan

Town of Monument 2040 Comprehensive Plan: Existing Conditions Briefing

Date: July 4, 2025

Prepared For: Town Leadership, Steering Committee, and Stakeholders

Purpose: This briefing summarizes the key themes, most important ideas, and critical facts from the "Monument 2040 Existing Conditions Report" to inform the development of the new Comprehensive Plan. It highlights the town's current state, identifies strengths, and outlines challenges and opportunities across various sectors.

I. Project Overview: The Monument 2040 Comprehensive Plan

The "Monument 2040 Comprehensive Plan" is a critical initiative to guide the Town's land use and development decisions over the next 10 to 15 years. It is being developed in response to significant changes since the last plan in 2017, including "population growth, development pressures, turnover of staff and leadership, and regional stormwater challenges." The plan aims to "capitalize on unique local assets, and grow in a meaningful way that reflects its small town character."

The planning process is structured in three phases:

• Engage & Assess: Understanding existing conditions, demographics, land use, and transportation. This culminates in the "Existing Conditions Report."

• Envision: Exploring and testing land use strategies, and ideas for growth, housing, economic development, and natural resources.

• Plan & Implement: Refining strategies and compiling them into a draft Comprehensive Plan, with further community and stakeholder feedback before adoption.

This new plan builds upon previous efforts, including the 2017 Comprehensive Plan, 2023 Three-Mile Plan (annexation), 2023 Wayfinding & Streetscape Plan, 2022 Home Rule Charter, 2021 Community Survey, 2018 Downtown Assessment and Action Step Report, 2006 Stormwater Master Plan, 2005 Community Revitalization Partnership Report, and 2003 Parks, Trails, and Open Space Master Plan. Many of these past efforts highlighted recurring issues such as the "need for improved communication in the community, creating a strategic plan for downtown revitalization, and improved planning for the Town’s network of parks and open spaces."

II. Community Profile & Demographics

Key Strengths and Characteristics:

• Growing Community: Monument has experienced rapid growth, with its population nearly doubling from 5,500 in 2010 to approximately 11,000 residents in 2023, representing a compound annual growth rate (CAGR) of 5.5% (compared to El Paso County's 1.3%).

• Family-Oriented: A significant portion of Monument's growth (around 6,200 residents between 2010 and 2023) has been in "families with children, as well as empty nesters and young seniors." Roughly 75% of households are family households, and 42% have at least one child, indicating a strong family character.

• Highly Educated & Affluent: Monument residents are highly educated, with "58% of its adult population having earned a Bachelor’s degree or higher." This translates to a high median household income of "$114,700, approximately 31% higher than the El Paso County median of $87,500." Over 40% of Monument households earn more than $150,000 annually.

• Quality Schools: Lewis Palmer School District 38 is consistently identified as a "key asset and a reason why young families move into town."

• Small-Town Character: Residents highly value Monument's "enduring small-town character that residents describe as welcoming, peaceful, and family-friendly." They appreciate the "slower pace, low density, and safety."

• Strategic Location & Natural Beauty: The town's location between Denver and Colorado Springs offers convenient urban access while providing "picturesque setting and views of the surrounding mountains and landscapes."

• Safe Environment: Low crime rates and safe public spaces contribute significantly to the perceived quality of life.

Challenges and Concerns:

• Growth Pressures: The rapid pace of residential and commercial development is a major concern, threatening the town's character and straining infrastructure. Residents worry about "water availability, wildfire risks, and destruction of green space and wildlife habitats."

• Maintaining Small-Town Identity: There is a strong fear that "rapid, uncoordinated growth is transforming Monument’s identity," leading it to resemble larger neighboring cities.

• Housing Diversity & Affordability: While housing stock is predominantly single-family homes (76% detached, 10% attached), there is a perceived "lack of diverse housing options" and rising costs. This impacts "seniors who want to downsize without leaving the community, families looking for starter homes, or young professionals." Monument's average single-family home sale price ($653,700 in 2024) is higher than the county average ($543,600).

• School Capacity: Concerns about "school overcrowding and the capacity of the education system to accommodate population growth."

• Lack of Young Adults: Monument has a lower proportion of young adults (15% aged 18-29) compared to El Paso County (25%), contributing to a higher median age.

• Identity Confusion (Tri-Lakes Region): Many residents in surrounding unincorporated areas (e.g., Woodmoor, Gleneagle) identify as living in Monument due to shared ZIP codes and services, creating confusion about actual municipal boundaries and service providers. This necessitates "stronger communication about jurisdictional boundaries."

III. Economy & Market Assessment

Employment & Workforce:

• Job Growth: Monument saw consistent job growth, adding approximately 2,500 jobs between 2002 and 2022, a 5.9% annual growth.

• Key Sectors: Manufacturing, retail, and accommodation/food services are the largest employment sectors. However, manufacturing jobs have shown slow growth, with recent layoffs at a major employer. Growing sectors include "administration and support, waste management and remediation; health care, social assistance and education; and retail trade."

• Commuting Patterns: Very few Monument residents work within the town (only 6%), with 94% commuting elsewhere. "About 65% of Monument’s workforce is employed in other El Paso County communities, primarily Colorado Springs," and 29% commute along the I-25 corridor to areas like Denver. This highlights a significant "jobs-housing imbalance."

Retail Market:

• Substantial Inventory: Monument has 1.2 million SF of retail space, "more than double the retail space per capita of El Paso County overall." Much of this (72%) is concentrated in the Triview Metropolitan District, particularly along Jackson Creek Parkway (e.g., Monument Marketplace, Jackson Creek Crossing).

• Aging Stock & Recent Development: Half of Monument's retail space was built between 2000-2009. Recent development (since 2010) has been primarily smaller-format retail, and "residential growth has outpaced retail development."

• Leakage & Surplus: While Monument serves daily needs, there is "leakage" (demand exceeding supply) in "limited-service restaurants (fast food, fast casual and carryout restaurants), miscellaneous retailers (pet and office supplies), and clothing and accessory stores." Conversely, there's a surplus in general merchandise, automotive parts, building materials, grocery, and gas stations. This suggests opportunities for more "boutique locally owned clothing stores" and diverse dining options like "sit-down restaurants, not chains, as well as breweries, evening entertainment places with drinks, yoga studios, and gyms."

• Regional Competition: Monument faces significant competition from larger, more experiential retail destinations in North Colorado Springs and Castle Rock, which have seen much more recent and larger-scale retail development (e.g., North Colorado Springs' retail inventory tripled since 2015).

Industrial Market:

• Growing Sector: While a small share of the county's industrial inventory (2%), Monument's location along I-25 makes it attractive. "About 6% of all industrial development in the county since 2015 was built in Monument," and "25% of the industrial development pipeline is in Monument."

• Typology Shift: New industrial development is larger (average 66,000 SF post-2015) than older properties (average 32,000 SF pre-2015), focusing on warehouses and distribution centers. This is a concern for some residents who "would like to see fewer industrial developments in Monument. You can see them from afar."

Office Market:

• Limited & Aging: Monument has very little office space (219,700 SF), mostly older Class B and C properties. "Only 3,200 SF of office has been developed in Monument since 2015," and there is "no planned office space."

• Low Demand: There appears to be limited demand for new office development, as most regional office growth is concentrated in Colorado Springs, particularly near Interquest Parkway, due to higher retail and residential density.

IV. Downtown Monument: Challenges & Opportunities

Downtown Monument, the historic core incorporated in 1879, is a unique asset with significant potential.

Challenges:

• Infrastructure & Design: "Narrow, inconsistent sidewalks, limited parking, and poorly defined boundaries hinder placemaking and accessibility." The "built form doesn’t present a strong entrance to the downtown" on 2nd Street.

• Limited Activation: While there are long-standing businesses, "newer businesses struggle with visibility and foot traffic." Church buildings, significant land users, are often "inactive, shuttered, and empty" during peak downtown hours.

• Zoning Limitations: The current DB (Downtown Business) zoning has a restrictive list of permitted uses and treats residential/mixed-use as conditional, hindering desired vibrancy. Density limits for multifamily are unclear.

• Lack of Cohesion: The mix of municipal offices, churches, single-family homes, and commercial spaces can feel "disjointed and make it difficult to establish a firm sense of place downtown."

• Separation from Limbach Park: Limbach Park, while a premier gathering space, is "separated from the downtown core by railroad tracks," limiting integration and visibility for businesses.

• Monument Lake Access: Access from downtown to Monument Lake is "tedious for pedestrians and cyclists" due to railroad tracks and private property.

Opportunities:

• Leverage History & Charm: The downtown's "historic character, pedestrian scale, and picturesque location" are sources of community pride.

• Implement Previous Plans: Strategies from past downtown plans (2018, 2023) regarding "gateway signs, wayfinding signs, and streetscape improvements" have public support and should be actively pursued.

• Promote Mixed-Use Development: Encourage "multistory mixed-use buildings" and repurpose land west of the railroad, like the Dellacroce Ranch site, for transit-oriented development.

• Expand Local Businesses: Residents desire a "thriving network of locally owned businesses" beyond chains, including "healthier restaurants, independent coffee shops, craft breweries, and artisan goods."

• Activate Public Spaces: Increase "seasonal events, live music, farmers markets, and festivals" to drive visitation and support businesses.

• Enhance Connectivity: Improve pedestrian and cyclist access, especially to Limbach Park and Monument Lake, through "wayfinding and pathway improvements." The Santa Fe Trail is a key asset that can "bring visitors to Monument."

• Update Zoning & Design: Reevaluate DB zoning for multifamily density, parking, and design standards to allow "profitable, practical development" and "creative, impactful signs that contribute to the historic character."

• Engage Stakeholders: Include "houses of worship" as allies in downtown revitalization.

• Address Accessibility Barriers: Improve the unpaved Adams Street and consider celebrating alleys for placemaking.

V. Infrastructure, Natural Resources, & Stormwater Management

Infrastructure Systems (Water, Sewer, Energy):

• Multi-Jurisdictional Management: Water and sewer services are managed by numerous entities (Monument Water Dept., Monument Sanitation District, Woodmoor Water and Sanitation District, Triview Metropolitan District, Pinyon Pines Water District), leading to "complexity and fragmentation."

• Water Supply Concerns: Reliance on Denver Basin aquifers for water supply "poses sustainability concerns," as the aquifer is experiencing depletion. Wells may need to go 2500 feet deep in the future.

• Sufficient Wastewater Capacity: The Tri-Lakes Wastewater Treatment Facility has ample capacity (4.2 MGD, treating 1.24 MGD currently).

• Renewable Water Projects: Ongoing projects like the Northern Delivery System (Triview) and Loop Water Authority Project (Monument, Woodmoor, Donala) aim to bring renewable water to reduce groundwater reliance. However, the "Town Council has not yet committed to any actions regarding the Towns future water supply situation."

• Energy Providers: Mountain View Electric Association (electricity) and Black Hills Energy (natural gas) provide essential services.

Stormwater Management:

• Ongoing Challenges: Uncontrolled stormwater from past unregulated development "has negatively impacted downstream landscapes, streambeds, and ecological areas," a "serious consideration for the Town."

• Updating Plans: The Town is updating its 2006 Stormwater Management Plan and has initiated the Monument Branch Repair Project to "reduce sediment buildup in Monument Creek."

• Enforcement Needs: There is a need for "stringent stormwater management standards for new developments, requiring full drainage reports instead of drainage letters."

Natural Resources & Environment:

• Valued Natural Beauty: Residents appreciate the "abundance of parks, trails, open spaces, and recreational opportunities" and the "scenic views and natural beauty."

• Wildlife Corridors: The Palmer Divide is a "vital ecological corridor for wildlife movement."

• Preble's Meadow Jumping Mouse: This federally listed threatened species has critical habitats along Monument Creek, imposing "land-use restrictions to prevent further habitat loss" in riparian zones.

• Wetlands: Crucial for habitat, water filtration, and flood mitigation.

• Environmental Stewardship: Strong community interest in "lower-impact development that incorporates fire-resistant materials and prioritizes sustainable, drought-tolerant native landscaping, dark sky lighting, and renewable energy."

VI. Mobility & Connectivity

Roadway Network:

• I-25 as a Divider: Interstate 25 "creates a barrier between the west and east sides of Monument that limits connectivity between them."

• Interchanges: Highway 105/2nd Street and Baptist Road provide key access to I-25.

• Railroad Constraints: The BNSF and Union Pacific Railways limit the road network, impacting crossings and safety.

• Topography Impact: Curvilinear streets in some neighborhoods reduce connectivity.

• Current Projects: The Jackson Creek Parkway Widening Project is a major improvement, adding four lanes, sidewalks, and bike lanes. Other projects include Highway 105 improvements and Beacon Lite Road sidewalks.

Pedestrian, Bicycle & Transit:

• Limited Facilities: While sidewalks exist downtown and in newer developments, there are "gaps" and "some of the older neighborhoods have local streets without sidewalks." Bicycle lanes are "limited."

• Unsafe Active Transportation: Many feel "unsafe traveling around Monument as a pedestrian or cyclist," with key destinations difficult to reach without a car.

• Santa Fe Regional Trail: This 14-mile trail is a "key connector" but its full potential is not leveraged in downtown.

• Limited Public Transit: Transit is limited to CDOT's Bustang service to Denver Union Station, offering little local mobility for "seniors and youth."

Challenges:

• Traffic Congestion: "Traffic congestion, particularly along Highway 105 and I-25, is a key concern."

• Uncoordinated Growth & Infrastructure: "Current infrastructure is not keeping up with the pace of development."

• East-West Divide: The "Tale of Two Cities" dynamic means residents on the east side feel disconnected from "historic Monument" on the west side.

• Semi-Truck Parking: Monument's I-25 location makes it a frequent stop for semi-trucks, leading to unsightly and potentially dangerous overnight parking on exit ramps.

Opportunities:

• Improve Active Transportation: Expand "bike and pedestrian pathways throughout town," including "more sidewalks, safer pedestrian crossings (especially across Highway 105 and I-25), dedicated bike lanes, and trails connecting different parts of town."

• Leverage Natural Features for Trails: Expand the trail system to "close gaps, embrace natural open areas in Monument, and connect the east and west sides of town without relying on sidewalks or automobiles."

• Regional Collaboration: Engage with regional partners like Pikes Peak Area Council of Governments (PPACG) and CDOT for transportation planning and funding.

• Address Semi-Truck Parking: Explore opportunities to "construct and monetize a semi-truck parking facility" to reduce off-ramp parking.

VII. Land Use & Zoning

Land Use Patterns:

• I-25 Influence: The Interstate is a "defining feature that’s driven commercial development," creating an "established older area on the west side" and "intensity of commercial and newer residential land uses on the east side."

• Predominant Single-Family: Single-family residential is the "predominant land use" on the east side (45%), with smaller multifamily presence (4%).

• Vacant Land: A significant portion of land is "vacant or unused" (27% east, 43% west), much of which is "part of approved development plans currently underway."

• Industrial Concentration: Light industrial uses are primarily west of I-25, with manufacturing/warehousing in the south and smaller operations (e.g., outdoor storage) in the north.

Zoning Code Analysis (Title 18 – Land Development Code, adopted 2021):

• Residential Zoning: Five districts (LLR, SFD-1, SFD-2, RA, MHP) exist, but RA is the only multifamily district, allowing for up to 25 dwelling units per acre. Duplexes are not permitted in SFD districts.

• Commercial Zoning: Four districts (DB, CC, BC, LI). DB aims to preserve downtown character but treats residential/mixed-use as conditional. CC allows more intense, auto-oriented uses.

• Over-reliance on PUDs: "Large parts of Monument are not designated in any of the zoning districts... Instead they are zoned 'Planned Unit Development'." This creates a lack of clarity, as PUDs "become a de facto zoning district" without being defined in the code or indicating underlying base zoning.

• Outdated Land Use Lists: The exhaustive list of permitted/conditional/prohibited uses is problematic as it "adds time and expense for new businesses to get zoning approval" for evolving or new concepts.

• Downtown Design Standards: Adopted in 2021, these aim to improve the built environment with height limits (35 ft max, 3 stories), articulated facades, and pedestrian amenities. Their impact on new construction is yet to be demonstrated.

Challenges:

• Unclear Multifamily Density: The residential density allowed for multifamily or mixed-use in the DB district is "not clear in the code."

• Inconsistent Development Review: Monument has a "reputation as an insular community that is difficult to work with" due to an "unpredictable and inconsistent" development review process.

• Limited Housing Options: The dominance of single-family zoning and limited multifamily options (especially ownership-based condominiums) restricts housing diversity.

• Disjointed Services: The influence of Metropolitan Districts (e.g., Triview) creates "disjointed development and service provision," contributing to identity confusion.

Opportunities:

• Comprehensive Zoning Update: Update the "Three Mile Plan" and zoning code to reflect current demographics and growth aspirations.

• Facilitate By-Right Development: Introduce a range of multifamily zoning districts with varying densities and clear bulk regulations to "facilitate more by-right development" and reduce unpredictability.

• Mixed-Use Focus: Encourage mixed-use development, especially in downtown and gateway corridors, to support economic vitality and diverse housing.

• Improve Development Reputation: Educate officials and streamline processes to make Monument an "ally for growth and development instead of an impediment."

• Unified Identity: Use mobility improvements and branding initiatives to connect the "tale of two cities" (east and west of I-25).

• Strategic Growth Areas: Analyze "opportunity sites" like Dellacroce Ranch for residential development that meets demand for "smaller, more attainable detached and attached housing."

VIII. Community Life & Culture

Community Engagement Feedback (Monument Speaks):

• Strengths: Small-town character, strategic location, strong sense of community, high-quality schools, safe environment, access to nature/outdoor recreation, scenic views, community events (e.g., 4th of July, Concerts in the Park), historic downtown charm.

• Concerns: Rapid growth and development pressure (threatening character, straining infrastructure, water availability, wildfire risk), traffic/road infrastructure (limited connectivity, unsafe intersections, congestion), preservation of small-town character, school overcrowding, balance of commercial development (too many chains, desire for local businesses), need for more and better parks/recreational amenities (YMCA overcrowded), governance/community engagement (desire for transparency, accountability, public involvement), lack of facilities/programs for youth.

Parks, Recreation, & Open Space:

• Layered System: Parks and open spaces are managed by multiple entities: Town of Monument, Triview Metropolitan District, El Paso County, and HOAs. This creates a "fragmented" system with varying maintenance and connectivity.

• Key Parks: Dirty Woman Creek Park (multi-use, regional draw, culturally significant name), Limbach Park (beloved civic space, events, but separated by railroad), Monument Lake (natural beauty, fishing, but access issues).

• Service Level Gaps: While the town meets general park per capita benchmarks when including all public open space (93.38 acres vs. 55 acres needed for a 5.0-acre benchmark), there's a "shortfall of 27.7 acres" for active recreation space alone. Community feedback indicates concerns about park accessibility and connectivity.

• Triview's Role: Triview Metropolitan District plays a significant role in park provision, particularly in newer subdivisions, but these parks "often function independently of the Town’s vision."

Community Events & Public Art:

• Valued Traditions: Annual events like the Tri-Lakes 4th of July festival, Concerts in the Park, and Monument Tree Lighting foster community pride and draw visitors.

• Event Gaps: Programming is "heavily seasonal," with few events in late fall/winter. There's a lack of "age-specific offerings (youth, teens, older adults)," "cultural and heritage events," "wellness and fitness events," and large-scale "multi-day festivals."

• Public Art Program: The Town assumed management of the ArtSites program in 2023, featuring permanent and rotating sculptures with audio tours. This is seen as a "growing asset."

Challenges:

• Limited Indoor Venues: A "lack of available indoor civic venues" limits year-round programming.

• Accessibility to Downtown: Only 14% of downtown visitors are Monument residents; 30% are from Unincorporated Monument, and 43% from other parts of El Paso County. This indicates "barriers impacting local trips downtown."

• Community Belonging: A desire for "more opportunities to build relationships through neighborhood activities," accessible "community-owned venue," and better "integration for newcomers and culturally diverse populations."

Opportunities:

• Expand Event Calendar: Create more year-round activities, fall/winter programming, and targeted events for various age groups, utilizing underutilized venues like Monument Lake or Dirty Woman Creek Park.

• Formalize Park Governance: Explore establishing a "dedicated park district or foundation" to secure resources and accountability for park planning and maintenance.

• Enhance Trail System: Prioritize "off-street, low-stress connections" between neighborhoods, parks, and downtown, addressing railroad crossings and sidewalk gaps.

• Rethink Open Space Standards: Demand "higher expectations for meaningful open space" in new developments, beyond just detention ponds.

• Integrate Public Art: Broaden the ArtSites program's reach across parks and trails, using art for "storytelling" and "local expression."

• Strengthen Civic Life: Create "more gatherings and events throughout Monument to connect more businesses and communities."

NotebookLM can be inaccurate; please double check its responses.y