COMMISSIONERS:

DARRYL GLENN (PRESIDENT) MARK WALLER (PRESIDENT PRO TEMPORE)

STAN VANDERWERF

LONGINOS GONZALEZ PEGGY LITTLETON

PLANNING AND COMMUNITY DEVELOPMENT DEPARTMENT CRAIG DOSSEY, EXECUTIVE DIRECTOR

2880 INTERNATIONAL CIRCLE, SUITE 110 COLORADO SPRINGS, CO 80910-3127

PHONE: (719) 520-6300 FAX: (719) 520-6695

WWW.ELPASOCO.COM

TO: El Paso County Planning Commission

Tim Trowbridge, Chair

FROM: Kari Parsons, PM/Planner II

Elizabeth Nijkamp, P.E., Engineer Review Manager

Craig Dossey, Executive Director

RE: Project File #: SF-16-010

Project Name: Gleneagle Golf Course Residential Infill Development

Final Plat

Parcel Nos.: Multiple

OWNER: REPRESENTATIVE:

Westbrook Capital Holdings, LLC 9800 Pyramid Court, Suite 400 Englewood, CO. 80112

William Guman and Associates, LTD 731 North Weber Street, Suite 10 Colorado Springs, CO. 80903

Commissioner District: 1

Planning Commission Hearing Date: 3/21/2017

Board of County Commissioners Hearing Date TBD

EXECUTIVE SUMMARY

A request by Westbrook Capital Holdings, LLC, for approval of a final plat to include 56

single-family residential lots, three (3) open space tracts, and three (3) tracts to be used

as roadway islands. The parcels total 120.21 acres and are currently zoned RR-5

(Residential Rural). The property is located north of Northgate Road along both sides of

Gleneagle Drive and within Section 6, Township 12 South, Range 66 West of the 6th

Principal Meridian. The property is within the Tri-Lakes Comprehensive Plan (2000)

area.

A concurrent application to rezone 32.91 acres of the combined parcels, totaling 120.21

acres, to RS-6000 (Residential Suburban) zoning district is also being requested. The

single-family lots within the plat will be located within the area proposed for RS-6000

zoning. The newly created open space tracts are proposed to remain zoned pursuant to

the RR-5 zoning district.

Multiple concurrent land use requests are being processed for this development. The

recommended order in which the various applications should be acted upon is as

follows:

The map amendment (rezone) (P-16-003) from the PUD to the RR-5 zoning

district for the patio home development. Approval of this request effectively

nullifies the existing development agreement which limits redevelopment of

the golf course.

The sketch plan amendment (SKP-16-001) request, which establishes broad

land uses and compatibility.

The rezone request (P-16-004) from the RR-5 to the RS-6000 zoning district

for a portion of the overall sketch plan amendment.

A preliminary plan (SP-16-004), which identifies the 56 single-family lots,

three (3) open space tracts, and three (3) tracts to be used as roadway

islands.

A final plat (SF-16-010) for the 56 single-family lots and multiple tracts for

roadway islands, drainage and open space.

A. REQUEST/WAIVERS/AUTHORIZATION

Request: A request for final plat approval for the creation of 56 single-family residential

lots, six (6) tracts, and public right-of-way.

Waiver(s): The following waivers were addressed with the Preliminary Plan (SP-16-

004): 1) the applicant requested a waiver of Section 8.4.4.D.2, More than 25 Lots on a

Dead-End Road, of the Land Development Code, and 2) the applicant and Donala

Water and Sanitation District requested a waiver of Section 8.4.7.B.7.b, requiring that

the water supply be sufficient for 300 years.

Authorization to Sign: Final Plat, Subdivision Improvements Agreement, Detention

Pond Maintenance Agreement and any other documents necessary to carry out the

intent of the Board of County Commissioners.

B. PLANNING COMMISSION SUMMARY

Request Heard:

Recommendation:

Waiver Recommendation:

Vote:

Vote Rationale:

Summary of Hearing:

Legal Notice:

C. APPROVAL CRITERIA

In approving a final plat, the BoCC shall find that:

The subdivision is in conformance with the goals, objectives, and policies of the

Master Plan;

The subdivision is in substantial conformance with the approved preliminary plan;

The subdivision is consistent with the subdivision design standards and regulations

and meets all planning, engineering, and surveying requirements of the County for

maps, data, surveys, analyses, studies, reports, plans, designs, documents, and

other supporting materials;

A sufficient water supply has been acquired in terms of quantity, quality, and

dependability for the type of subdivision proposed, as determined in accordance with

the standards set forth in the water supply standards [C.R.S. §30-28-133(6)(a)] and

the requirements of Chapter 8 of this Code;

A public sewage disposal system has been established and, if other methods of

sewage disposal are proposed, the system complies with State and local laws and

regulations, [C.R.S. §30-28-133(6)(b)] and the requirements of Chapter 8 of this

Code;

All areas of the proposed subdivision which may involve soil or topographical

conditions presenting hazards or requiring special precautions have been identified

and that the proposed subdivision is compatible with such conditions [C.R.S. §30-

28-133(6)(c)];

Adequate drainage improvements are proposed that comply with State Statute

[C.R.S. §30-28-133(3)(c)(VIII)] and the requirements of this Code and the ECM;

Legal and physical access is provided to all parcels by public rights-of-way or

recorded easement, acceptable to the County in compliance with this Code and the

ECM;

Necessary services, including police and fire protection, recreation, utilities, and

transportation systems, are or will be made available to serve the proposed

subdivision;

The final plans provide evidence to show that the proposed methods for fire

protection comply with Chapter 6 of this Code;

Off-site impacts were evaluated and related off-site improvements are roughly

proportional and will mitigate the impacts of the subdivision in accordance with

applicable requirements of Chapter 8;

Adequate public facilities or infrastructure, or cash-in-lieu, for impacts reasonably

related to the proposed subdivision have been constructed or are financially

guaranteed through the SIA so the impacts of the subdivision will be adequately

mitigated;

The subdivision meets other applicable sections of Chapter 6 and 8; and

The extraction of any known commercial mining deposit shall not be impeded by this

subdivision [C.R.S. §34-1-302(1), et seq.]

D. LOCATION

North: RS-6000 (Residential Suburban) Single-family

South: RS-6000 (Residential Suburban) Single-family

East: Multiple Townhome/Single-family

West: RS-6000 (Residential Suburban) Single-family

E. BACKGROUND

The Gleneagle Master Plan (MP-84-020) was approved by the Planning Commission as

an amendment to the County Master Plan on January 23, 1985. The Plan consisted of

a golf course (private open areas) with a driving range and clubhouse, single-family

residential, multi-family residential and commercial land uses. Development-specific

sketch plans and sketch plan amendments are no longer considered to be amendments

to the County Master Plan. Sketch plans and major sketch plan amendments are now

heard by both the Planning Commission and the Board of County Commissioners.

The golf course (private open areas) has remained zoned as what is now known as the

RR-5 (Residential Rural) zoning district. Rezoning requests to PUD (Planned Unit

Development) zoning districts were approved for the multi-family and commercial

developments within the original Gleneagle Master Plan. The single-family residential

areas adjacent to the golf course are zoned RS-6000 (Residential Suburban). The

Gleneagle golf course closed in November of 2013.

A sketch plan amendment (SKP-08-001) was approved by the Board of County

Commissioners on July 9, 2009. The sketch plan amendment identified a portion of the

golf course for development of 47 patio home units. A Planned Unit Development (PUD

-08-004) rezoning was also approved on July 9, 2009, which converted a portion of the

golf course, specifically the driving range, to 47 patio homes. A development

agreement limiting the future use of the remaining golf course land (private open areas)

was recorded in the El Paso County Clerk and Recorder’s records at Reception Number

210130664 on December 22, 2010, pursuant to the PUD approval. The development

agreement prevents land use changes within the remaining golf course land or any

changes to the planned residential and commercial land uses as approved in the 1985

Gleneagle Master Plan.

A concurrent request (P-16-003) for approval to rezone the PUD area back to the RR-5

zoning district will have the effect of nullifying the development agreement and the 47

unit patio home development as previously approved. That request received a

recommendation of approval from the Planning Commission on October 18, 2016, and

is anticipated to be scheduled for hearing before the Board of County Commissioners

concurrent with this request.

A sketch plan amendment (SKP-16-001) to allow the development of 56 single-family

residential lots is also requested for approval. The 56 proposed single-family lots will be

located throughout the closed golf course. The remaining closed golf course land will be

re-planned as private open space to be utilized by the Gleneagle community. The open

space will not be owned and maintained by the County. The amended sketch plan

request received a recommendation of approval from the Planning Commission on

December 6, 2016, and is anticipated to be scheduled for hearing before the Board of

County Commissioners concurrent with this request.

A third request for approval of a rezoning (P-16-004) from the RR-5 (Residential Rural)

zoning district to the RS-6000 (Residential Suburban) zoning district for a 32.91 acre

portion of the closed golf course received a recommendation of approval from the

Planning Commission on December 6, 2016, and is also anticipated to be scheduled for

hearing before the Board of County Commissioners concurrent with this request.

Approval of a development agreement is also requested with this rezoning.

It is anticipated that the new development agreement will be processed and ultimately

recorded with the concurrent rezoning request. The agreement anticipates the creation

of 56 single-family lots within the development. The development agreement will also

specify the allowed uses as well as the ownership and maintenance of the private open

areas or open space within the areas of the closed golf course that are not proposed for

redevelopment. In addition, the development agreement will require the developer to

convey the open space within 60 days of the County’s preliminary acceptance of public

improvements, after final plat approval. The purpose for the delay of the conveyance of

open space land from the developer to the Gleneagle Civic Association (GCA) is to

ensure that the developer and not the GCA complete the necessary public and private

improvements. The GCA is a homeowners association that includes 645 properties

within the Donala Subdivision Filing No. 1 and No. 2 developments within the Gleneagle

community. The improvements that are required to be completed by the developer

include, but are not limited to, installation of detention ponds, drainage infrastructure,

sidewalks, roadways, median islands, curb and gutter; and the demolition of the existing

clubhouse, tennis courts and pool. The maintenance responsibilities of the open space

depicted in the preliminary plan area will be that of the Gleneagle Civic Association.

Once the developer conveys the land to the GCA, the GCA will have the ability to re-

plan the open space for recreational purposes, including recreational facilities under the

standard operating procedures of the GCA by-laws.

There are two existing tunnels that were a part of the golf courses pedestrian and golf

cart path trail system under the existing Gleneagle Drive, which is a public collector

right-of-way. The northern tunnel is proposed to remain open to provide pedestrian

access under Gleneagle Drive to connect to the open space tracts. The tunnel is

proposed to be maintained by El Paso County. The southern tunnel is proposed to be

filled in and closed by the developer.

F. ANALYSIS

1. Land Development Code Compliance

This application meets the final plat submittal requirements, the General

Development Standards in Chapter 6, the standards for Divisions of Land in

Chapter 7, and the standards for Subdivision in Chapter 8 of the El Paso County

Land Development Code (2016).

2. Zoning Compliance

The developable area within the proposed final plat is proposed to be rezoned to

the RS-6000 (Residential Suburban) zoning district. The open space areas will

remain zoned as RR-5 (Residential Rural). The density and dimensional

standards of the RS-6000 (Residential Suburban) zoning district proposed for

this property, as established in Section 5.4.2, Table 5-4 of the Code, are listed

below:

Minimum zoning district lot size –6000 square feet *

Setbacks – 25 feet from front and rear lot lines, and 5 feet from side lot

lines

Maximum building height – 30 feet

Maximum lot coverage – 40 percent two-story, and 45 percent single-story

*Recommended Condition No. 12 further requires the future lot sizes to be

a minimum of 10,000 square feet, which exceeds the zoning district

minimum standard.

3. Policy Plan Analysis

If the sketch plan amendment and the rezone request that are being concurrently

reviewed with this final plat request are found to be in conformance with the El

Paso County Policy Plan (1998) and are thereafter approved by the Board of

County Commissioners, then a finding of conformance with the Policy Plan could

also be made for this final plat request since this request is consistent with the

sketch plan amendment and rezoning requests.

4. Small Area Plan Analysis

If the sketch plan amendment and the rezone request that are being concurrently

reviewed with this final plat request are found to be in conformance with the Tri-

Lakes Comprehensive Plan (2000) and are thereafter approved by the Board of

County Commissioners, then a finding of conformance with the Tri-Lakes Plan

could also be made for this final plat request since this request is consistent with

the sketch plan amendment and rezoning requests

5. Other Master Plan Elements

The Master Plan for Mineral Extraction (1996) identifies upland deposits

comprised of sand, gravel, silt and clay in the area of the subject property. The

mineral rights certification prepared by the applicant indicates that there are no

severed mineral rights associated with the property.

G. PHYSICAL SITE CHARACTERISTICS

1. Hazards

A geology and soils report was submitted by Rocky Mountain Group, dated

September 19, 2016, which provides a comprehensive geologic overview of the

final plat area. Engineered site plans will be required for a select number of lots

within the subdivision, as identified on the plat, at the time of residential site plan

review and approval prior to building permit issuance as identified in the notes

section on the final plat.

2. Wildlife

Potential impact to wildlife is generally moderate as depicted in the El Paso

County Wildlife Habitat Descriptors Map (1996). The U.S. Fish and Wildlife

Service, and Colorado Parks and Wildlife have not provided comments on this

application. The El Paso County Community Services, Environmental Division,

concluded that development of the portions of the preliminary plan may interfere

with habitat and wildlife known to the State of Colorado to be threatened, but did

not specify which species. The Division recommends the applicant obtain

information regarding wildlife protection measures from Colorado Parks and

Wildlife. The applicant may choose to incorporate wildlife protection measures

into the covenants at the time of final plat(s) recordation.

3. Floodplain

FEMA Flood Insurance Rate Map (FIRM) panel number 08041C0287 shows that

the property is located outside the 500-year floodplain (Zone X).

4. Drainage and Erosion

The Gleneagle Golf Course Residential Infill Development is located within the

Black Forest Drainage Basin (FOMO 3600). This site is subject to the El Paso

County Drainage Basin Fee Program, fees will be due at the time of plat

recordation.

The associated Final Drainage Report proposes two (2) private on-site

detention/water quality ponds as well as two (2) private water quality ponds to

mitigate impacts generated by development of the site. All of the proposed

private ponds and drainage swales will be subject to a private detention basin

stormwater quality best management practice maintenance agreement. The Final

Drainage Report with plan will be required to be approved by the County

Engineer prior to scheduling the plat before the Board of County Commissioners

hearing (see Recommended Conditions of Approval No. 15 and 17 below).

The two (2) proposed private detention ponds outfall between two (2) existing

single-family homes at separate locations along Westchester Drive. No drainage

easement currently exists between the lots along Westchester Drive. Additional

analysis is required to confirm that there are no adverse impacts to the

downstream property owners and County infrastructure prior to scheduling of this

final plat for Board of County Commissioners hearing (see Recommended

Conditions of Approval Nos. 15 and 17 below).

A grading and erosion control plan has been submitted which is required to

identify temporary and permanent best management practices (BMPs) to prevent

sediment and debris from affecting adjoining properties and the public

stormwater system before, during, and after grading activities. The analysis for

the outfall of the private detentions ponds will have a direct effect on the grading

and erosion control plan. The grading and erosion control plan will be required to

be approved by the County Engineer prior to scheduling this final plat for hearing

before the Board of County Commissioners (see Recommended Conditions of

Approval Nos. 15 and 17 below).

5. Transportation

The redevelopment of the Gleneagle Golf Course will result in an additional 0.68

lanes miles of developer constructed roadway infrastructure to be dedicated to

the County for ownership and ongoing maintenance. The developer will construct

three (3) public roads to be built to County road standards off of Gleneagle Drive.

The roads will include curb, gutter, and sidewalks. The developer will also

construct three (3) minor frontage roads along Gleneagle Drive, with islands in

between the frontage roads and Gleneagle Drive to be maintained by Westbrook

Capital Holdings, LLC, to limit the direct access to Gleneagle Drive. Lots 12, 16,

and 24 will be allowed direct access to Gleneagle Drive.

The Countywide Road Impact Fee Program applies to this development. Fees

will be paid at the time of issuance of a building permit for each lot within the

subdivision.

H. SERVICES

1. Water

Sufficiency: Donala Water and Sanitation District has committed to providing

services. The applicant and Donala Water and Sanitation District requested a

waiver of Section 8.4.7.B.7.2, requiring that the water supply be sufficient for 300

years with the associated preliminary plan.

Quality: Sufficient

Quantity: Sufficient, if the waiver request is approved with the concurrent

preliminary plan request.

Dependability: Sufficient, if the waiver request is approved is approved with the

concurrent preliminary plan request.

Attorney’s summary: The County Attorney’s Office is anticipated to make a

recommendation for a finding of sufficiency for water quantity and dependability

with the accompanying preliminary plan request. El Paso County Public Health

has made a recommendation for a finding of sufficiency in terms of water quality

with the accompanying preliminary plan request.

2. Sanitation

Donala Water and Sanitation District has committed to providing wastewater

services.

3. Emergency Services

The site is within the boundaries of the Donald Wescott Fire Protection District.

The District was sent a copy of the final plat request. The District has no

objections to this request. A commitment letter from the District was provided at

time of final plat submittal.

4. Utilities

Mountain View Electric Association will provide electric service and Black Hills

Energy will provide natural gas service to the development. Standards utility

easements are shown on the final plat.

5. Metropolitan Districts

The site is not within a metropolitan district.

6. Parks/Trails

El Paso County Community Services, Parks Division, did not identify any planned

parks or trails in or near the property. The Gleneagle Civic Association will have

the ability, after taking ownership of the open space tracts, to modify the use of

the open space for specific recreational purposes including recreational facilities

pursuant to the standard operating procedures of the GCA by-laws. Park fees in

lieu of land dedication for regional parks (Area 2) in the amount of $18,816 and

fees in lieu of land dedication for urban parks (Area 2) in the amount of $11,872

shall be paid at time of final plat recordation.

7. Schools

The site is within the boundaries of Academy School District No. 20. Fees in lieu

of school land dedication in the amount of $17,136 shall be paid to El Paso

County for the benefit of Academy School District No. 20 at time of plat

recordation

I. APPLICABLE RESOLUTIONS

Approval Page 19

Disapproval Page 20

J. STATUS OF MAJOR ISSUES

At this time the following issues have been identified, each of which shall be

addressed prior to scheduling the final plat request for hearing before the Board of

County Commissioners:

Approval of the Preliminary/Final Drainage Report is pending. At this time, an

analysis is still needed detailing the downstream impacts caused by the

outfall from the two detention/water quality ponds. If this analysis shows a

negative impact to the downstream properties and/or County infrastructure,

the developer will be required to provide easements and design a pipe

system to carry the flow to a suitable outfall.

Approval of the stormwater management plan is pending final analysis of the

detention pond outfall as discussed immediately above.

Approval of the engineering construction documents is also pending final

analysis of the detention pond outfall.

Approval of the grading and erosion control plan is pending due to the fact

that the potential downstream impacts have not been fully analyzed. The

preliminary/final drainage report will need to be approved concurrent with the

grading and erosion control plan.

Approval of the operation and maintenance manuals is pending. Until the

design of the detention ponds and water quality ponds is complete these

documents cannot be completed.

Approval of the financial assurance estimate is pending. This document will

need to match the final drainage report and the approved grading and erosion

control plan prior to approval by the County Engineer.

K. CONDITIONS AND NOTATIONS

Should the Planning Commission and Board of County Commissioners find that the

request meets the criteria for approval outlined in Section 7.2.1 (Subdivisions) of the

El Paso County Land Development Code (2016) staff recommends the following

conditions and notations:

CONDITIONS

1. All Deed of Trust holders shall ratify the plat. The applicant shall provide a current

title commitment at the time of submittal of the Mylar for recording.

2. Colorado statute requires that at the time of the approval of platting, the subdivider

provides the certification of the County Treasurer’s Office that all ad valorem taxes

applicable to such subdivided land, or years prior to that year in which approval is

granted, have been paid. Therefore, this plat is approved by the Board of County

Commissioners on the condition that the subdivider or developer must provide to the

Planning and Community Development Department, at the time of recording the plat,

a certification from the County Treasurer’s Office that all prior years’ taxes have

been paid in full.

3. The subdivider or developer must pay, for each parcel of property, the fee for tax

certification in effect at the time of recording the plat.

4. The Applicant shall submit the Mylar to Enumerations for addressing.

5. Developer shall comply with federal and state laws, regulations, ordinances, review

and permit requirements, and other agency requirements, if any, of applicable

agencies including, but not limited to, the Colorado Division of Wildlife, Colorado

Department of Transportation, U.S. Army Corps of Engineers and the U.S. Fish and

Wildlife Service regarding the Endangered Species Act, particularly as it relates to

the Preble's Meadow Jumping Mouse as a listed species.

6. Driveway permits will be required for each access to an El Paso County owned and

maintained roadway. Driveway permits are obtained from the El Paso County

Planning and Community Development Department.

7. The Subdivision Improvements Agreement, including the Financial Assurance

Estimate, as approved by the El Paso County Planning and Community

Development Department, shall be filed at the time of recording the Final Plat.

8. Collateral sufficient to ensure that the public improvements as listed in the approved

Financial Assurance Estimate shall be provided when the final plat is recorded.

9. The Subdivider(s) agrees on behalf of him/herself and any developer or builder

successors and assignees that Subdivider and/or said successors and assigns shall

be required to pay traffic impact fees in accordance with the El Paso County Road

Impact Fee Program Resolution (Resolution No. 12-382), or any amendments

thereto, at or prior to the time of building permit submittals. The fee obligation, if not

paid at final plat recording, shall be documented on all sales documents and on plat

notes to ensure that a title search would find the fee obligation before sale of the

property.

10. Park fees in lieu of park land dedication for regional parks (Area 2) and urban park

(Area 2) fees shall be paid to El Paso County at time of plat recordation.

11. School fees in lieu of school land dedication shall be paid to El Paso County for the

benefit of Academy School District No. 20 at time of plat recordation.

12. Any future or subsequent development and/or use of the property shall be in

accordance with the use, density, and dimensional standards of the RS-6000

(Residential Suburban) zoning district and with the applicable sections of the Land

Development Code (2016) and Engineering Criteria Manual (2015) with exception to

the minimum lot size. The minimum lot size shall be no less than 10,000 square

feet, which is consistent with the associated rezoning request (P-16-004) requiring

the same.

13. The development agreement to guarantee and convey the open space as recorded

at the time of the Board of County Commissioners resolution recordation for map

amendment (rezone) P-16-004), shall be identified on the face of the final plat by the

Clerk and Recorder’s Reception Number prior to recording of the final plat.

14. The overall cap for residential lots within this final plat area and associated sketch

plan (SKP-16-001) area shall be limited to 56 residential dwelling units.

15. All technical issues shall be resolved and the engineering documents shall be

submitted and approved by the Planning and Community Developer Director and the

County Engineer, as appropriate, prior to scheduling this request for hearing before

the Board of County Commissioners.

16. Approval by El Paso County of the final plat and the drainage report and plan

associated with the final plat shall not be construed as approval of the proposed

conveyance of the pond outfall flow across private property nor shall such approvals

be construed as recognition of easements necessary to facilitate such conveyance.

17. The applicant shall complete and submit an analysis of the downstream impacts as

they relate to the water quality/detention ponds, assuring acceptable conditions to

the County Engineer, or, alternatively, the Developer shall obtain drainage

easements necessary to facilitate the downstream drainage, prior to scheduling this

request for hearing before the Board of County Commissioners.

NOTATION

1. Final plats not recorded within 24 months of Board of County Commissioner

approval shall be deemed expired, unless an extension is approved.

L. PUBLIC COMMENT AND NOTICE

The Planning and Community Development Department notified 323 adjoining

property owners on March 7, 2017, for the Planning Commission meeting.

Responses will be provided at the hearing.

M. ATTACHMENTS

Vicinity Map

Letter of Intent

Plat Drawing