The thrust of this chapter is to analyze various functional areas where existing or potential problems and deficiencies occur. Although general recommendations are provided, more in-depth studies of the problems presented here may be warranted. The areas under study include: transportation, water, sewer, parks, and open space.

The street system in Monument is in generally good condition, with problems due primarily to: (1) poor drainage in particular areas, (2) a major barrier to east-west travel caused by the Denver and Rio Grande Western (DRGW) railroad tracks, (3) poorly designed intersections, and (4) poor circulation in some areas. To minimize the continued deterioration of streets and increases in maintenance costs while planning for street improvement needs, it is suggested that the Town establish a street maintenance and improvement schedule. The latter can be a component of the overall capital improvements program.

Third Street and Highway 105 Intersection

This intersection is potentially the most dangerous in Monument. It is characterized by excessive curb cuts and inadequate signage. The design problems of the intersection are aggravated by poor automobile circulation and parking layouts of adjacent businesses. Despite its design limitations, this intersection provides the main access to Monument because of its proximity to the I-25 interchange.

Efforts to improve this intersection have been undertaken by the Town Council. An engineering study has been contracted to recommend intersection design solutions. Possible solutions include: (1) the closing of curb cuts within 125 feet of the intersection, (2) restricting parking near the intersection, (3) reducing intersection approach speeds with appropriate signage, (4) installing a traffic light (an expensive action requiring detailed traffic counts and projections), or (5) totally reconstructing the intersection.

Second Street Extension

At the present time, Third Street is the only major access to the Downtown and surrounding residential areas from Highway 105. For the purposes of providing a more direct access to the Town interior, coupled with the need for a new "‘entrance", it is recommended that Second Street be extended from Beacon Lite Road to Highway 105.

The Town will have to initiate annexation negotiations with property owners along the proposed Second Street alignment since the land is presently unincorporated. A 1980 Constitutional Amendment to the Colorado Revised Statutes has reduced the authority of municipalities to unilaterally annex un-incorporated territory. As a result, annexation negotiations must clearly provide benefits to both the property owner(s) and the Town. (For a more detailed discussion of annexation, refer to Chapter 6.)

As shown on the Land Use Opportunities Map, the proposed future land use along the Second Street extension is commercial and offices. Once the property is annexed, the Town may zone the area to an appropriate district. Care should be taken during negotiations, however, for the Town not to bind itself to rezoning. Such an action may constitute "contract zoning", or the contracting away of future police power rights.

Future commercial uses along the extension of Second Street, which would function as anchors for additional commercial development in Monument, should be geared to attract both Tri-Lakes residents and visitors. The design of the development should help establish an image for Monument and should help improve the functioning of the street system by limiting access, providing common parking for commercial uses, and directing traffic onto collector streets. The design should encourage pedestrian and bicycle circulation (see Design Guideline 1).

Design Guideline 1 - Second Street Extension

Mitchell Avenue Extension

With the DRGW railroad tracks acting as a barrier to separate areas of the Town from one another, development has primarily occurred to the east of the tracks. However, because of the amenities Monument Lake has to offer, several attached and detached single family developments have located to the west of the tracks. Before additional development occurs in this area, circulation patterns and access will have to be upgraded.

The best possible method for improving circulation patterns is an extension of Mitchell Avenue to both the north and south. With this extension, northbound traffic could utilize Highway 105 as a loop road, eliminating the need for traffic to be directed through Monument. The northern extension would also allow emergency vehicle access to the west of the DRGW tracks via the Highway 105 underpass when the Second Avenue railroad crossing is blocked. A southern extension of Mitchell Avenue would provide an alternate access to Monument and reduce vehicular congestion at the Highway 105/Interstate 25 interchange by redistributing trips to the Baptist Road/ Interstate 25 interchange.

Railroad Crossings

At present, there are two railroad crossings in Monument: an at-grade crossing at Second Street and a grade separated crossing at Highway 105. The Second Street crossing is the only means of access to land west of the DRGW railroad tracks, and as a consequence, a potentially dangerous situation could arise if this link were to become inaccessible. The delays in fire, police, or ambulance assistance might result in loss of life, limb, or property.

An alternative to this access problem would be to open the Third Street at-grade crossing. This would allow Third Street to connect with Monument Lake Road, not only providing an additional means of access, but also facilitating the development potential of land to the west of the DRGW railroad. This alternative, however, has two apparent weaknesses: it does not provide optimum access (such as a grade separation) and it stands little, if any, chance for Public Utility Commission (PUC) approval because of the proximity of the two crossings.

When future growth increases train/ pedestrian and automobile conflicts which could represent health hazards or exceed state recommendations (see below), the Town should investigate the feasibility of installing gates at the Second Street crossing. In the event intensive growth occurs and protection devices no longer ensure continued safety, a grade separation should be considered.

Standards for Selecting Type of Protection:

The type of treatment a crossing warrants is determined by the Exposure Factor of the site (number of trains/day x number of cars/day).

Standards set for Rural Collector Areas (includes Monument):

To Warrant Grade Separated Crossings: Exposure Factor 35,000

Funding Railroad Crossing Protection Devices:

1. Program 203 -- Section 203 of the Federal Aid Highway Act currently provides 90% Federal funding for upgrading railroad crossings to be matched with 10% of the cost by the government of the locale receiving the benefit. Future funding for the program is unknown at this time.
   
   The Special Highway Committee (consisting of 4 County Commissioners and 4 elected State officials) prioritize submitted requests based on crossing Exposure Factors. A maximum of 50% of the money allotted to any location may be spent on graded crossing construction. A minimum of 50% must be spent on expanded protection devices such as signals, gates, or bells.
2. Public Utilities Commission -- The PUC is the statewide body which governs utility companies and railroads. Each year it is allotted funds from the State of Colorado to help finance railroad crossing improvements across the state. The money is to be used for signalized protection only.
   
   The PUC prioritizes requests and the government of the site selected must match the PUC’s funds with a minimum of 20% of the total cost. According to State statutes, the railroad must also pay a portion of the cost and maintain the crossing facilities once implemented.

In order to properly plan for future crossing improvements, any new developments which would generate traffic in excess of the exposure factors should be expected to pay their fair share of improvements necessary to upgrade the crossing to meet safety standards.

Highway 105/Interstate 25 Overpass

The Highway 105 overpass is the major grade separation linking Monument with Woodmoor and other development in the area. As constructed, the overpass is of sufficient width to accommodate only two lanes of vehicular movement. No provisions have been made for bicycle or pedestrian traffic. As a result, pedestrians and bicyclists (especially students) contend with potential dangers from vehicular conflicts. There are at least two solutions to this situation. One advocates increasing the width of the roadway to accommodate a bicycle and pedestrian way and requires complete reconstruction of the bridge. The second solution involves constructing a bicycle and pedestrian way attached to the outside of the overpass. This alternative does not require complete reconstruction of the overpass and is less expensive than the first alternative.

In 1982 the State Highway Commission retained the services of a consultant to study the I-25 corridor area from southern Denver to northern Colorado Springs. The purpose of the study was to identify long-term transportation needs, to evaluate funding mechanisms and intergovernmental relationships, and to provide procedures for monitoring and updating the planned transportation system. One recommendation of the study suggested that State Highway 105 be widened to a four-lane facility through Monument, and across I-25 by the year 2000. The Town should strongly advocate the implementation of this finding to the Colorado Department of Highways and request that the preliminary engineering and design for the facility include provisions for bicyclists and pedestrians.

Highway 105/Interstate 25 Interchange

This interchange was reconstructed in 1970 to minimize the use of the original slip ramp, which was conducive to wrong way movements. The location of the Port of Entry prevented the total elimination of the slip ramp and construction of a full diamond interchange. It also caused mixing of truck traffic leaving the Port along the slip ramp with southbound traffic exiting I-25 at the new interchange. Residents who use the interchange have requested reopening the slip ramp as an additional access to southbound I-25 and investigating the need for reconstructing the interchange to accommodate increased traffic.

The Colorado Department of Highways believes that reopening the slip ramp would recreate unacceptable hazards and would be inconsistent with the Department’s attempt to eliminate this type of ramp throughout the State because of its associated hazards. The I-25 Corridor Study shows the current traffic to be far below the design capacity of the interchange. Under a fast growth scenario, by the year 2000, some improvements will be necessary to handle projected travel demands, according to the study.

Before the Town develops a capital improvements program, it is important to formulate an idealized plan of anticipated future street improvements. The Conceptual Future Street Plan shown on Map 2 recommends a functional classification system, identifies a needed railroad crossing, and proposes major street improvements and extensions. The plan features the previously discussed Mitchell Avenue and Second Street extensions and two additional extensions - a link between Second and Third Streets and an extension connectina the Old Denver Highway to Second Street. This latter extension will provide a southern access to the east of the DRGW railroad tracks.

The functional classification system is a structuring of streets that are most important in terms of function, traffic volumes, and physical characteristics. For the purpose of this report, the system is divided into two basic functional classes: arterials and collectors. Arterial streets have limited access points (for collector streets primarily) and function as movers of traffic. Collector streets principally provide access to local streets and major adjacent land uses.

As shown on the Conceptual Future Street Plan, State Highway 105 would be widened from 2-lanes to 4-lanes. This recommendation is based on a year 2000 growth scenario projected by the I-25 Corridor Study.

Bicycle and pedestrian systems can serve two distinct purposes - transportation and recreation. As transportation systems, routes should be direct and should serve a wide variety of origins and destinations. As recreation systems, routes should connect parks, recreation facilities, and open space areas and should follow scenic routes.

Transportation routes can be integrated with the street system. The safest and most efficient on-street system for bicycles is lanes which are designated and marked exclusively for bicycles. Sidewalks should be reserved for pedestrians and should be separated from streets.

Options for providing on-street bicycle lanes include:

Recreational routes should follow the Monument Creek drainageways and be linked to the New Santa Fe Trail. Where private property is used for the route, public access easements should be obtained. These routes should also take advantage of existing structures such as large culverts, bridge crossings, overpasses, et cetera to gain access across natural or man—made barriers and to complete trail loops.

Responsibilities for implementing the trail system in Monument should be shared between the Town, private sector, and community groups. New development adjacent to Monument Creek should be asked to dedicate land and build the trail across the extent of their property. The Town should also work closely with Palmer Lake, Woodmoor, and the County to develop a coordinated trail system.

Guidelines which apply to recreational trails include:

1. Establish pathways parallel to transportation routes or along abandoned transportation rights-of-way.
2. Separate pathways from streets to maximize safety and convenience.
3. Utilize elevated bridges where economically feasible to separate pedestrian and bicycle crossings from major vehicular corridors.

Guidelines which apply to both recreational and transportation routes include:

1. Provide facilities for pedestrians and bicyclists in street improvement programs and projects.
2. Provide street furniture, rest areas, and visual amenities in areas of high pedestrian use.
3. Provide sloped ramps for handicapped pedestrians and bicyclists at intersections where curb and gutter exist.
4. Ensure that safety devices such as advance warning signs and painted crosswalks are placed at high pedestrian and bicycle traffic points along heavily traveled streets.
5. Maximize nighttime safety by lighting pathways at critical points.
6. Use a coordinated sign system with consistent shapes, materials, and lettering styles when designating a bicycle path.

The feasibility of a public transportation system linking Monument, Palmer Lake, and residential subdivisions of the Tri-Lakes area should be investigated further since interest in such a system was apparent during public input meetings. As a prerequisite to federal funding of a public transportation system, the Town will have to develop a Transportation Development Plan (TDP) to determine system feasibility. It is recommended that the Town, cooperatively with Palmer Lake and El Paso County, request technical assistance from the Metropolitan Planning Organization (PPACG) and/or the Colorado Department of Highways to develop the TDP. In order to minimize costs associated with the study, base data generated by the State-sponsored I-25 Corridor Study can be used in the TDP.

Monument presently obtains its water from six shallow wells, four of which are located within the corporate limits. Water storage is provided by an elevated tank which has a capacity of one million gallons. The water is chlorinated before its entry into the distribution system. Water usage averages approximately 100 gallons per day per person on an annual basis. Peak demand is roughly eight times higher in the summer than in the winter.

In regard to the distribution system, no pressing problems currently impact service with the exception of undersized and deteriorating mains, most of which have been replaced by the Town. Recent improvements to the distribution system (installation of fire hydrants, larger pipes, and a grid system) have upgraded the flow requirements for fire protection purposes. There is a problem with high iron content in the water pumped from the two wells along Monument Creek. The Town Engineer has recommended iron removal equipment to reduce the iron content of the water.

The major problem facing Monument is the lack of an adequate water supply source to meet the needs of a growing population base. Acquisition of additional water sources has been deemed the number one capital improvement project by the Town Board of Trustees. In 1982 Monument reached its water service capacity of 242 taps, and subsequently imposed a tap moratorium until additional water sources were developed. The Town’s capability to provide additional water was limited by the June 1980 decision of the District Water Court (Water Division No. 2) in Pueblo which held that water drawn from existing shallow wells in the Dawson-Arkose Formation is tributary to Monument Creek. This decision affected all tributary formations and affirms the position that Monument Creek is over-appropriated. As a result, the Town was required to obtain approval of an augmentation plan from the Water Court. In addition, new wells in the affected area must either tap the deep aquifers (Denver, Arapahoe, and Laramie Fox Hills), or if the Dawson-Arkose is tapped, supplemental water must be supplied to replace the consumed water.

The Town applied for and in January 1983, was awarded a Community Development Block Grant from the United States Department of Housing and Urban Development in the amount of $179,600 after reaching its water service capacity in 1982. The grant was used to drill two shallow wells along Monument Creek and to upgrade the water treatment and distribution system. The wells should provide enough water to supply an additional 150 water taps for the Town. In accordance with the court decision, Monument entered into an agreement with the City of Colorado Springs for providing 50 acre feet of augmentation water. This agreement will run for only five years, and therefore, the Town has assured the State Engineer that another source of augmentation water will be found.

Monument has entered into an "Agreement of Water Sale and Service" with the owners of Beaver Creek Ranch for the acquisition of additional water. Under that agreement, the developers of Beaver Creek Ranch will drill eight wells on their property and develop a treatment and distribution system to the Town’s satisfaction. An application for the eight wells has been submitted to the Water Court for approval. Non-tributary water rights are estimated to yield 1,000 taps, 500 of which will go to the Town. After augmentation, surface water rights are estimated to net 390 taps to developers of Beaver Creek Ranch and 690 taps to the Town.

Monument has also filed an application with the Water Court for approval of two deep wells (one in the Arapahoe and the other in the Laramie-Fox Hills) to be located within the corporate limits. These wells are estimated to produce a maximum of 300 water taps.

Assuming that the potential sources of water currently available to Monument are developed, the Town can expect a maximum additional capacity of 1,600 water taps for a total of 1 ,842. The source of water and itemized number of taps are shown below. Comparison of the total water taps with the projected population levels indicates that the potential number of taps available to the Town is sufficient to meet the water requirements for the high 1995 population projections.

A resolution to the water shortage problem in Monument will require a multifaceted, ongoing approach. Perhaps the most dependable and cost-effective approach is the continuation of drilling shallow wells and the provision of augmentation water. Wells into the deep aquifers are mining a finite resource which is increasingly being depleted. Conversely, shallow wells are mining a renewable resource that can be recharged by the absorption of direct precipitation and surface runoff.

Another approach for achieving long-term water supply stability is to form a Water Conservation District in northern El Paso County. Such a district would have the authority to: (1) exercise eminent domain powers, (2) develop and implement plans for trans-mountain water diversion, (3) purchase, lease, sell, store, and manage water, water rights, water sources, and water facilities.

The immediate and long-range water needs for Monument are as follows:

Immediate Needs

1. Implement a plan for augmentation in order to get the most efficient use of water resources. Secure additional sources of augmentation water.
2. Purchase additional water rights.
3. Secure non-tributary water rights within the corporate limits.
4. Upgrade distribution system in the northeast portion of Town. Initiate a systematic main replacement program to replace undersized and deteriorating mains.
5. Repair leakage problems in the distribution system.
6. Continue water restrictions during peak times. Investigate rate incentive techniques and an escalating rate schedule.
7. Establish a real estate transfer fee which would be placed in a planning and engineering fund for developing additional water resources.
8. Participate in the Basin Study conducted by the Army Corps of Engineers.

Long-Range Needs

1. Conduct a long-range water study.
2. Increase water storage capacity.
3. Provide an emergency back-up system and store water during non-peak times, perhaps in Monument Lake.
4. Investigate the feasibility of absorbing existing water districts in the Tn-Lakes area.
5. Consider joining or creating a water conservancy district.
6. Continue the development of shallow water resources and the procurement of supplemental water.

The Monument Sanitation District operates under a joint use agreement with the Palmer Lake Sanitation District and Woodmoor Sanitation District No. 1 to allow for a combined use of the regional sewage treatment facility which is located south of Monument along Monument Creek. The facility, which is owned and operated by the Palmer Lake Sanitation District, was completed in 1976 with funding provided by grants from the Environmental Protection Agency and State Health Department.

Three lagoons are included in the sanitation facility, two of which are aerated to produce wastewater which meets secondary treatment standards. The existing hydraulic capacity of the facility is approximately 840,000 gallons per day. The influent (input) from each of the districts is not measured; therefore, individual district’s costs are determined by the number and type of taps in the district and are assessed a percentage of the total operating cost. Both Monument and Palmer Lake pay 27.85 percent, while Woodmoor pays 44.3 percent of the total expenses. It should be noted that once three flow meters are installed, the individual percentages may change.

By increasing its blower size, the regional sewage treatment facility has an hydraulic capacity of 1.56 million gallons per day. Although this potential capacity is sufficient to accommodate the year 2000 population projections for Monument, Palmer Lake, and Woodmoor, the Town should include, as part of the recommended capital improvements program, their projected share of facility, expansion costs and potential financing sources. According to the Areawide Water Quality Management Plan for the Pikes Peak Region, the facility will reach 95 percent hydraulic design capacity by the year 1993.

There are presently three improved parks in Monument - Limbach, Pioneer, and Dirty Woman. Limbach Park consists of .83 acres and is located west of Front Street and south of Second Street. The park has picnic tables, barbecue grills, play equipment, and a volleyball court. Pioneer Park is 4.71 acres in size and is situated north of Third Street, between Woodworth and Beacon Lite. The original Town Hall, a bench, and several picnic tables occupy the park. Dirty Woman Park, located along the east side of Mitchell Avenue, consists of approximately 10 acres. The Town has received approval of a $3,500 match grant under the Land and Water Conservation Fund administered by the State Parks and Outdoor Recreation Division of the Department of Natural Resources. The grant will be used to construct a basketball court and provide additional play equipment in Dirty Woman Park.

The Town owns four undeveloped, park/open space sites. The first parcel is 1.214 acres in size and is located in Century Park Subdivision. Most of the site is in the 100-year flood plain, and any future use will have to be passive in nature. The second site, called Mountain View Park, totals 25,079 square feet and is located on the east side of Beacon Lite Road. No specific design plans for the Park have been approved by the Town, but it is being considered as a potential site for a senior citizen/library facility. The third undeveloped park site is situated to the south of 8th Street and has 1.42 acres. Similar to the parcel along 8th Street, major portions of this site are located in the 100-year flood plain. Located between First Street and Third Street and West and adjacent to Beacon Lite Road, the fourth site consists of 3.17 acres.

A County regional trail facility, the New Santa Fe Trail, traverses the corporate limits of Monument along a route which begins at Palmer Lake and runs southward to connect with the City of Colorado Springs’ trails near Woodmen Road. The trail is intended for multiple use recreation - primarily hiking, biking, and equestrian. A trailhead facility has been developed on the south side of Third Street.

In total, the Town currently owns 15.54 acres of improved park land and 6.5 acres of unimproved park land/open space. Of the improved park land, approximately 9 to 11 acres are useable park land. Using a National Parks and Recreation Association standard of 10 acres of park land for each 1,000 population, Monument appears to have a sufficient amount of park land to meet the current demand. This assumption, however, does not take into account that many County residents may use Monument’s park facilities or the New Santa Fe Trail.

Estimated park land service requirements for the low, medium, and high Town population projections are presented in Table 4, Appendix C. According to these projections, a new park will be needed in Monument by the year 1995 to accommodate future demand levels.

Potential open space areas in Monument have been indicated on the Land Use Opportunities Map. The criteria used to establish the open space corridors were based primarily upon natural environmental considerations. Land was deemed to have a high potential for open space if its ability to support development was constrained by topography or by geological, soil, or flood hazards. The open space designation process involved mapping environmental hazard zones on individual maps and then overlaying the information to form a final composite. This final composite was used to delineate open space opportunity areas and appropriate linkages between them.

Open space has a number of functions. First, it should include all areas which are environmentally fragile, unique in landscape, prime wildlife habitats, or visually prominent or pleasing. Second, it should form a natural "spine" of green space through the community to temper the effects of development.

Third, it should act as a circulation route for pedestrian, bicycle, and equestrian paths. It should link major destination points such as schools, parks, and shopping areas with the Downtown. It should also link major destination points with residential areas, so that transportation options to the automobile are available for potential users.

Finally, open space should provide a visual amenity and buffer to soften the hard edges of urban growth.

The provision of open space should be a standard requirement in all planned unit development projects in Monument. Some suggested guidelines which should apply to the quantity, type, and dedication of open space include:

3.     Maintenance Assurance