HomeMy WebLinkAboutPACKET Town Board Study Session 2026-06-23Informal discussion among Trustees and staff concerning agenda items or other Town
matters may occur before this meeting at approximately 4:15 p.m. Dinner will be
provided to the Board at 5:15 p.m.
Town Board of Trustees Study Session
Tuesday, June 23, 2026, from 4:30 p.m. – 6:45 p.m.
Town Hall Board Room, 170 MacGregor Ave, Estes Park
Accessibility Statement
The Town of Estes Park is committed to providing equitable access to our services.
Contact us if you need any assistance accessing material at 970-577-4777 or
townclerk@estes.org.
Meeting Participation
This meeting will be streamed live and available on the Town YouTube page. Click on
the following link for more information on Digital Accessibility.
Public Comment
Public comments are not typically heard at Study Sessions, but may be allowed by the
Mayor with agreement of a majority of the Board.
Agenda
4:30 p.m. Individual and Group Town Board Photographs
5:30 p.m. Business Support Strategic Objective
Presented by Deputy Town Administrator Damweber
5:50 p.m. Rezoning Criteria
Presented by Director Careccia
6:35 p.m. Trustee and Administrator Comments and Questions
6:40 p.m. Future Study Session Agenda Items
6:45 p.m. Adjourn for the Town Board Meeting
The Town of Estes Park is committed to providing equitable access to our services. Contact us
if you need any assistance accessing material at 970-577-4777 or townclerk@estes.org.
Report
To: Honorable Mayor Hall & Board of Trustees
Through: Town Administrator Machalek
From: Jason Damweber, Deputy Town Administrator
Department: Town Administrator’s Office
Date: June 23, 2026
Subject: Business Support Strategic Objective
Purpose of Study Session Item:
The purpose of this Study Session is to determine what additional strategies, if any, the
Town Board would like to implement to achieve the 2026 Strategic Plan Objective to
“Identify opportunities to support eclectic mix of business, including smaller ‘mom and
pop’ shops.”
Town Board Direction Requested:
Determine whether existing business support strategies are sufficient or if there are
additional strategies or programs that the Town Board would like to implement.
Present Situation:
Town staff is currently represented on the Boards of the Estes Park Chamber of
Commerce (in an ex-officio capacity) and the Economic Development Workforce
Council (EDWC), both of which exist to provide support and resources for local
businesses of all types, including for "mom and pop" shops. Trustee Brown also serves
on the EDWC Board. In 2026, the Town provided $65,000 in Base Funding to the
EDWC to support its work, representing the largest single investment the entity
received.
Business support strategies currently employed by the Chamber and EDWC – with
support from the Town – include facilitation of networking and relationship building,
visibility and marketing, education and skill-building, and advocacy. The following is a
non-exhaustive list of training and networking opportunities offered to local businesses
in 2026 which illustrates current efforts:
• HR/Compliance 101 Training for Employers in Estes Park
• Interviewing and Recruiting for Seasonal Talent
• Seasonal Cash Flow & Smart Financial Management for Small Businesses (followed by
one-on-one consultations with a Small Business Development Center (SBDC) consultant
• Business Accelerator Services of Estes (BASE) 2.0 (focused on helping Estes Park
entrepreneurs build stronger, more sustainable businesses)
• Hotel and Hospitality Industry Training and Education (through the American Hotel and
Lodging Educational Institute)
• Enterprise Zone education and opportunities
• Performance Management 101
• Colorado Energy Code education
• Marketing and Social Media (including small group social media workshops)
• AI for Creating Standard Operating Procedures
• Colorado Wildfire Code education
• Destination Stewardship education
• Elevator Pitches and Building Packages
• Sundance Film Opportunities
• Local Industries Grant Hire/Train/Retain (LIGHTR) Fund training and opportunities
• Community Support Group for Exchange Visitors (collaboration between Visa Sponsors,
Chamber/EDWC, and host employers; a program recognized by the Department of
State)
• ’Un’Book Club – an educational and networking opportunity (meets twice quarterly)
• Wedding, Lodging, Food & Beverage Alliance (meets monthly)
• Construction Alliance (meets quarterly)
• Coffee Connections (networking opportunities provided at various locations on a monthly
basis)
• Business After Hours - meets once monthly
• Support attendance at Ready, Set, Grow - Women’s Conference
• Support attendance at Women of Impact Celebration
• Participation/representation at annual “State of Estes Park” event
The Chamber also helps promote/market events or specials put on by individual
businesses and facilitates and/or sponsors various events throughout the year such as
regular ribbon-cuttings, business/industry showcases, downtown sidewalk sales, and
the like.
Proposal:
In addition to its financial support of the EDWC and direct involvement and participation
by Town representatives in the Chamber and EDWC, there are other potential
strategies the Town could implement to support business success. Some fairly common
strategies that local governments employ are grant or microloan programs, façade
improvement programs, and fee waivers for new businesses or business
expansion/renovation:
• A grant program would entail an application process where funding is given
directly to a business if certain eligibility criteria are met.
• A microloan program is a small-dollar lending program to help businesses that
have difficulty getting bank loans. Repayments could go back into a revolving
fund to be used for further loans.
• A façade improvement program is a grant or incentive program that helps
businesses pay for improvements, enhancements, or repairs to the outside of a
building in order to make them more attractive and enticing to potential
customers.
• Waivers for Community Development related fees (such as building permit fees
and plan review fees) could help reduce startup costs for new businesses or
reduce costs for capital improvements for existing businesses.
These are just a few common examples. Each of these strategies would require
program creation and administration and, of course, funding from the Town.
In sum, much is already being done locally to support an “eclectic mix of business,
including smaller ‘mom and pop’ shops.” The question before the Town Board is
whether existing business support strategies are sufficient or if there are additional
measures that the Town Board would like to implement, including but not limited to
those outlined above. If the Town Board would like to implement new strategies, it
would be helpful to know which are of interest and how much funding should be made
available.
Advantages:
•Supporting local businesses can lead to: a stronger local economy, a broader tax
base, greater resilience in “down” times, increased employment opportunities,
and overall improvements to quality of life.
Disadvantages:
•Providing direct financial support to local businesses can create: perceptions of
favoritism (equity issues), lost opportunity costs (any funding spent to support
local businesses is funding that cannot be used for other competing purposes),
short-term gains that may not be sustainable, and controversy over the
government’s role in supporting private businesses.
Finance/Resource Impact:
To be determined.
Level of Public Interest:
Medium
Attachments:
1. Presentation
Business Support
Strategic Objective
Town of Estes Park
Study Session
June 23, 2026
Attachment 1
Purpose
•2026 Strategic Plan Objective:
•“Identify opportunities to support eclectic mix of business,
including smaller ‘mom and pop’ shops.”
•Review current business support efforts
•Determine whether existing support strategies are
sufficient or if there are additional strategies/programs
that the Town Board would like to implement
Current Support Structure
•Town represented on Chamber of Commerce and EDWC
Boards, both of which exist to provide support and resources
for local businesses of all types, including for "mom and pop"
shops
•Staff on both Boards
•Trustee Brown serves on EDWC board
•Town contributed $65,000 in Base Funding to EDWC in 2026
•Largest single investment received by EDWC
Summary of Existing Support Strategies
•Facilitation of networking & relationship building
•Marketing and business visibility
•Education & skill-building
•Advocacy and resource access
2026 Training & Programs
(Examples)
•HR/Compliance 101 Training for Employers in Estes Park
•Interviewing and Recruiting for Seasonal Talent
•Seasonal Cash Flow & Smart Financial Management for Small Businesses (followed by one-on-one consultations with a Small Business Development Center (SBDC) consultant
•Business Accelerator Services of Estes (BASE) 2.0 (focused on helping Estes Park entrepreneurs build stronger, more sustainable businesses)
•Hotel and Hospitality Industry Training and Education (through the American Hotel and Lodging Educational Institute)
•Enterprise Zone education and opportunities
•Performance Management 101
•Colorado Energy Code education
•Marketing and Social Media (including
small group social media workshops)
•AI for Creating Standard Operating Procedures
•Colorado Wildfire Code education
•Destination Stewardship education
•Elevator Pitches and Building Packages
•Sundance Film Opportunities
•Local Industries Grant Hire/Train/Retain (LIGHTR) Fund training and opportunities
•Community Support Group for Exchange Visitors (collaboration between Visa Sponsors, Chamber/EDWC, and host employers; a program recognized by the Department of State)
•’Un’Book Club –an educational and networking opportunity (meets twice quarterly)
•Facilitates convening of Wedding, Lodging, Food & Beverage Alliance
(meets monthly)
•Facilitates convening of Construction Alliance (meets quarterly)
•Facilitates convening of Latino Alliance
•Coffee Connections (networking opportunities provided at various locations on a monthly basis)
•Business After Hours -meets once monthly
•Support attendance at Ready, Set, Grow -Women’s Conference
•Support attendance at Women of Impact Celebration
•Participation/representation at annual “State of Estes Park” event
•Ribbon Cuttings, Event Promotion, Business Showcases, Facilitation of Sidewalk Sales, etc.
Potential New Strategies
(Examples)
•Grant program for eligible businesses
•A grant program would entail an application process where funding is given directly to a business if certain eligibility criteria are met. •Microloan / revolving loan fund
•A microloan program is a small-dollar lending program to help businesses that have difficulty getting bank loans. Repayments could go back into a revolving fund to be used for further loans. •Façade improvement programs
•A façade improvement program is a grant or incentive program that helps businesses pay for improvements, enhancements, or repairs to the outside of a building in order to make them more attractive and enticing to potential customers. •Fee waivers for permits and plan reviews
•Waivers for Community Development related fees (such as building permit fees and plan review fees) could help reduce startup costs for new businesses or reduce costs for capital improvements for existing businesses.
Advantages
•Stronger local economy
•Broader tax base
•Greater economic resilience
•More employment opportunities
•Improved quality of life
Risks / Disadvantages
•Perceptions of favoritism
•Opportunity cost of public funds
•Short-term gains may not last
•Debate over government's role in private business
Key Questions for Board
•Are current strategies sufficient?
•If not, which new programs are worth pursuing?
•Who should be responsible and what funding level is
appropriate?
The Town of Estes Park is committed to providing equitable access to our services. Contact us
if you need any assistance accessing material at 970-577-4777 or townclerk@estes.org.
Report
To: Honorable Mayor Hall & Board of Trustees
Through: Town Administrator Machalek
From: Steve Careccia, Community Development Director
Department: Community Development
Date: June 23, 2026
Subject: Rezoning Criteria
Purpose of Study Session Item:
Town Board will review and discuss draft rezoning criteria and other relevant changes to
Estes Park Development Code Section 3.3 (Code Amendments).
Town Board Direction Requested:
Provide staff with direction on proposed changes to Development Code Section 3.3
(Code Amendments).
Present Situation:
The Town Board and Planning Commission conducted a joint study session on August
7, 2025, to discuss the review criteria for rezonings. (Please see the packet and minutes
for additional information.) At the study session, there was agreement from the Board
and Commission to clarify the review criteria, especially regarding the meaning and
applicability of a “change in conditions”. Subsequently, staff was directed to draft an
amendment for future consideration.
For additional context, the Planning Commission memo from their January 21, 2025,
meeting to review rezoning criteria is also attached.
Proposal:
Staff has drafted revised rezoning criteria, along with other relevant changes to Section
3.3 (Code Amendments) as presented below and in the attachments. The draft
proposes two new review criteria along with the carryover of one existing criterion,
slightly modified, as described below:
Current Review Criteria 1
The amendment is necessary to address changes in conditions in the areas affected;
Proposed Review Criteria 1
The amendment is consistent with the Future Land Use Plan of the Estes Forward
Comprehensive Plan (December 2022). If the amendment is not consistent with the
Future Land Use Plan, then either:
a. The amendment is necessary to address a change in conditions or
circumstances since the establishment of this Code in the close vicinity of the
amendment area, which area’s extent is subject to the interpretation of the Board
of Trustees in its reasonable discretion; or
b. The amendment will correct a technical error in the text or Official Zoning Map of
this Code.
Staff Commentary: The intent of the change is to place more importance on a proposed
rezonings consistency with the Future Land Use (FLU) Plan (attached) rather than a
change in conditions. It also furthers and clarifies the Comprehensive Plan compatibility
and consistency provisions established in Current Review Criteria 2 (below). A change
in conditions is still relevant as a review criterion, but only if the proposed rezoning is
found to be inconsistent with the FLU Plan. Similarly with a correction of a technical
error, these criteria should only be considered when the rezoning is found to be
inconsistent with the FLU Plan. As such, a rezoning could be found to be inconsistent
with the FLU Plan, but could still warrant approval if the rezoning responded to a
change in conditions or if it corrected a previous error in the Official Zoning Map.
Current Review Criteria 2
The development plan, which the proposed amendment to this Code would allow, is
compatible and consistent with the policies and intent of the Comprehensive Plan and
with existing growth and development patterns in the Estes Valley; and
Proposed Review Criteria 2
The amendment will not adversely impact surrounding properties and the community, or
such potential adverse impacts, including but not limited to impacts related to
environmental conditions, building design and placement, wildlife, access, traffic,
emergency services, utilities, parking, noise, glare, odor, or other similar factors, have
been or shall be adequately addressed and mitigated, to the maximum extent feasible,
through compliance with this Code, enforceable agreements, and/or conditions of
approval. As necessary, conditions of approval may include, but are not limited to, the
following:
a. Reduction in the number and type of permitted uses;
b. Reduction or other regulations on permitted density or intensity of
development;
c. Reduction or other regulations on building or structure massing, height,
and/or design;
d. Provision of additional open space;
e. Increased buffers and/or building setbacks; and
f. Consistency with concept plans, architectural plans, landscape plans, and
other site plans submitted as part of the amendment application.
Staff Commentary: The current review criteria establishes that new development
associated with a rezoning should be consistent with the Comprehensive Plan and
compatible with the surrounding area and community. As noted above, the portion
regarding consistency with the Comprehensive Plan was relocated to Proposed Review
Criteria 1. This allows Proposed Review Criteria 2 to expand upon and specifically focus
on the issues of compatibility and mitigation of adverse impacts.
Current Review Criteria 3
The Town, County or other relevant service providers shall have the ability to provide
adequate services and facilities that might be required if the application were approved.
Proposed Review Criteria 3
The Town and other relevant service providers shall have the ability to provide
adequate services and facilities that would be required if the amendment were
approved.
Staff Commentary: Only minor modifications are proposed. Overall intent remains.
Townwide and Large-Scale Updates
This revision establishes procedures for townwide and large-scale changes to the text
of the Development Code or the Official Zoning Map. As noted in the attachments, such
changes will be made under the Board’s legislative versus quasi-judicial powers. While
this revision was not a directive from either the Board or Commission, it adds procedural
clarity to this section, and so is offered for Board consideration.
If directed to proceed with the above-mentioned changes, and any other amendments
directed by the Board, staff will include such changes in the overall Development Code
update.
Advantages:
• Clarity for staff, stakeholders, and decision makers
• Staff and Design Workshop have anticipated and planned for potential changes
to Development Code Section 3.3 (Code Amendments), so such changes will not
adversely affect the update process or schedule
Disadvantages:
• No disadvantages identified
Finance/Resource Impact:
None at this time
Level of Public Interest:
Public interest is anticipated to be moderate to high.
Attachments:
1. Draft Development Code Section 3.3 (Code Amendments) – Clean Version
2. Draft Development Code Section 3.3 (Code Amendments) – Markup Version
3. Estes Forward Comprehensive Plan (December 2022) – Future Land Use Plan
4. Planning Commission January 21, 2025, Memo – Review of Rezoning Criteria
Created: 2025-07-08 15:01:51 [EST]
(Supp. No. 23, Update 3)
Page 1 of 2
§ 3.3 Code Amendments
A.Initiation. Applications to amend the text of this Code or to amend the Official Zoning Map (rezoning) may
be initiated by the following:
1.By the Community Development Director;
2.By motion of the Estes Park Planning Commission;
3.By request of the Board of Trustees; or
4.By application for a rezoning by the owner(s) of the property for which the rezoning is requested.
B.Private-Party-Initiated Applications for Rezonings. All applications for rezoning initiated pursuant to
§3.3.A.4 above shall comply with the following requirements:
1.Development Plan Required. All applications seeking to amend this Code to allow a change from one
zoning district to a different zoning district shall be accompanied by a development plan. This
requirement may be waived by the Community Development Director, or designee, upon finding the
projected size, complexity, anticipated impacts or other factors associated with the proposed
development or subdivision clearly justify such waiver.
2.Contents of Development Plan. See Chapter 2 of this Code for submittal requirements.
C.Procedures for Approval. All applications for text amendment or rezoning shall follow the standard
development approval process set forth in Chapter 2 of this Code.
D.Standards for Review. All applications for text amendment or rezoning, or alteration of conditions of
approval of zoning, shall be reviewed by the Planning Commission and Board of Trustees for compliance with
the relevant standards and criteria set forth below and with other applicable provisions of this Code.
1.The amendment is consistent with the Future Land Use Plan of the Estes Forward Comprehensive Plan
(December 2022). If the amendment is not consistent with the Future Land Use Plan, then either:
a.The amendment is necessary to address a change in conditions or circumstances since the
establishment of this Code, in the close vicinity of the amendment area, which area’s extent is
subject to the interpretation of the Board of Trustees in its reasonable discretion; or
b.The amendment will correct a technical error in the text or Official Zoning Map of this Code.
2.The amendment will not adversely impact surrounding properties and the community, or such
potential adverse impacts, including but not limited to impacts related to environmental conditions,
building design and placement, wildlife, access, traffic, emergency services, utilities, parking, noise,
glare, odor, or other similar factors, have been or shall be adequately addressed and mitigated, to the
maximum extent feasible, through compliance with this Code, enforceable agreements, and/or
conditions of approval. As necessary, conditions of approval may include, but are not limited to, the
following:
a.Modification in the number and type of permitted uses;
b.Modification or other regulations on permitted density or intensity of development;
c.Modification or other regulations on building or structure massing, height, and/or design;
d.Provision of additional open space;
e.Increased buffers and/or building setbacks; and
f.Consistency with concept plans, architectural plans, landscape plans, and other site plans
submitted as part of the amendment application.
Attachment 1
Created: 2025-07-08 15:01:51 [EST]
(Supp. No. 23, Update 3)
Page 2 of 2
3. The Town and other relevant service providers shall have the ability to provide adequate services and
facilities that would be required if the amendment were approved.
E. Townwide and Large-Scale Updates. Changes to the text of this code or the Official Zoning Map updating the
regulations or zoning designations for an area of the Town encompassing more than 640 acres of land, or
involving more than 100 properties owned by unique owners, establish Town-wide policy regarding future
urban growth. Generally applicable textual changes, or changes applicable to one or more zoning districts,
fall within this category. Because of the large number of properties involved in such updates, and because of
the generally applicable nature of these amendments, it is necessary to act under the Board of Trustees’
legislative powers and procedures and it would be impossible, in light of the Town’s other duties, to alter the
development code's maps and text through a series of individualized quasi-judicial proceedings. These
amendments may include changes to text and maps to classify and allocate land uses and distribution based
on need and actual utilization, to protect the tax base and foster economic opportunities, to improve
transportation and lessen congestion, to secure safety, and to protect the environment. The Board of
Trustees acts in a legislative capacity when it considers ordinances for such updates. The Board of Trustees
will consider the substance of subsection D, above, when considering such updates. However, legislative
actions are discretionary, and bound only by applicable statutes. The Town shall never be compelled to
undertake a legislative action, unless otherwise required by state or federal law, even if all review criteria
have been satisfied. The requirements of section 31-23-304, C.R.S., shall apply, but the procedural
requirements of this code, including Chapter 2, shall not. Instead, Staff may conduct outreach to the
community as directed by the Board of Trustees in its discretion.
F. Applications for Building Permits During Consideration of Application for Amendment to this Code.
1. Whenever an ordinance or resolution has been introduced before the Board that involves a change in
zoning from a less restricted district to a more restricted district, or to set forth prohibited uses in any
existing zone district, no building permit shall be issued for a period not to exceed 120 days from the
date of the introduction of such zoning amendment when such building permit would authorize the
construction of a building or the establishment of a use that would become nonconforming under the
contemplated zoning amendment.
2. If such ordinance is not adopted within 120 days, the Town is authorized to accept applications and
issue building permits regardless of the pendency of such amendment.
Created: 2025-07-08 15:01:51 [EST]
(Supp. No. 23, Update 3)
Page 1 of 3
§ 3.3 Code Amendments
A.Initiation. Applications for to amend the text of this Code or to amend the Official Zoning Map (rezoning)
amendments may be initiated by the following:
1.By the Community Development Director;
2.By motion of the Estes Valley Park Planning Commission;
23.By request of either the Board of Trustees; or
34.By application for a rezoning by the owner(s) of the property for which the rezoningamendment is
requested.
B.Private-Party-Initiated Applications for Code Amendments (Rezonings). All applications for text or Official
Zoning Map amendmentsrezoning initiated pursuant to §3.3.A.3 4 above shall comply with the following
requirements:
1.Development Plan Required. All applications seeking to amend this Code to allow a change from one
(1)zone zoning district to a different zone zoning district or seeking to amend this Code by changing
the permitted uses in any zone district shall be accompanied by a development plan. This requirement
may be waived by Staff the Community Development Director, or designee, if it findsupon finding that
the projected size, complexity, anticipated impacts or other factors associated with the proposed
development or subdivision clearly justify such waiver.
2.Contents of Development Plan. See Appendix BChapter 2 of to this Code for submittal requirements.
3.Within one (1) year from the effective date of this Code, any property owner may apply for rezoning on
the basis that an error in the original zoning was made. Staff may waive the development plan
requirements based upon the nature of the proposed request . Applicant must submit a statement of
request setting forth information, data and reasons why the error exists.
C.Procedures for Approval. All applications for text amendment or Official Zoning Map amendmentsrezoning
shall follow the standard development approval process set forth in §3.2 of this Chapter 2 of this Code.
D.Standards for Review. All applications for text amendment or Official Zoning Map amendmentsrezoning, or
alteration of conditions of approval of zoning, shall be reviewed by the EVPC and Board(s)Planning
Commission and Board of Trustees for compliance with the relevant standards and criteria set forth below
and with other applicable provisions of this Code.
1.The amendment is necessary to address changes in conditions in the areas affectedconsistent with and
furthers the goals, policies, and Future Land Use Plan of the Estes Forward Comprehensive Plan and
other policies and plans adopted by the Town. Alternatively, Iif the amendment is not consistent with
the Comprehensive Plan, then the amendment must show either;:
a.ItThe amendment is necessary to address a change in conditions or circumstances since the
establishment of this Code, in the immediate close vicinity of the amendment area, which area’s
extent is subject to the interpretation of the Board of Trustees in its reasonable discretion; or
b.ItThe amendment will correct a technical error in the text or Official Zoning Map of this Code.
2.The amendment will not significantly adversely impact surrounding properties and the community, or
such The development plan, which the proposed amendment to this Code would allow, is compatible
and consistent with the policies and intent of the Comprehensive Plan and with existing growth and
development patterns in the Estes Ppotential adverse impacts to surrounding properties and the
community, including but not limited to impacts related to environmental conditions, building design
Attachment 2
Created: 2025-07-08 15:01:51 [EST]
(Supp. No. 23, Update 3)
Page 2 of 3
and placement, wildlife, access, traffic, emergency services, utilities, parking, noise, glare, odor, or
other similar factors, have been or shall be adequately addressed and mitigated, to the maximum
extent practicable, through compliance with this Code, enforceable agreements, and/or conditions of
approval. As necessary, Sconditions of approvaluch mitigation measures may include, but are not
limited to, the following:Valley
a. Modification in the number and type of permitted uses;
b. Modification or other regulations on permitted density or intensity of development;
c. Modification or other regulations on building or structure massing, height, and/or design;
d. Provision of additional open space;
e. Increased buffers and/or building setbacks; and
a.f. Consistency with concept plans, architectural plans, landscape plans, and other site plans submitted
as part of the amendment application.; and
3. The Town , County, and/or other relevant service providers shall have the ability to provide adequate
services and facilities that might would be required if the application amendment were approved.
E. Townwide and Large-Scale Effect of Approvals and Lapse. When a development plan is required by this
Section, if an Applicant fails to either apply for a building permit or commence operation with regard to the
rezoning approval consistent with such development plan within three (3) years from the effective date of
the amendment, such development plan shall automatically lapse and become null and void. In the event a
development plan has lapsed, the Board, at its discretion, may institute rezoning proceedings pursuant to
the procedures and standards set forth in this Section to rezone the affected land areas. Updates. Changes
to the text of this code or the Official Zoning Map updating the regulations or zoning designations for an area
of the Town encompassing more than 640 acres of land, or involving more than 100 properties owned by
unique owners, establish Town-wide policy regarding future urban growth. Generally applicable textual
changes, or changes applicable to one or more zoning districts, fall within this category. Because of the large
number of properties involved in such updates, and because of the generally applicable nature of these
amendments, it is necessary to act under the Board of Trustees’ legislative powers and procedures and it
would be impossible, in light of the Town’s other duties, to alter the development code's maps and text
through a series of individualized quasi-judicial proceedings. These amendments may include changes to text
and maps to classify and allocate land uses and distribution based on need and actual u tilization, to protect
the tax base and foster economic opportunities, to improve transportation and lessen congestion, to secure
safety, and to protect the environment. The Board of Trustees acts in a legislative capacity when it considers
ordinances for such updates. The Board of Trustees will consider the substance of subsection D, above, when
considering such updates. However, legislative actions are discretionary, and bound only by applicable
statutes. The Town shall never be compelled to undertake a legislative action, unless otherwise required by
state or federal law, even if all review criteria have been satisfied. The requirements of section 31-23-304,
C.R.S., shall apply, but the procedural requirements of this code, including chapter 3, shall not. Instead, Staff
may conduct outreach to the community as directed by the Board of Trustees in its discretion.
(Ord. 07-14 §1)
F. Applications for Building Permits During Consideration of Application for Amendment to this Code.
1. Whenever an ordinance or resolution has been introduced before the Board s that involves a change in
zoning from a less restricted district to a more restricted district, or to set forth prohibited uses in any
existing zone district, no building permit shall be issued for a period not to exceed one hundred twenty
(120) days from the date of the introduction of such zoning amendment when such building permit
would authorize the construction of a building or the establishment of a use that would become
nonconforming under the contemplated zoning amendment.
Created: 2025-07-08 15:01:51 [EST]
(Supp. No. 23, Update 3)
Page 3 of 3
2. If such ordinance or resolution is not adopted within one hundred twenty (120) days, the appropriate
public entityTown is authorized to accept applications and issue building permits regardless of the
pendency of such amendment.
(Ord. 07-14 §1, 2/25/14)
3
CHAPTER THREE
FUTURE
LAND USE
»Introduction
»Future Land Use Categories
»Future Land Use Map
»Opportunity Areas
»Annexation and Future Town
Service Areas
Attachment 3
THIS FUTURE LAND USE PLAN IS A
CORNERSTONE OF ESTES FORWARD,
PROVIDING GUIDANCE TO THE
TOWN AND COUNTY’S ELECTED
AND APPOINTED LEADERS AS
THEY MAKE LAND USE AND
DEVELOPMENT DECISIONS.
61ESTES FORWARD | COMPREHENSIVE PLAN
FUTURE LAND USE
INTRODUCTION
The Future Land Use Plan conveys the patterns and
priorities of conservation, development, economic
vitality, neighborhood character, and the preservation
of natural, agricultural, and rural landscapes. It serves
as a starting point for conversations about regional
initiatives and development proposals by illustrating
the interrelationship between seemingly separate and
uncoordinated land use activities. The framework also
enhances predictability for residents and developers
about the desired character of each area. It is a guide
for decision-makers as they consider how proposed
development can help or harm our desired future, and
where and how the community will grow or not grow.
Most of the forecasted growth in the next two decades is
expected to be accommodated within the Estes Park town
limits. Accordingly, the Future Land Use Plan prioritizes
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Estes Park town limits while simultaneously positioning
the unincorporated Valley to support new attainable
housing and mixed-use near existing commercial
centers and key transportation corridors.
The Future Land Use categories, map, and related
land use policies are intended to protect the Valley’s
distinctive character and prevent development sprawl
that requires extensive infrastructure investments,
long-term maintenance, and impacts the area’s natural
character. The map categorizes areas outside of Estes
Park town limits to guide appropriate development
patterns, respect private property rights, and preserve
the open and rural character that County residents value.
RELATIONSHIP BETWEEN FUTURE LAND
USE AND ZONING
The Future Land Use Categories are not zoning districts.
They convey aspirational land use policy, in contrast
with zoning which is legally enforceable. Zoning refers
to land use entitlements and requirements that regulate
appropriate use, form, density, and other characteristics
DSSURSULDWHIRUDVSHFLͤFVLWHAdoption of this Plan and
the Future Land Use Plan does not alter, circumvent,
or supersede established zoning or overlay districts
without following the legislative process for amending
the zoning map or Town and County development codes.
FUTURE LAND USE CATEGORIES
The proposed Future Land Use Categories unify the
Town and County’s framework for the built and natural
character, and work to prevent development sprawl that
requires extensive infrastructure investments and long-
term maintenance.
The proposed Future Land Uses reorganize and
consolidate the Town’s previous range of land
FODVVLͤFDWLRQ WKDW UHODWHV GHQVLW\ DQG LQWHQVLW\ RI
development potential to ecological conditions
and market demand. This approach coordinates
GHYHORSPHQWDQGFRQVHUYDWLRQWRSURYLGHIRUͤVFDOO\DQG
environmentally responsible growth.
The ten (10) Future Land Use Categories represent
development patterns that share similar attributes of
environmental and built character within the Town of
Estes Park and Larimer County’s Estes Valley Planning
Area. Shared attributes within each area include the
size and type of buildings and their relationship to the
street, the street type and block pattern, supported
transportation modes, the intensity of land use, and
density of development. The Future Land Uses provide
a guide for land use policies and decisions that direct
growth according to character and intensity of use.
62 CHAPTER 3: FUTURE LAND USE
DENSITY vs. INTENSITY:
Understanding the Difference
Land use refers to the set of
activities that occur on any given
property. Land use intensity
refers to the degree to which
those activities occur or the
extent to which a property is
used for activities. For example,
a commercial use is more intense
than a residential use. Density
further describes the intensity of
residential uses and is typically
expressed as the number of
dwelling units located on a single
acre of land.
63ESTES FORWARD | COMPREHENSIVE PLAN
1. Natural Resource
Conservation & Parks
2. Mountains & Foothills
3. Low-density
Accommodations
4. Suburban Estate
5. Neighborhood Village
6. Mixed Residential
Neighborhood
7. Public/Semi-Public
8. Downtown
9. Mixed-Use Centers &
Corridors
10.Industrial Mix
NATURAL RESOURCE CONSERVATION & PARKS
The Natural Resource Conservation and Parks category
is composed of Rocky Mountain National Park, Arapahoe
and Roosevelt National Forest, Bureau of Reclamation,
and wildlife habitat, open space, parks and trail corridors
managed by Larimer County and the Town of Estes Park.
The lands within this category provide a mix of recreation
opportunities including self-directed outdoor recreation,
developed parks, playgrounds, and environmental
educational opportunities while protecting natural
heritage and open space. Nearly 10,000 acres have
been voluntarily conserved by private land owners via
conservation easements and the Estes Valley Land Trust
with no public access.
Appropriate Land Uses and Development
Types
»Federal natural resource lands
»Public water-access facilities
»Primitive campsites and rustic campgrounds
»Natural resource based self-directed recreation
»Forestry, grazing, agriculture
»Wildlife corridors
»Private lands under conservation easements (no
public access)
»Public recreation centers
»3DUNVDQGUHFUHDWLRQVSRUWVͤHOGV
»Multi-use paths & trails
Built Form
New buildings and structures, if any, should support public
utilities, research operations, public land maintenance,
park use, recreation, and low-impact agriculture. These
may include structures such as restrooms, trailhead
facilities, picnic shelters, seating areas, play equipment,
concessions, or equipment storage. All structures should
be designed for compatibility with the surrounding
aesthetic and for preservation of surrounding open
space and viewsheds.
»Building Height: 1 - 2 stories
»Block Length: N/A
»Primary Road Setback: N/A
»Transportation System: Streets and parking lots
provide vehicle access to trailheads and parks;
off-street trail network for pedestrian, bicycle, and
equestrian use; sidewalks, and on-street bicycle
facilities for Town parks.
Previous (1996) Future Land Use Categories
»Natural Resource (Larimer County)
»Parks, Recreation, & Open Space
FUTURE LAND USE CATEGORIES
64 CHAPTER 3: FUTURE LAND USE
MOUNTAINS & FOOTHILLS
The Mountains & Foothills category is composed
of private forestry, agricultural, and ranching lands,
ecotourism, undeveloped natural landscapes including
steep slopes and watershed protection. This category
allows for limited development of very low-density single
family or residential conservation developments. Lands
in this category should not be targeted for expansion of
public or private water and sewer infrastructure. Some
areas located within this category could ultimately
transition to Natural Resource Conservation & Parks
through conservation easements or expansion of public
lands to further preservation of natural resources and
wildlife habitat.
Appropriate Land Uses and Development
Types
»Forestry, ranching, agricultural uses
»Eco and Agritourism
»Single-family conservation developments
»Hazard mitigation
»Watershed protection
Built Form
This category supports low-density development of
buildings and structures designed for preservation of
surrounding open space and viewsheds.
»Building Height: 1 - 2.5 stories
»Block Length: N/A
»Primary Road Setback: 100+ ft.
»Transportation System: Automobiles are primary
transportation mode to provide access to homes
and destinations on rural, low-volume roads;
backcountry trail network for pedestrian, off-
road bicycle, and equestrian use; road shoulders
accommodate bicycles.
Previous (1996) Future Land Use Categories
»Mountains & Foothills (Larimer County)
»Rural Estate 10 Acre Min.
»Rural Estate 2.5 Acre Min.
65ESTES FORWARD | COMPREHENSIVE PLAN
LOW-DENSITY ACCOMMODATIONS
The Low-Density Accommodations category is intended
for uses such as rustic lodges, resorts, and cabins that
are developed in rural areas at a lower density and
intensity than urban hotel or motel-style lodging.
Appropriate Land Uses and Development
Types
»Rural lodges and resorts
Built Form
This category supports low-density or clustered
development on large lots that prioritizes preservation
of surrounding natural landscapes and viewsheds. Low-
density accommodations may be served by public water
and wastewater dependent upon location.
»Building Height: 1 - 2 stories
»Block Length: N/A
»Primary Road Setback: 30+ ft.
»Transportation System: Automobiles are primary
transportation mode on rural, low-volume streets;
wide shoulders accommodate bicycles and
pedestrians
Previous (1996) Future Land Use Categories
»Accommodations
66 CHAPTER 3: FUTURE LAND USE
SUBURBAN ESTATE
The Suburban Estate category is intended for low to
medium density single family residential development,
including conservation development that may be
supported by limited small-scale neighborhood
commercial located at crossroads or along arterial roads
within the Town. Any non-residential uses are appropriate
when they demonstrate the following:
»Supports a local, neighborhood need
»Is appropriately located for the access and
transportation requirements of the activity (e.g.,
a rustic camp may be acceptable on gravel road,
whereas a retail use should be located on a paved
road)
»Availability of adequate utilities and infrastructure
HJZDWHUVHZHUͤUHSURWHFWLRQ
»Scale and intensity of the use is in harmony with the
surrounding neighborhood based on factors such
as:
• Built character
• Proximity to residential areas
• Proximity to sensitive environmental features
or wildlife areas
• Proximity to unique or highly visible
viewsheds, landforms, or places of interest
Appropriate Land Uses and Development
Types
»Single family residential subdivisions with low to
medium density
»Single family homes with accessory dwelling units
»Single family clustered or conservation
developments (in the County)
»Limited neighborhood-serving commercial located
at primary intersections (in the Town or key
locations)
Built Form
The Suburban Estate Category typically consists of
medium-sized single-family homes on lots that are at
least a quarter-acre in size. Medium-density conservation
development with smaller lots requires public water and
wastewater. However much of the development in this
category is served by septic where public wastewater is
unavailable and larger lots can accommodate individual
systems. New homes should be appropriately scaled
for compatibility with existing neighborhood character.
Existing suburban neighborhoods served by public
utilities can accommodate moderate increases in density
through the addition of Accessory Dwelling Units.
»Building Height: 1 - 2.5 stories
»Block Length: N/A
»Primary Road Setback: 30+ ft.
»Transportation System: Automobiles are the
primary mode of transportation on low-volume
streets that are wide enough for pedestrians to
safely walk the shoulder. As much as possible,
dead-end streets and cul-de-sacs are discouraged
LQIDYRURIHͦFLHQWLQWHUFRQQHFWHGVWUHHWQHWZRUNV
Previous (1996) Future Land Use Categories
»Estate 1 Acre Min.
»Estate 0.5 Acre Min.
67ESTES FORWARD | COMPREHENSIVE PLAN
NEIGHBORHOOD VILLAGE
The Neighborhood Village category contains medium
to higher density single family residential organized in a
more compact development pattern that is characterized
by an interconnected street network, available water and
wastewater, increased walkability and connectivity to
other neighborhoods and commercial nodes. Limited
neighborhood-serving civic, cultural, and commercial
uses may be located near neighborhood entrances and
crossroads.
Appropriate Land Uses and Development
Types
»Medium to higher density single family
»Accessory dwelling units
»Duplexes and triplexes
»Limited neighborhood-serving civic, cultural, and
commercial uses
Built Form
%XLOGLQJV LQ WKLV FODVVLͤFDWLRQ DUH PRGHVWO\ VL]HG DQG
residential in nature located on small to medium-sized
lots under half an acre that are served by public water and
ZDVWHZDWHU1HZLQͤOOVKRXOGEHDSSURSULDWHO\VFDOHGIRU
compatibility with the existing neighborhood character
with medium to shallow front setbacks and garages
located at the side or rear of the home. Established
neighborhoods can accommodate moderate increases
in density through the addition of Accessory Dwelling
Units.
»Building Height: 1 - 2.5 stories
»Block Length: 250 – 650 ft.
»Primary Road Setback: 10 – 30 ft.
»Transportation System: Low-speed residential
streets are interconnected and shared by
automobiles and bicycles; double-loaded sidewalks
facilitate safe pedestrian travel.
Previous (1996) Future Land Use Categories
»Residential 0.25 Acre Min.
»Two-family
»PUD Residential
»Accommodations Low-density
68 CHAPTER 3: FUTURE LAND USE
MIXED RESIDENTIAL NEIGHBORHOOD
The Mixed Residential Neighborhood category
accommodates high density mixed residential
development that facilitates the coexistence of
townhomes, condos, and multi-family complexes. It
is characterized by an interconnected street network,
available water and wastewater, and walkable
neighborhoods that connect to commercial nodes and
other neighborhoods. Mixed residential neighborhoods
may include limited neighborhood-serving civic, cultural,
and commercial uses.
Appropriate Land Uses and Development
Types
»Condominium developments
»Townhomes
»Multi-family complexes
»Limited neighborhood-serving civic, cultural,
commercial uses
Built Form
New structures and redevelopment in this category
consist of larger-scale residential buildings on a variety
of lot sizes served by public water and wastewater.
Density bonuses incentivize attainable workforce
housing. Shallow setbacks allow for maximized use of
the lot. Parking and garages should be located at the
side, rear, or below structures.
»Building Height: 3 - 4 stories
»Block Length: 250 ft.
»Primary Road Setback: 10 - 20ft.
»Transportation System: This category
accommodates all modes: automobile, bicycle,
pedestrians, and transit. Residential streets
in Mixed Residential Neighborhoods are
interconnected with double-loaded sidewalks and/
or shared-use paths for safe bicycling and walking.
Previous (1996) Future Land Use Categories
»Multi-family
69ESTES FORWARD | COMPREHENSIVE PLAN
PUBLIC/SEMI-PUBLIC
The Public/Semi-public category consists of institutional
and civic uses such as recreation centers, schools,
research facilities, utility, and public services operations.
Appropriate Land Uses and Development
Types
»Research facilities
»Civic uses
»Community/recreation centers
»Schools
»Public services operation
Built Form
Structures and buildings in this category consist of
1-3 story buildings on a variety of lot sizes. Public/
Semi-public uses are often located on or near major
transportation corridors and served by public water and
wastewater, depending on location. Street setbacks and
vegetative buffers increase as the intensity of the use
increases.
»Building Height: 1 - 3 stories
»Block Length: N/A
»Primary Road Setback: increase as intensity and
scale increase
»Transportation System: Automobiles are the
primary transportation mode; development should
strive for pedestrian and bicycle connectivity to
uses that are frequented by the public.
Previous (1996) Future Land Use Categories
»Public/Semi-public
70 CHAPTER 3: FUTURE LAND USE
DOWNTOWN
The Downtown category is characterized by a dense,
compact street grid, well-developed pedestrian network,
and readily available water or wastewater infrastructure.
This area is predominantly composed of traditional,
and often historic, vertical mixed-use buildings.
The Downtown is well provided for in terms of
XUEDQ VHUYLFHV PDNLQJ LW WKH PRVW HͦFLHQW DUHD IRU
redevelopment or development of underutilized land.
See the Estes Park Downtown for Details.
Appropriate Land Uses and Development
Types
»Traditional, dense vertical mixed-use with
UHVLGHQWLDORͦFHLQVWLWXWLRQDOFRPPHUFLDO
entertainment, and upper-story residential
»Civic uses such as community centers, libraries,
government administration facilities
»Cultural uses such as museums and performing
arts venues
Built Form
The Town Center is a complete community with
highly walkable, pedestrian-oriented streetscapes.
Development should prioritize the preservation and
rehabilitation of historic buildings and encourage
FRPSDWLEOH LQͤOO GHYHORSPHQW 1HZ DQG UHPRGHOHG
EXLOGLQJV VKRXOG UHͥHFW D FRPSDWLEOH VFDOH DQG
vernacular of existing buildings on small to medium-
sized lots. Building heights should be 1.5-3 stories and
should form a continuous street-wall along primary
streets. Parking is located on the street, at the rear of
buildings, and in off-site public lots or decks.
»Building Height: 1.5 - 3 stories
»Block Length: 250 ft.
»Primary Road Setback: 0 ft.
»Transportation System: This category
accommodates all modes: automobile, bicycle,
pedestrians, and transit.
Previous (1996) Future Land Use Categories
»Downtown Commercial
71ESTES FORWARD | COMPREHENSIVE PLAN
MIXED-USE CENTERS & CORRIDORS
The Mixed-use Centers and Corridors category contains
medium to higher-density vertical mixed residential
and commercial use developments located on or near
major thoroughfares. This category is characterized by
an interconnected road network, available water and
wastewater, and a walkable environment and a greater
emphasis on design of upper stories for compatibility.
Appropriate Land Uses and Development
Types
»Mixed-Use developments with upper-story
UHVLGHQWLDORͦFHLQVWLWXWLRQDOFRPPHUFLDO
entertainment
»Medium-high density accommodations such as
hotels, motels, short-term rental attached units
Built Form
New and redeveloped sites in Mixed-use Centers and
&RUULGRUV VKRXOG UHͥHFW D YDULHW\ RI EXLOGLQJ W\SHV RQ
large lots. Development in this category should strive to
increase business density, adding residential units where
appropriate, and expanding multi-modal connectivity.
Parking lots should be divided into more than one
area including the side and rear of buildings where
feasible. All structures should feature pedestrian-scale
entrances. Development should positively contribute
to the character of the town through pedestrian-scaled
DUFKLWHFWXUDOIHDWXUHVRQJURXQGͥRRUVDQGODQGVFDSLQJ
»Building Height: 1 - 5 stories
»Block Length: 250 – 650 ft.
»Primary Road Setback: 10 - 150 ft.
»Transportation System: This category
accommodates all modes: automobile, bicycle,
pedestrians, and transit. The pedestrian system
should connect to other mixed-use and commercial
nodes and neighborhoods. Sidewalks and/or
shared-use paths and bicycle infrastructure should
connect the multi-modal network along primary
transportation corridors. Pedestrian connectivity
internal to the site must connect parking areas to
the building and adjacent sites.
Previous (1996) Future Land Use Categories
»2ͦFH
»PUD Commercial
»Commercial Recreation
»Commercial
»Accommodations
72 CHAPTER 3: FUTURE LAND USE
INDUSTRIAL MIX
The Industrial Mix category is supported by major
transportation corridors, public water, and wastewater
infrastructure. This category provides for a range of
industrial manufacturing, warehouse, commercial, and
ODUJHVFDOHLQVWLWXWLRQDORURͦFHXVHV,WLQFOXGHVH[LVWLQJ
heavy industry within the Estes Valley but supports a
shift toward light and clean industrial and small-scale
manufacturing uses with fewer environmental impacts.
Appropriate Land Uses and Development
Types
»,QGXVWULDODQGͥH[RͦFHVSDFH
»Small scale or boutique manufacturing
»Warehouse uses, including those with direct-to-
consumer sales and retail hours
»/DUJHVFDOHLQVWLWXWLRQDODQGRͦFHIDFLOLWLHV
»Limited commercial uses
»Existing heavy industry
Built Form
1HZ DQG UHGHYHORSHG VLWHV VKRXOG UHͥHFW D YDULHW\ RI
building types, typically on very large lots. Buildings
should be appropriately screened or set back from lot
lines to minimize impacts to adjacent non-industrial
properties. Street setbacks and vegetative buffers
increase as the intensity of the use increases.
»Building Height: 1-3 stories
»Block Length: N/A
»Primary Road Setback: Increases as intensity and
scale increase
»Transportation System: This area accommodates
vehicles as the primary mode of transportation
but should strive for pedestrian and bicycle
connectivity to support alternatives to vehicle travel
and a healthy workplace.
Previous (1996) Future Land Use Categories
»Light Industrial
»Restricted Industrial
73ESTES FORWARD | COMPREHENSIVE PLAN
Lake Estes
Lily Lake
Marys Lake
FALL RIVER
FISH CREEK
BLACK CANYO
N
C
R
EEK
BIG THOMPSON RIVER
66
36
36
34
34
7
R oooo ccccc kkkkk yyyy MMMMM oooooo uuuuu nnnnnnn ttttttttt aaaaaaa iiii nnnnnnn
NNNNNNNN aaaa tttt iiiiiii oooooooooo nnnn aaaaaaa lllll PPPPPPP aaaaa rrrrr kkkkkkkk
FUTURE LAND USE MAP
74 CHAPTER 3: FUTURE LAND USE
FUTURE LAND USE MAP OVERVIEW
The Estes Forward Future Land Use Map applies the Future Land Use
Categories to the Estes Valley Planning Area and Town of Estes Park
jurisdictions to recommend appropriate locations for each category
of land use and development character. The composition of map is
informed by several factors:
»The previous future land use maps (Town - 1996, County - 2019)
»Current zoning map
»Historic development patterns
»Existing water service areas
»Environmental features and constraints
»Areas of anticipated development
»Growth and conservation preferences articulated by the
community
The Future Land Use Map provides the overarching structure for
orchestrating appropriate patterns of development and conservation
WKURXJKRXW WKH (VWHV 9DOOH\ ,Q GRLQJ VR WKH PDS LQͥXHQFHV DQG
informs zoning decisions to achieve desired future growth patterns.
:KLOH HYDOXDWLQJ VLWHVSHFLͤF GHYHORSPHQW UHTXHVWV VWXG\ WKH
Future Land Use Map to determine whether the request is consistent
with the community’s land use and development vision.
The Future Land Use Map is a guide to achieving the community’s
stated vision; however, it is not a mandate. To the extent possible,
it should be closely followed, but when circumstances dictate
otherwise, it is the intent of this plan to enable the Town and the
County to respond appropriately through their land development
decisions.
THE FUTURE LAND USE CATEGORIES AND MAP
ARE ASPIRATIONAL. THEY DO NOT ALTER,
CIRCUMVENT, OR SUPERSEDE ESTABLISHED
ZONING, RECORDED SUBDIVISIONS, OR
APPROVED DEVELOPMENT PLANS. THE ZONING
MAP AND DEVELOPMENT CODES ARE NOT
CHANGED AS A RESULT OF THE ADOPTION OF
THE COMPREHENSIVE PLAN OR FUTURE LAND
USE PLAN, CATEGORIES, OR MAP. FEDERAL
LANDS, INCLUDING NATIONAL PARKS, ARE NOT
SUBJECT TO THE FUTURE LAND USE MAP OR
TOWN AND COUNTY ZONING MAPS.
210
Miles
±
Future Land Use
Future Land Use categories do not alter, circumvent,
or supersede established zoning, recorded
subdivisions, or approved development plans. The
zoning map and development codes are not changed
as a result of the adoption of the Comprehensive Plan
or Future Land Use Map.
Date: 11/28/2022
Rivers and Creeks
Lakes
Local Roads
Major Roads
Estes Valley Planning Area
Town of Estes Park
Natural Resource
Conservation & Parks
Mountains & Foothills
Accommodations
Suburban Estate
Neighborhood Village
Mixed Residential Neighborhood
Public/Semi Public
Downtown
Mixed-Use Centers & Corridors
Industrial Mix
Future Land Use
RMNP Boundary
75ESTES FORWARD | COMPREHENSIVE PLAN
Lake Estes
Lily Lake
Marys Lake
FISH CREEK
FALL RIVER
BLACK CANY
O
N
C
R
EEK
BIG THOMPSON RIVER
66
36
36
34
34
7
Z:\
OPPORTUNITY AREAS
76 CHAPTER 3: FUTURE LAND USE
OPPORTUNITY AREAS
Future Study Areas
Certain areas of the Estes Valley are likely to experience more
change, investment, or growth over the next 20 years due to a variety
of factors including development pressure, market trends, and aging
infrastructure. The degree and type of change will differ in each
area based on the context of the built environment, environmental
constraints, market demands, local preferences, and needs such
as attainable housing. Because change happens differently in
different places, and what may be desired in one location may not be
DSSURSULDWHLQDQRWKHUORFDWLRQWKH)XWXUH/DQG8VH0DSLGHQWLͤHV
special Future Study Areas for more detailed planning following
this plan. Additional, cooperative planning between the Town and
the County will further identify suitable locations for growth and
FRQVHUYDWLRQWKDWLVFRQWH[WVSHFLͤFDQGSURSRUWLRQDWHWRWKHVFDOH
of development that is appropriate in a given location.
A proactive and strategic approach to the redevelopment or
conservation of Future Study Areas within the Estes Valley promotes
a higher rate of success in realizing opportunities that meet the
community’s preferences and needs rather than passively reacting
WR PDUNHWGULYHQ GHYHORSPHQW SUHVVXUH DQG ͥXFWXDWLQJ UHDO HVWDWH
WUHQGV%\GHͤQLQJWKHLGHDOFRQVHUYDWLRQRUGHYHORSPHQWVFHQDULR
for these areas, the Estes Valley community and their elected
representatives can make intentional land use decisions that support
achievement of the Estes Forward Vision and Guiding Principles.
Gateway Corridors
In addition to Future Land Uses and Future Study Areas, the map
DOVR LGHQWLͤHV *DWHZD\ &RUULGRUV LQWR WKH (VWHV 9DOOH\ 7KHVH
LPSRUWDQW FRUULGRUV GHOLYHU WKH ͤUVW LPSUHVVLRQ XSRQ HQWHULQJ WKH
9DOOH\DQGWKHUHIRUHSURYLGHDVLJQLͤFDQWRSSRUWXQLW\WRFRQYH\D
sense of arrival and community identity through special attention to
viewshed protection, enhanced landscaping, signage, land use, and
the aesthetics of the built environment. Like the Future Study Areas,
Gateway Corridors are deserving of additional consideration and
cooperative planning between the Town and the County.
Other Conserved Lands
Arapaho and Roosevelt
National Forests
Rocky Mountain National
Park
Future Study Areas
O A
Lakes
Local Roads
Major Roads
Estes Valley Planning Area
Town of Estes Park
210
Miles
±
11/28/22
77ESTES FORWARD | COMPREHENSIVE PLAN
ANNEXATION AND FUTURE TOWN SERVICE AREAS
Comprehensive planning and growth management in
the Estes Valley imply coordination and cooperation
between the Town of Estes Park and Larimer County. A
key imperative of this plan is that the Town and County
FRQWLQXH WR FROODERUDWH RQ GHͤQLQJ D )XWXUH 7RZQ
Service Area and corresponding Annexation Policy. The
Town and the County are encouraged to work together
to identify areas of shared development impact in
anticipation of where the Town will grow (and not grow).
$ )XWXUH 7RZQ 6HUYLFH $UHD ZRXOG GHͤQH D ERXQGDU\
beyond existing Town limits to indicate an area(s) where
higher intensity and density is acceptable over the next
20 years and to plan for municipal service provision. The
area would not necessarily need to be served exclusively
by the municipality for all services, but the designated
area should be serviceable by an existing urban service
provider. A Future Town Service Area would establish a
coordinated partnership for managing long-range growth
WKDWUHͥHFWVWKHFRPPXQLW\̵VYDOXHVDQGPDUNHWUHDOLWLHV
to provide predictability and consistency.
The Future Town Service Area should be supported by
DQ $QQH[DWLRQ 3ROLF\ WKDW VSHFLͤHV FULWHULD IRU IXWXUH
development, infrastructure, and public services,
mutually agreed upon by the Town of Estes Park and
Larimer County. If the development criteria are met,
the Town would annex areas within the Future Service
Area and provide the full range of public services.
Concentrating redevelopment within and adjacent to the
H[LVWLQJ WRZQ ERXQGDULHV VXSSRUWV HͦFLHQW PXQLFLSDO
services, infrastructure maintenance, and conservation
of natural areas.
This approach is intended to strengthen the connection
between more urban land use and eventual annexation
by the Town by prioritizing growth areas and limiting
development in areas of critical natural habitat and
resources. It also continues an expectation that the Town,
not the County, will provide the full range of services
necessary to support a quality urban environment.
78 CHAPTER 3: FUTURE LAND USE
PAGE IS INTENTIONALLY LEFT BLANK.
79ESTES FORWARD | COMPREHENSIVE PLAN
COMMUNITY DEVELOPMENT
To: Chair Cooper
Estes Park Planning Commission
From: Steve Careccia, Community Development Director
Date: January 21, 2025
Re: Review of Rezoning Criteria
PUBLIC HEARING ORDINANCE LAND USE
CONTRACT/AGREEMENT RESOLUTION OTHER Information Item
QUASI-JUDICIAL YES NO
Objective:
Staff will provide the Planning Commission with an overview of the criteria established
in the Development Code for the review of code amendments (rezonings) and then
solicit Commission discussion and feedback. As this is an information item, no formal
action from the Commission is required.
Background and Discussion:
The ability to regulate land use is granted to municipalities by the State of Colorado.
Regarding amendments to adopted land use regulations, Colorado Revised Statutes,
Section 31-23-304 (Method of procedure) states:
The governing body of such municipality shall provide for the manner
in which such regulations and restrictions and the boundaries of such
districts are determined, established, enforced, and, from time to
time, amended, supplemented, or changed. However, no such
regulation, restriction, or boundary shall become effective until after
a public hearing thereon at which parties in interest and citizens shall
have an opportunity to be heard. At least fifteen days’ notice of the
time and place of such hearing shall be published in an official paper
or a paper of general circulation in such municipality.
While the above statute permits municipalities to address land use regulations, it does
not provide specific criteria for how municipalities are to establish those regulations or
evaluate amendments. Rather, such procedures are left to the municipality to establish.
For the Town of Estes Park, land use procedures, rules, and regulations applicable to
land use are set forth in the Development Code. Specifically for the evaluation of
rezonings, Section 3.3.D (Standards for Review) of the Development Code establishes
Attachment 4
2
three review criteria that must be considered by the Planning Commission and Town
Board. The Code’s review criteria (bold) are presented below, along with a staff
analysis:
1. The amendment is necessary to address changes in conditions in the areas
affected;
Determining compliance with this review criteria can be challenging due to the
lack of specificity in what constitutes a change in condition. For example, what
timeframe should be used for evaluating changes – only recent changes within
the last few years or should longer-term changes be considered? What is the
area affected – only properties adjoining the rezoned property or should land and
properties farther away be considered? What type or degree of change should be
considered, including physical changes to the area’s development pattern or
changes in master/comprehensive plans applicable to the area? Given the
Development Code does not provide specific guidance, Commissioners are
asked to make reasonable judgements in the evaluation of a rezoning request.
As such, it is both expected and normal that different viewpoints and conclusions
may result, but with no one viewpoint or conclusion considered to have greater
weight or influence. Regarding staff evaluation of a rezoning, staff takes a
comprehensive view of what constitutes a change in condition, and considers
both historical and recent changes, physical changes along with changes in
applicable master plans/comprehensive plans, and views the affected area as
going beyond the rezoned property and adjoining properties, with a focus on the
general public.
Regarding another perspective on changes in conditions, Colorado courts have
put much emphasis on the importance of comprehensive planning/master
planning and have generally supported rezonings when deemed to be in
conformance with such comprehensive plans. As such, a change of conditions is
not necessarily a prerequisite to rezoning from an overall legal perspective.
(Colorado Land Planning and Development 2021, 12th Edition)
2. The development plan, which the proposed amendment to this code would
allow, is compatible and consistent with the policies and intent of the
Comprehensive Plan and with existing growth and development patterns in
the Estes Valley; and
The Estes Forward Comprehensive Plan was recently adopted in 2022, and is
the guiding document for the Town. As such, both short- and long-term decisions
affecting the Town should be made with the Plan’s vision, guiding principles,
goals, policies, and recommended actions in mind. Within the Plan, goals and
policies on the natural and built environment, economy, housing, health and
social welfare, and transportation and infrastructure are established. In addition,
Chapter 3, Future Land Use, of the Plan is especially important when considering
land use and development decisions. This chapter designates a Future Land Use
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category for properties within the planning area to establish the desired pattern of
development and character for these areas. So, when considering a rezoning,
the Commission should evaluate whether the requested zoning district furthers
the desired character of the area as set forth in the Plan.
Whereas a property’s Future Land Use designation, pursuant to the
Comprehensive Plan, is aspirational, a property’s zoning is regulatory. Zoning
establishes the permitted uses that can occur on that property and other
regulatory standards such as building setbacks and density. When a property is
rezoned, the permitted uses in the new zoning district must be compatible with
the existing uses and development in the area, in addition to being consistent
with the Comprehensive Plan. Regarding compatibility, the Development Code
offers guidance with the following definition:
Compatible or Compatibility shall mean the characteristics of
different uses or activities or design which allow them to be
located near or adjacent to each other in harmony. Some
elements affecting compatibility include height, scale, mass
and bulk of structures. Other characteristics include
pedestrian or vehicular traffic, circulation, access and parking
impacts. Other important characteristics that affect
compatibility are landscaping, lighting, noise, odor and
architecture. Compatibility does not mean "the same as."
Rather, compatibility refers to the sensitivity of development
proposals in maintaining the character of existing
development.
The definition clearly states that compatibility does not mean that land uses
within the vicinity of each other have to be the same. But they should be in
harmony. In furtherance of this objective, much of the Development Code’s
purpose is to ensure such harmony exists. From requirements for building
setbacks, buffering and landscaping, density, and height limits to requirements
for the submittal of traffic impact reports, and site lighting and drainage plans, the
intent is to ensure that future development does not adversely affect nearby
properties or the overall public welfare. The Planning Commission may also add
conditions of approval to a rezoning request, if they believe such conditions are
necessary for greater compatibility between existing and proposed land uses.
Sometimes the term ‘spot zoning’ is used when referring to a rezoning. Pursuant
to established planning principles, a rezoning must be compatible with adjacent
uses in the area and consistent with the comprehensive plan. A ‘spot zoning’
generally occurs when these principles are not adhered to. A commonly used
example of ‘spot zoning’ is the rezoning of a small parcel within an established
residential zone, as designated in that municipality’s comprehensive plan and
zoning map, from residential to commercial. Such commercial rezoning could be
considered incompatible with the surrounding residential area and inconsistent
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with the comprehensive plan, especially if purposely done to relieve that property
of certain zoning requirements. While this is a simplistic example, and the factors
for and against a rezoning can be complex, it nonetheless still shows how a
rezoning should and should not be evaluated. Further to this issue, it should be
noted that the Development Code does not define ‘spot zoning’ but does require
all rezonings to meet the evaluation criteria, as addressed within this report.
3. The Town, County or other relevant service providers shall have the ability
to provide adequate services and facilities that might be required if the
application were approved.
Of the three evaluation criteria, this is generally the most straightforward. When
an application for rezoning is received, staff will send that application to all
applicable utility and service providers for their input and recommendations on
the requested rezoning. These providers will generally state if they can serve or
not serve the property, and any impacts the rezoning may have on their provision
of service. If the service providers indicate they cannot serve the property or that
the provision of service would require investment by the property owner, then
such information should be considered during the evaluation of the rezoning
request. For example, if the Fire District indicates that due to the terrain of the
area being rezoned that two emergency access points would be very beneficial,
though not required, then the Commission may want to consider making this a
condition of the zoning approval.
Conclusion:
When a rezoning goes before the Planning Commission, staff will provide a report on
how that rezoning is either consistent or inconsistent with the Comprehensive Plan’s
various goals and policies and the property’s Future Land Use designation. Similarly,
staff will also provide an analysis of how the proposed rezoning is either compatible or
incompatible with the land uses in the surrounding area. This information is intended to
help Commissioners form their own conclusions on the item.
Attachments:
None
Rezoning Criteria
Town Board Study Session
June 23, 2026
Presentation Received 2026-06-23
Purpose & Direction Requested
•Review and discuss draft rezoning criteria
•Provide direction on proposed changes
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Present Situation
•Rezoning criteria established in Development Code (Section 3.3 Code Amendments)
•Rezoning must show compliance with criteria
•Joint study session August 7, 2025
•Reviewed rezoning criteria – Estes Park & 10 other municipalities
•Change in conditions – meaning & application?
•Bring back draft criteria for further consideration: May 26 & June 23
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Proposal
•Consider draft criteria as presented:
o Future Land Use Plan consistency
o Compatibility with surrounding area & mitigation of adverse impacts
o Adequate public services
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Current Review Criteria 1
The amendment is necessary to address changes in conditions in the areas
affected;
Proposed Review Criteria 1
The amendment is consistent with the Future Land Use Plan of the Estes
Forward Comprehensive Plan (December 2022). If the amendment is not
consistent with the Future Land Use Plan, then either:
a.The amendment is necessary to address a change in conditions or
circumstances since the establishment of this Code, in the close vicinity of
the amendment area, which area’s extent is subject to the interpretation of
the Board of Trustees in its reasonable discretion; or
a.The amendment will correct a technical error in the text or Official Zoning
Map of this Code.
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Current Review Criteria 2
The development plan, which the proposed amendment to this Code would allow, is compatible
and consistent with the policies and intent of the Comprehensive Plan and with existing growth
and development patterns in the Estes Valley; and
Proposed Review Criteria 2
The amendment will not adversely impact surrounding properties and the community, or such
potential adverse impacts, including but not limited to impacts related to environmental
conditions, building design and placement, wildlife, access, traffic, emergency services, utilities,
parking, noise, glare, odor, or other similar factors, have been or shall be adequately addressed
and mitigated, to the maximum extent feasible, through compliance with this Code, enforceable
agreements, and/or conditions of approval. As necessary, conditions of approval may include,
but are not limited to, the following:
a. Modification in the number and type of permitted uses;
b. Modification or other regulations on permitted density or intensity of development;
c. Modification or other regulations on building or structure massing, height, and/or design;
d. Provision of additional open space;
e. Increased buffers and/or building setbacks; and
f. Consistency with concept plans, architectural plans, landscape plans, and other site
plans submitted as part of the amendment application.
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Current Review Criteria 3
The Town, County or other relevant service providers shall have the ability to
provide adequate services and facilities that might be required if the application
were approved.
Proposed Review Criteria 3
The Town and other relevant service providers shall have the ability to provide
adequate services and facilities that would be required if the amendment were
approved.
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Advantages & Disadvantages
Advantages:
•Clarity for staff, stakeholders, and decision makers
•Staff and Design Workshop have anticipated and planned for potential
changes to Development Code Section 3.3 (Code Amendments), so
such changes will not adversely affect the update process or schedule
Disadvantages:
•None
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Direction Requested
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•Should staff amend the rezoning criteria in the Development Code?
•If so, what should that amendment look like?
•Consider criteria as drafted?
•Other recommendations?
•Should staff include such amendment in the overall code update?
•Or, should it be a stand-alone amendment?
•Public hearing process either way…
The Town of Estes Park is committed to providing equitable access to our services. Contact us
if you need any assistance accessing material at 970-577-4777 or townclerk@estes.org.
Future Study Session Items
July 14, 2026
• Police Department Facility Financing
• Draft Code Amendment to Requirements for Neighborhood Meetings
• Housing Definitions and Density Bonuses in the Development Code
July 28, 2026
• Development Code Update 50% Draft Review
August 11, 2026
• Visit Estes Park Dark Sky Ordinance
• Administrative Regulations Enforcement Process
• Policy 102 (Town Committees) Liaison Review
• Policy 102 (Town Committees) Focus Groups Draft
August 25, 2026
• Downtown Plan Approach
• Annexation of Enclaves Follow Up
Items Approved - Unscheduled
• Growth Management Areas Overview
• Structure of Potential Development Agreement with Whimsadoodle and the
Estes Park Housing Authority for Cleave Street Development
• Liquor License Process
• Winter Event Strategy Proposal
• Seasonal Housing Issues
• Parking License Plate Recognition Policy
Items for Town Board Consideration
• None