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Facilities Master Plan Submittal Guidelines and Instructions for State Agencies

Return to Planning Instructions

Revised February 24, 2025

For institutions of higher education refer to Colorado Department of Higher Education planning guidelines for preparation and submittal requirements for Facilities Master Plans.

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Statutory Authority

C.R.S. 2-3-1304.6, was modified in part through SB15-270, stating that: 

“It is declared to be the policy of the general assembly (Capital Development Committee) not to acquire a capital asset or authorize or initiate any program or activity requiring capital construction, except programs or activities for controlled maintenance or capital renewal, for any state agency or state institution of higher education unless the program or activity is an element of the facilities program plan for the agency or institution and such facilities program plan has been approved by the state architect as set forth in section 24-30-1311, C.R.S., or by the Colorado commission on higher education as set forth in section 23-1-106, C.R.S.”

C.R.S. 24-1-136.5 (2), was modified in part through SB15-270, stating that:

“The executive director (heads of principal departments) shall review facilities master planning and facilities program planning for all capital construction, controlled maintenance, and capital renewal projects on department real property, regardless of the source of funds and shall submit for approval all such facilities master plans and facilities program plans to the Office of the State Architect for approval”.

C.R.S. 24-30-1303(1)(t)(I), was modified in part through SB15-270, adding the responsibility to the Office of the State Architect (Office) to:

“Make recommendations on capital construction and capital renewal project requests made by each state agency after the requests have been reviewed by the Office as specified in C.R.S. 24-30.1311, and submit recommendations for the same to the Office of State Planning and Budgeting. The State Architect may not recommend capital construction project requests if such projects are not included in the state agency’s facility program plan that is approved as required in section 24-30-1311, unless the State Architect determines that there exists a sound reason why the requested project is not included in the facility program plan.”

C.R.S. 24-30-1311(3)(a), was created through Senate Bill SB15-270, establishing the duties and powers of the Office of the State Architect (Office) with respect to capital construction and long-range planning. The section states:

“Each state agency shall forward Operational Master Plans, Facilities Master Plans and Facilities Program Plans, and Five-Year Plans to the Office. The Office shall review Operational Master Plans, and approve the Facilities Master Plans, Facilities Program Plans, and Five-Year Plans described in section 24-1-136.5.”

C.R.S. 24-37-304(a), was modified in part through SB15-270, and continues to require the Office of State Planning and Budgeting to develop an annual plan for capital construction expenditures and adds:

“But the plan for capital construction expenditures must consider recommendations made by the Office for state agencies, and recommendations made by the Colorado Commission on Higher Education for state institutions of higher education.”

Overview

The legislation grants the Office the power to establish standard policies, procedures, and submittal requirements for Operational Master Plans, Facilities Master Plans, Facility Program Plans, five-year plans, and capital construction requests for state departments. These instructions and guidelines specify the necessary components for preparing Facilities Master Plans and the criteria the Office will use to review them.

Documented Facilities Vision

Each state agency's facility in Colorado is unique, so a single set of instructions for Facilities Master Plans (FMP) isn't practical. Instead, these guidelines highlight essential elements for a successful process and should be closely followed regarding organization, content, and format.

FMPs stem from the facility needs identified in the Operational Master Plans (OMP) and are crucial for prioritizing and scheduling projects to ensure the efficient use of state funds and are the basis for capital construction. Continuous planning helps agencies plan the transition from the current state of their facilities to facilities that meet their future needs. The FMP outlines a comprehensive facilities vision that extends 10-years into the future. This document includes an assessment of current facilities, projections for future changes, projects that will allow the facilities to align with future agency needs, which may come from policies, executive orders, population changes, new programs, etc. A FMP is intended to be a dynamic document that adapts to evolving conditions and priorities.

Submittal Process

All state agencies must complete FMPs to support funding requests for capital projects. Approved FMPs must be reassessed every ten years, with updates on an as needed basis to reflect operational changes. In lieu of a current FMP, state agencies may request an SPP waiver. This will allow the OSA-SPP to review existing planning documents that help explain and justify capital construction projects. Projects may not be recommended without an approved FMP or an approved waiver. Approved waivers will grant the agency one-year to complete the required FMP. FMPs can be submitted for approval throughout the fiscal year, requiring the executive director's and OSA's endorsement. Consult SPP staff at the start of developing planning documents and any amendments to these guidelines.

Contents

The FMP electronic submission to the Office should include, at a minimum, the following components in either 11 x 17 or 8 ½ x 11 format: front cover, table of contents, acknowledgements, and the seven major sections outlined below.

Part 1: Executive Summary

The executive summary aims to provide a brief (1-2 page) high-level summary of the FMP, recommendations (including costs if relevant), and implementation strategy.

Part 2: Introduction

This section provides an overview of the FMP goals and objectives, author information, stakeholder names, and other key contributors. It lists the included agencies and divisions/programs (details in Part 3), facility inventory (buildings, infrastructure, land, etc.) covered (details in Part 4). Additionally, it offers a summary of the facilities master planning process, identifying drivers, strategies, and alternatives leading to the recommendations in Part 6.

Part 3: Operational Information

Part 3 should reiterate the agency’s mission and operational needs as identified in the OMP, if available. This section should compare current and future requirements to determine facility needs. It should also state adverse consequences if facility needs are not met.

Part 4: Existing Conditions Assessment

Part 4 includes an evaluation of current facilities and their adequacy to meet program changes. Further, occupied and vacant facilities along with infrastructure for all agency-owned and operated locations that are part of proposed program changes should be identified. The information required for an existing conditions assessment is typically best represented through the Facilities Condition Index documentation as specified by the OSA, along with visual tools such as maps, figures, tables, charts, drawings, and photographs.

Part 5: Projected Needs Assessment

Part 5 With the projected needs identified in section 3.3 and the OMP, space utilization and needs analysis are crucial to justify projected usage, including consolidation or expansion plans. Include analyses of program and service delivery changes, IT advances, sustainability, and security needs as per the OMP for a comprehensive assessment of facility needs. Space needs analysis should align with state goals and executive orders.

Part 6: Alternatives Solutions and Recommendations

This section suggests actions based on current conditions, program needs, and long-term plans. It should include a narrative detailing the methodology used and benchmarking recommendations. Also, identify alternative solutions considered and explain why the preferred one was chosen.

This section should report agency recommendations for program consolidation or expansion, organizational restructuring, service delivery changes, IT, sustainability, urban design, and security goals. Also, provide priority recommendations for facilities, infrastructure, cost estimates, buy/build/lease analysis, and prioritize capital projects and costs.

In addition,this assessment should provide recommendations for alternative strategies to maintain the agency’s assets and address condition issues that are necessary to meet the new program requirements.

Part 7: Implementation

This section explains the implementation of Part 6 recommendations, including updates, phasing, and timelines. It also discusses financing options, examining funding sources, delivery methods, and distinguishing between immediate actions using available resources and long-term steps needing additional funding.

Format/Outline

Organize, format, and tab the FMP document according to this outline for a logical review, consistent with part 3.0 Contents and other agency submissions. The following outline details necessary components for an effective facilities master plan. Not all components are applicable to every agency; some may need additional elements to meet their specific needs. Consult SPP staff when developing planning documents and amendments to these guidelines.

Part 1: Executive Summary

  1. Brief summary of the FMP’s goals (to be explained in more detail in Part 2 - Introduction/Overview).
  2. Brief summary of the FMP’s recommendations and estimated magnitude of cost (to be explained in more detail in Part 6 – Alternate Solutions and Recommendations).
  3. Brief summary of the FMP’s implementation strategy, including phases (to be explained in more detail in Part 7 - Implementation).

Part 2: Introduction & Overview

  1. The authors of the plan
  2. The goals and objectives of the FMP.
  3. Listing of programs and facilities impacted
  4. The facilities inventory included in the plan (a general listing pertaining to the scope of work, the detailed assessments shall be in Part 4)
  5. The general process (methodology) used to develop the plan
    1. Drivers
    2. Strategies
    3. Rational for alternatives
  6. How clients and staff were involved
  7. How the surrounding community and local governments were involved.
  8. What other stakeholders were involved in developing the plan.
  9. How the information from stakeholders and other sources were developed and assimilated into the final planning document.
  10. Performance Plan goals and objectives (per OSPB instructions)

Part 3: Agency Overview and Operational Information (from Performance Plan, OMP, and from information collected)

  1. Role, mission and vision 
  2. Agency goals and State goals
  3. Agency history
  4. General overview of programs or program types
  5. General overview of service delivery and area(s) served
  6. General overview of agency organizational structure
  7. General overview of management structure
  8. Overview of Current Policies, Processes and Procedures affecting Facilities:
    1. Facilities management structure and responsibilities
    2. Facilities maintenance strategy (routine, preventative, long-term)
    3. Relevant agency space allocation guidelines
    4. Leasing policy
    5. Controlled maintenance, capital construction, capital renewal and planning submission strategies
    6. Certifications, codes and standards (State and Federal)
  9. Assessment of agency Strategic (operational) Plans, role, mission and vision, technology master plans and any other relevant planning undertaken by the institution in relation to facilities master plans completed in the last ten years. (List all documents and describe their scope, objectives and goals and how they are incorporated into this plan)
  10. Facility location map(s)
    1. Map showing the facility location in a regional context (current and phased growth)
    2. Map showing the facility boundaries in relation to surrounding areas
  11. Client size and demographics (current and phased growth) (from OMP)
    1. Client size
    2. Client distribution by organizational unit
    3. Client demographic and service data
  12. Staff size and distribution (current and phased growth)
    1. By functional area
    2. By organizational unit
  13. Agency economic data
    1. Role within local, regional and state economies and impact

Part 4: Existing Conditions

  1. Current land use map
    1. Agency building functions by locations
    2. Land uses adjacent to the facility/complex
  2. Current space inventory
    1. Current space utilization by space type in relation to agency space utilization guidelines
    2. Overview of current space utilization and functionality, pointing out particular problems or foreseeable problems - the full table can be included as an appendix
    3. Summary of existing space utilization 
    4. Vacant facilities inventory and strategy
    5. Owned vs. leased space, termination considerations
  3. Facilities assessment
    1. Facilities conditions overview 
    2. Facilities assessment methodology and priorities summary
    3. Facility Condition Index inventory list, maps, photographs, etc.
    4. Sustainability goals
    5. Code, life safety and ADA accessibility summary
    6. Security
    7. A listing of the most current capital construction and controlled maintenance five-year plan requests and building condition inventories submitted to OSA.
    8. Overview of the current facilities and functionality, pointing out particular problems or foreseeable problems - the full table can be included as an appendix
    9. Historic preservation strategy and inventory of historic structures
  4. Information Technology assessment
  5. 100-year flood site map/topography maps
  6. Circulation systems maps
    1. Pedestrian circulation 
    2. Vehicular and service circulation
    3. Bicycle circulation
    4. Public transportation
  7. Utility Infrastructure equipment and distribution systems maps
    1. Water (Domestic and Storm)
    2. Sanitary
    3. Heating 
    4. Electric 
    5. Technology 
    6. Gas, etc.
    7. Discussion of surrounding local government utility capacity and connectivity
    8. Overview of current infrastructure and functionality, pointing out particular problems or foreseeable problems - the full table can be included as an appendix
  8. Open space map
  9. Assessment of current facilities design standards 
  10. Urban design issues

Part 5: Projected Needs Assessment

  1. Benchmarking recommendations (efficiency and organization)
  2. Future operational modifications 
    1. Changes to mission or vision
    2. Changes to service delivery
    3. Impacts on the facility requirements 
  3. Summary of stakeholder needs
  4. Agency space needs guidelines/standards and functional relationships
  5. Summary of space needs comparing existing to projected needs
  6. Summary of site needs comparing existing to projected needs
  7. Summary of infrastructure needs comparing existing to projected needs 

Part 6: Alternative Solutions and Recommendations

  1. Introduction and methodology
    1. Best practices incorporated
    2. Conclusions
  2. Alternative solutions considered
    1. Overview of options explored for achieving the Agency’s program needs
    2. Identification of pros and cons related to the alternatives
    3. Rational for preferred solution
  3. Overall agency recommendations
    1. Summary of the recommendations 
      1. Expansion/consolidation
      2. Service delivery
    2. Facility recommended strategies pertaining to program changes
    3. Urban design recommendations (Impact of state owned buildings in the area)
    4. Benchmarking recommendations (efficiency and organization)
    5. Sustainability and building performance standards
    6. Security and IT infrastructure
  4. Priority recommendations for the agency
    1. Facility (buildings and land) recommendations pertaining to program changes and needs assessment
      1. Renovations and/or upgrades
      2. New space 
      3. Acquisitions and dispositions
      4. Owned vs. leased space
    2. Infrastructure recommendations pertaining to program changes and needs assessment
      1. Upgrades
      2. Expansion
      3. Alternatives
  5. Order of magnitude estimated cost
  6. Buy/build/sell analysis for new construction
  7. Prioritized list of capital construction and capital renewal projects with order of magnitude estimated costs for each.
  8. Provide narratives, lists, charts, maps, etc. as required to describe the recommendations

Part 7: Implementation

  1. Criteria for updating the plan
  2. Phasing strategy and timelines
  3. Immediate and long term steps to achieve the goals
  4. Financing options 
  5. Alternative delivery through public-private partnerships