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FY 2025-26 Operational Master Plan Submittal Guidelines and Instructions for State Agencies

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

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Statutory Authority

Statutory Authority 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.”

The legislation gives the Office the authority to prescribe uniform policies, procedures, and submittal requirements for operational master plans, facilities master plans, facility program plans and five-year plans for state department capital construction projects on state-owned or state-controlled land. Given this authority, these instructions/guidelines outline components to be included in the preparation of operational master plans and the criteria by which the Office will conduct operational master plan reviews.

C.R.S. 24-30-1303(t)(I), was modified in part through SB15-270, adding the responsibility to the 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. 24-37-304(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 by the Colorado Commission on Higher Education for state institutions of higher education.”

C.R.S. 24-1-136.5(2):

“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”.

Overview

Planning Overview

Operational Master Planning (OMP) is the initial phase in an agency's long-term facility management. It helps agencies identify and prioritize programmatic needs and objectives as directed by agency management, which may identify future facility needs. OMPs complement each agency's annual Performance Plan and are approved by the executive director and OSPB. The plan utilizes agency expertise and other resources to document mission, goals, programs, service areas, management, staffing, facilities, strategies, funding sources, etc. The OMP may include an overview of facility adequacy or deficiencies related to program changes. This planning is done in consultation with OSPB, agency staff, OSA, and consultants. The OMP will be reviewed by the OSA during the annual capital request process and is valid for three years, with options for recertification and annual updates.

Submittal Process

In an effort to justify the need for capital requests, all state agencies must create Facility Master Plans (FMP) along with the OMP.  The OMP first identifies program needs; whereas, the FMP aligns the facilities and identifies specific project needs. The project needs may be addressed through budget requests. Budget requests of $500,000 or more must be justified through a Facility Program Plans (FPPs).

Contents

To develop an Operational Master Plan, a state agency should work with leadership and staff, and the OSA, to align state and agency goals set by the Governor’s Office of Statewide Planning and Budgeting (OSPB) Performance Plan. The plan must include a full description and needs assessment for each program, covering regional structure, division/office summaries, square footage, and operational costs for divisions, programs, and the overall agency.

Part 1: Introduction

This section must describe the agency, its mission, enabling statutes, and the purpose of the plan. It should list the authors, stakeholders, consultants, and other key contributors.

Part 2: Agency Overview

This section outlines the agency's identity, current mission, future goals, and the programs that allow the agency to fulfill its objective. Additional information regarding the agency’s direction should be included in this section, such as performance plans and executive strategies and goals. The overview should include a description of the organization’s hierarchical structure.

Part 3: Programmatic needs and future trends

This section describes the ideal environment for the agency to deliver its mission, highlighting space and proximity needs. It details anticipated program challenges or changes that could impact existing facilities or require new construction or decommissioning. The plan should address short and long-term trends, demographic changes, funding source fluctuations, and special equipment needs. Additionally, it should summarize past and current planning efforts and recommendations from needs assessments.

Part 4: Agency initiatives

This section should provide an overview of operations initiatives and their connection to the agency Performance Plan and overall planning process. Highlight known but unaddressed items and recommend strategies for improving facilities-related operations.

Format/Outline

Organize, format, and tab the operational master plan per this outline for logical review. The outlined components are essential for a successful plan, though not all may apply to every agency, and some plans may need additional sections. Consult SPP staff when developing documents and amendments.

Part 1: Introduction

  1. General scope of the planning document
  2. Authors of the plan
  3. Process used to develop the plan.
    1. Involvement of staff, stakeholders, and clients
    2. Involvement of surrounding community
    3. How information was incorporated into the plan
  4. Other information as required.

Part 2: Agency Overview

  1. Department role, mission, vision, executive summary, and org charts (should align with Performance Plan).
  2. Overall history
  3. Enabling relevant statutes.
  4. Overall economic data, budget detail
    1. Department chart summarizing budget, FTE, sq. ft., funding.
  5. General overview of Divisions (repeat with each Division)
    1. Division mission statement, vision, summary, org charts
    2. Overview of service delivery area served / regions.
    3. Overview of how the division interacts with clients, stakeholders, funding partners, and surrounding community.
    4. Overview of Division funding
    5. Overview of supporting programs, program size
    6. Program chart summarizing location, FTE, sq. ft., lease/own, funding.
  6. Overview of policies, staff, procedures, processes as they pertain to capital selection and facility management (if applicable)
    1. Facilities management structure and roles, responsibilities of staff.
    2. Facilities maintenance strategy (routine, preventative, long-term).
    3. Relevant agency space allocation guidelines.
    4. Leasing policy.
    5. Controlled maintenance, capital construction and planning submission prioritization methods.
    6. Certifications/codes/standards (State and Federal)
  7. Summary of existing agency planning documents and reports
    1. Facilities site master plans or overall master plans.
    2. Current facilities inventory list.
    3. Current facilities assessment report
    4. Capital construction and controlled maintenance of 5-year plans.
    5. Facility program plans
    6. Technology plans
    7. Agency energy and water management reports (EnergyCAP data)
    8. Other Executive or Administrative Orders as applicable

Part 3: Programmatic needs and future trends

  1. Staff distribution.
    1. By organizational unit.
    2. By geographic area.
  2. Clientele types and sizes served.
    1. Distribution throughout state
  3. Unique security needs
  4. Trends (from Performance Plan, as applicable)
    1. Demographic changes and potential impacts.
    2. Estimated funding changes and impacts.
    3. FTE trends by division.
    4. Agency technological changes and impacts.
    5. Energy and water use reporting.
    6. Other anticipated real estate needs.

Part 4: Summary

  1. Initiatives, executive orders, and other mandates affecting the Agency.
  2. Energy and technology
  3. Facility adequacy/inadequacy overview.
  4. Identification of future needed planning studies.
  5. Other information pertinent to the Agency