Loading...
TC Packet 09-13-2016 Part 2 TOWN COUNCIL REPORT To: Honorable Mayor Jennie Fancher and Avon Town Council From: Matt Pielsticker, Planning Director Meeting Date: September 13, 2016 Agenda Topic: First Reading of Ordinance 2016-20, An Ordinance Repealing the 2009 Recreational Trails Master Plan, and Approving the 2016 Recreational Trails Master Plan Council Action Action on First Reading of Ordinance 2016-20, An Ordinance (“Exhibit A”) Repealing the 2009 Recreational Trails Master Plan, and Approving the 2016 Recreational Trails Master Plan (“Exhibit B”), with modifications recommended by the Planning and Zoning Commission (“PZC”). Meeting Order As published and expected to begin at 6pm, the following order for the September 13, 2016 meeting is planned:  Plan Presentation (Planning Director Matt Pielsticker/Olsson Associates Alex Nees)  Colorado Parks and Wildlife Recommendation (Wildlife Manager Bill Andree)  Town Council Questions, If Any  Public Comments (two-minute limit). A sign-up sheet will be used for the order of speaking.  Town Council Questions & Comments  Town Council Action on Ordinance 16-20 Summary Before Council on September 13, 2016 will be a review and consideration to adopt the 2016 Recreational Trails Master Plan (“Trails Plan”). The Trails Plan is a Comprehensive Plan document, and accordingly, approved by Ordinance. As presented to Council and attached hereto, Ordinance 16-20 would approve the Trails Plan with modifications as recommended by PZC. PZC Recommendation At the August 16, 2016 PZC meeting a public hearing was conducted to consider the Trails Plan. The public hearing included a review of extensive written and oral comments, including a presentation by the Colorado Parks and Wildlife (“CPW”) Division. After considering public testimony, staff’s written report (“Exhibit C”), and analysis of the review criteria outlined in Avon Development Code (“ADC”) §7.16.030(e), Comprehensive Plan Amendment Review Criteria, PZC took action (4-3 vote) to recommend approval of the Trails Plan with the substantive condition that Trails P1, P2, P3, P4, P6, & P7 (and associated trailhead facilities) are removed. The PZC recommendation was ratified on September 6, 2016, and included the following findings:  Page 2 1. After publishing and posting notice as required by law, PZC held a public hearing on August 16, 2016; and prior to formulating a recommendation to the Town Council considered all public comments, testimony, evidence and Town Staff report. 2. Pursuant to Development Code §7.16.030(c), Review Criteria, PZC considered the applicable review criteria for a Comprehensive Plan. 3. The land surrounding trails P1-P7 is not compatible with the proposed development of trails. 4. The unavoidable natural impacts on the Metcalf Gulch area could not be properly mitigated by the plan. 5. Enforcement policies and procedures must be updated. Public Comments As noted, there has been a substantial amount of public input received concerning the Trails Plan. All of the written public testimony received through 12pm, September 7, 2016 is attached (“Exhibit D”). The comments received between 12pm, September 7, 2016 to September 13, 2016 will be collected and distributed to the Council the day of the public hearing. Written public comments have been summarized and sorted by staff into three categories: Support, Not in Support, and Suggestions. Lastly, a response from Town Attorney Eric Heil (“Exhibit E”) is included in the packet to address a legal inquiry received from Garfield and Hecht and included in the public comments. Options 1. Approve First Reading of Ordinance 2016-20 as drafted, setting forth a public hearing for October 11, 2016 (or other specified meeting date). 2. Approve First Reading of Ordinance 2016-20 with modifications, setting forth a public hearing for October 11, 2016 (or other specified meeting date). 3. Continue First Reading of Ordinance 2016-20 to a future specified meeting date, requesting additional information as deemed necessary. Pursuant to ADC §7.16.020(e), the Council may continue the application for up to ninety-five (95) days. 4. Withdraw the Trails Plan application. Recommended Motion “I move to Approve first reading of Ordinance 16-20, approving the 2016 Recreational Trails Master Plan, with modifications as recommended by PZC.” Attachments Exhibit A - Ordinance 2016-20 | 2016 Recreational Trails Master Plan Exhibit B - PZC staff report & Summary of Comments from June 15, 2016 Public Meeting Exhibit C - Summary & Written Comments Received through 12pm on September 7, 2016 Exhibit D - Memorandum from Eric Heil, dated September 7, 2016 Ord 16-20 2016 Recreational Trails Master Plan FIRST READING – September 13, 2016 Page 1 of 4 TOWN OF AVON, COLORADO ORDINANCE NO. 16-20 REPEALING THE 2009 RECREATIONAL TRAILS MASTER PLAN AND APPROVING THE 2016 RECREATIONAL TRAILS MASTER PLAN WHEREAS, the Town of Avon (“Town”) is a home rule municipal corporation and body politic organized under the laws of the State of Colorado and possessing the maximum powers, authority and privileges to which it is entitled under Colorado law; and WHEREAS, the Town recognizes and affirms the value of protecting both the natural environment and abundant recreational experiences; and WHEREAS, the Avon Town Council’s Strategic Plan prioritized the update of the 2009 Recreational Trails Master Plan and the Town initiated the Comprehensive Plan application (“Application”) for a 2016 Recreational Trails Master Plan (“Trails Plan”) as permitted by the Avon Development Code; and WHEREAS, the 2006 Avon Comprehensive Plan incorporates Goals and Policies supportive of trails master planning, including but not limited to the following: POLICY I.1.3: Integrate the Town’s recreational trail system with the regional trail systems (ECO, USFS, and BLM). GOAL I.2: Coordinate and collaborate with surrounding jurisdictions and agencies to development seamless recreational opportunities. GOAL I.1: Provide an exceptional system of parks, trails, and programs to serve the year–round leisure needs of area residents and visitors. POLICY I.1.5: Coordinate with Eagle County and other government and non-profit agencies in planning, protecting, and managing public open space, and in providing access and linkage opportunities; and WHEREAS, the Town’s Planning & Zoning Commission (“PZC”), after publishing and posting notice as required by law, held a public hearing on August 16, 2016; and prior to formulating a recommendation to the Town Council considered all public comments, testimony, evidence and Town Staff reports; and then took action to recommend approval of the Trails Plan to the Town Council with the removal of the P1, P2, P3, P4, P6, and P7 trails, and associated trailhead facilities; and Exhibit A Ord 16-20 2016 Recreational Trails Master Plan FIRST READING – September 13, 2016 Page 2 of 4 WHEREAS, the Town Council of the Town of Avon, after publishing and posting notice in accordance with the requirements of AMC §7.16.020(d), Step 4: Notice, held a public hearing on October 11, 2016 and prior to taking final action considered all comments, testimony, evidence and Town Staff reports; and then took action by approving this Ordinance; and WHEREAS, in accordance with AMC §7.12.020, Town Council, and in addition to other authority granted by the Town Charter, its ordinances or State of Colorado law, the Town Council has application review and decision-making authority to approve, approve with conditions or deny the Application; and WHEREAS, pursuant to AMC §7.16.030(c), Review Criteria, the Town Council has considered the applicable review criteria for a Comprehensive Plan and specifically finds that the Application meets the criteria in AMC §7.16.030(c)(1) that the Trails Plan provides an essential public benefit of expanded recreational opportunities in open space parcels; and WHEREAS, it is the Town Council’s opinion the health, safety and welfare of the citizens is enhanced with additional trail and trailhead facilities in the ‘M’ trails and with the construction of a pump track in Nottingham Park; and WHEREAS, approval of this Ordinance on First Reading is intended only to confirm the Town Council desires to comply with the requirements of the Avon Home Rule Charter by setting a Public Hearing in order to provide the public an opportunity to present testimony and evidence regarding the application, and that approval of this Ordinance on First Reading does not constitute a representation that the Town Council, or any member of the Town Council, supports, approves, rejects, or denies this Ordinance; NOW THEREFORE, BE IT ORDAINED BY THE TOWN COUNCIL OF THE TOWN OF AVON, COLORADO: Section 1. Recitals Incorporated. The above and foregoing recitals are incorporated herein by reference and adopted as findings and determinations of the Town Council. Section 2. Comprehensive Plan Approval. The 2009 Recreational Trails Master Plan is hereby repealed and replaced with the approval of the 2016 Recreational Trails Master Plan (“Exhibit A to Ordinance No. 16-20”). The plan is hereby approved with the condition that Trails P1, P2, P3, P4, P6, and P7, and associated trailhead facilities, be removed. Section 3. Severability. If any provision of this Ordinance, or the application of such provision to any person or circumstance, is for any reason held to be invalid, such invalidity shall not affect other provisions or applications of this Ordinance which can be given effect without the invalid provision or application, and to this end the provisions of this Ordinance are declared to be severable. The Town Council hereby declares that it has passed this Ordinance and each provision thereof, even though any one of the provisions might be declared unconstitutional or invalid. As used in this Section, the term “provision” means and includes any part, division, subdivision, section, subsection, sentence, clause or phrase; the term “application” means and Exhibit A Ord 16-20 2016 Recreational Trails Master Plan FIRST READING – September 13, 2016 Page 3 of 4 includes an application of an ordinance or any part thereof, whether considered or construed alone or together with another ordinance or ordinances, or part thereof, of the Town. Section 4. Effective Date. This Ordinance shall in no event take effect sooner than thirty (30) days after final adoption in accordance with Section 6.4 of the Avon Home Rule Charter. Section 5. Safety Clause. The Town Council hereby finds, determines and declares this Ordinance is promulgated under the general police power of the Town of Avon, that it is promulgated for the health, safety and welfare of the public and this Ordinance is necessary for the preservation of health and safety and for the protection of pubic convenience and welfare. The Town Council further determines that the Ordinance bears a rational relation to the proper legislative object sought to be obtained. Section 6. No Existing Violation Affected. Nothing in this Ordinance shall be construed to release, extinguish, alter, modify, or change in whole or in part any penalty, liability or right or affect any audit, suit, or proceeding pending in any court, or any rights acquired, or liability incurred, or any cause or causes of action acquired or existing which may have been incurred or obtained under any ordinance or provision hereby repealed or amended by this Ordinance. Any such ordinance or provision thereof so amended, repealed, or superseded by this Ordinance shall be treated and held as remaining in force for the purpose of sustaining any and all proper actions, suits, proceedings and prosecutions, for the enforcement of such penalty, liability, or right, and for the purpose of sustaining any judgment, decree or order which can or may be rendered, entered, or made in such actions, suits or proceedings, or prosecutions imposing, inflicting, or declaring such penalty or liability or enforcing such right, and shall be treated and held as remaining in force for the purpose of sustaining any and all proceedings, actions, hearings, and appeals pending before any court or administrative tribunal. Section 7. Correction of Errors. Town Staff is authorized to insert proper dates, references to recording information and make similar changes, and to correct any typographical, grammatical, cross-reference, or other errors which may be discovered in any documents associated with this Ordinance and documents approved by this Ordinance provided that such corrections do not change the substantive terms and provisions of such documents. Section 8. Publication. The Town Clerk is ordered to publish this Ordinance in accordance with Chapter 1.16 of the Avon Municipal Code. [EXECUTION PAGE FOLLOWS] Exhibit A Ord 16-20 2016 Recreational Trails Master Plan FIRST READING – September 13, 2016 Page 4 of 4 INTRODUCED AND ADOPTED ON FIRST READING AND REFERRED TO PUBLIC HEARING on September 13, 2016 and setting such public hearing for October 11, 2016 at the Council Chambers of the Avon Municipal Building, located at One Lake Street, Avon, Colorado. BY: ATTEST: ____________________________ ____________________________ Jennie Fancher, Mayor Debbie Hoppe, Town Clerk ADOPTED ON SECOND AND FINAL READING on October 11, 2016. BY: ATTEST: ____________________________ ____________________________ Jennie Fancher, Mayor Debbie Hoppe, Town Clerk APPROVED AS TO FORM: ____________________________ Eric J. Heil, Town Attorney Exhibit A     2016 Recreational Trails  Master Plan    Prepared for:  Town of Avon   1 Lake Street  Avon, Colorado 81620  970‐748‐4000    Prepared by:  Alexander Nees | Project Scientist  Olsson Associates  760 Horizon Drive, Suite 102  Grand Junction, CO 81506  970‐263‐7800  Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan  ii      The Town of Avon  Thanks  The members of the Steering Committee  for their time, interest and guidance in ensuring the   Trails Master Plan was developed as a comprehensive review of all  Town‐owned land for potential trail development or non‐development, rules of etiquette                                and estimated costs for new trail development.    Steering Committee Members  Fritz Bratschie  Markian Feduschak  Paula O’Leary  Charlie Sherwood   Peter Warren                 Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan  iii    Table of Contents  Plan Summary ............................................................................................................................... 1  Purpose .................................................................................................................................... 1  Goals ........................................................................................................................................ 1  Process & Outcomes ................................................................................................................. 2  Alternatives for Adoption of Proposed Trails & Facilities .............................................................. 3  Proposed Trails and Facilities ..................................................................................................... 4  Intended Trail Experiences ........................................................................................................... 10  Multi‐use Trails ....................................................................................................................... 11  Mountain Bike Trails ................................................................................................................ 11  Hikers Only Trails .................................................................................................................... 12  Hard Surface Trails .................................................................................................................. 13  Motorized Trails ...................................................................................................................... 13  Usage & Etiquette ........................................................................................................................ 15  Trail Difficulty ......................................................................................................................... 15  Principles for Trail Use Regulations ........................................................................................... 16  Seasonal Closures ................................................................................................................... 18  No Commercial Use ................................................................................................................. 19  Special Events ......................................................................................................................... 19  Enforcement ........................................................................................................................... 19  Maintenance ................................................................................................................................ 20  Maintenance of Existing Trails & Facilities ................................................................................. 20  Maintenance of Proposed Trails & Facilities .............................................................................. 21  Environmental Protection ............................................................................................................ 22  Existing Conditions & Concerns ................................................................................................ 22  Proposed Development Initial Evaluation .................................................................................. 23  Proposed Development Visual Impact ...................................................................................... 23  Proposed Development Field Evaluation ................................................................................... 24  Process for New Trail Construction ....................................................................................... 25       Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan  iv    List of Tables  Table 1. Permitted Trail User Groups ......................................................................................... 10  Table 2. Proposed Trail Difficulties ............................................................................................ 16    List of Figures  Figure 1. Trail Network Overview ................................................................................................. 6  Figure 2. Studied Trails ................................................................................................................ 7  Figure 3. Estimated Trail Construction & Maintenance Costs ......................................................... 8  Figure 4. Proposed Facilities ........................................................................................................ 9    Appendices  APPENDIX A – Trail Maps  APPENDIX B – Aerial Imagery Trail Maps  APPENDIX C – Visual Impact Analysis Maps  APPENDIX D – Environmental & Wildlife Map  APPENDIX E – Trail Etiquette For Mud Season  APPENDIX F – CPW Comments    Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan  1    PLAN SUMMARY Purpose The 2009 Town of Avon Recreational Trails Master Plan (“2009 Trails Plan”) was developed in 2008 and  adopted by the Avon Town Council in 2009. The Town of Avon (the “Town”) chose to update the 2009  Trails Plan to account for changes since its adoption, including the acquisition of the West Avon Preserve  and the development of trails in that Preserve, the development of regional trail initiatives such as the  ECO Trail, and the desire for a coherent planning document to guide trail development within the Town  for the next 10‐15 years.  At the direction of Town Council, this 2016 Recreational Trails Master Plan (the “Plan”) has been  developed to evaluate potentials for additional trails within the Town boundaries, and to address the  management, maintenance, and development of the new trails and the currently existing trails.  Goals The Plan is intended to accomplish the following goals:   Increase the connectivity of the Town’s trail network, including connecting existing soft surface  trails with additional singletrack, and also connecting the soft surface trails to the Town’s urban  center and paved trail/sidewalk network.   Increase the size of the recreational trail network inside Town boundaries, in response to  feedback received from citizens and interest groups, and to distribute trail use that is currently  concentrated on existing trails across a wider trail network.   Provide robust protection for the natural setting, scenic beauty, and wildlife that draw people to  live in Town.    Provide a diversity of trail experiences that matches the diversity of citizen trail users, and that  caters to the specific desires of hikers, mountain bikers, dog walkers, and downtown  pedestrians.    Solicit public input to the proposal via an extensive and inclusive process that creates an open  space for all trail users and citizens to provide feedback, offer suggestions, and make their  voices heard.   Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan  2    Process & Outcomes  The Town initially identified the need to update the 2009 Trails Plan and conduct a well‐ considered planning process to guide future trail development.    The Town established a Steering Committee to guide the development of proposals and  evaluate ideas and feedback. The primary goal of the Steering Committee was to ensure that a  wide and representative sample of citizens and stakeholders were consulted in the process. The  Steering Committee was assembled from representatives of the following groups:   Town of Avon   The community of Wildridge   Avon Recreational Trails Advisory Group (ARTAG)   Village at Avon   The Town has explored many potential trail development ideas in cooperation with the Steering  Committee, identified stakeholder groups with particular interest and/or ownership of land  being considered for trail development. Stakeholders that were consulted in the process of  developing the draft Trails Master Plan include:   Eagle Valley Land Trust   Walking Mountains Science Center   Mountain Star   The Village at Avon   ARTAG   Residents of the Town   The Town refined the original trail proposals based on various environmental factors which  were evaluated and are presented in this Plan, and incorporated feedback from the Steering  Committee and the stakeholder groups. These refined trail proposals are included in this  document.    The Town held a public meeting on June 15, 2016 and solicited comment on the trail proposals.  Significant input was received from the citizens, and a number of modifications to the proposals  were made to address concerns regarding privacy, wildlife, scenic views, desired trail  experiences, and more.  Several  written comments have been received since the public  meeting.   Comments and recommendations from the Colorado Parks and Wildlife (CPW) were solicited  based upon public concerns voiced with wildlife impacts.  The resulting comments are included  herein as Appendix F.   All existing and studied trails are shown in Figure 1 Trail Network Overview. Additional detailed  maps, including aerial imagery, are provided in Appendix A and Appendix B. Details of all proposed  trails and facilities are provided in Figure 2 Studied Trails, Figure 3 Estimated Trail Construction &  Maintenance Costs, and Figure 4 Proposed Facilities.  Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan  3    Alternatives for Adoption of Proposed Trails & Facilities The Steering Committee evaluated several additions to the Town’s recreational trails and associated  facilities. Through the course of their review and after evaluation of CPW and public comments, the  Steering Committee offers the following options for inclusion in a final Trails Master Plan for a  recommendation by the Town of Avon Planning and Zoning Commission and final action by the Avon  Town Council:  Option 1:  Construct no new trails or trail facilities.  This option follows CPW’s general observation that  any new trails will impact the wildlife habitat in the upper Eagle Valley, which is already significantly  fragmented by existing development.  Option 2: Remove all studied trails from consideration except M2 through M6 and P6.  Adopt seasonal  closure recommendations on M2‐M6 between December 1st and June 15th with yearly inspections to  evaluate earlier opening dates.  No pets permitted.  This option follows CPW’s specific recommendation  of no trails in the Upper Metcalf Drainage.  Option 3:  Remove Trails P2, P3, and P4from consideration; thereby reducing impacts to Metcalf  Drainage by eliminating trails situated topographically “above” the primary ” wildlife corridor of Metcalf  Creek.  Adopt seasonal closure recommendations between December 1st and June 15th, with yearly  inspections to evaluate earlier opening dates.  No pets permitted.  This option adopts CPW’s  recommendations to the extent possible while also providing connectivity to the USFS trail network  north of Town.  Option 4:  Remove Trails P2 and all but upper portion of P1 from consideration; thereby reducing  impacts to the Metcalf Drainage by reducing trail density within the drainage. Adopt seasonal closure  recommendations between December 1st and June 15th, with yearly inspections to evaluate earlier  opening dates.  No pets permitted.  This option adopts CPW’s recommendations to the extent possible  while still allowing connectivity to West Avon Preserve trails via P4, expanding the soft surface  singletrack trail network via P3, and creating regional connectivity to the USFS network north of Town  via P7.  Option 5:  Construct all trails in the Master Plan as outlined below and in the remainder of this  document:        Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan  4    Proposed Trails and Facilities  In summary, the Plan proposes the following additions to the Town’s recreational trails and  associated facilities: Four new Trail Zones in addition to the West Avon Preserve (Figure 2)   Key facility upgrades and additions (Figure 4)   Minor expansions to the paved trail network (Figure 1)  New Trail Zones: If all four trail Zones, are approved, and in addition to the existing West Avon  Preserve the existing mileage of soft‐surface trail in Town boundaries would more than double by  adding approximately 14 miles of new trail, including 11.5 miles of new trail within Town  boundaries. The new trail zones include:   The Upper Metcalf Loops: This stacked loop system is the centerpiece of the new trail  development. A parking lot and trailhead would be established on Metcalf Road at the truck  turnaround. Access to the trailhead would also be possible from Town without driving via the  newly completed Metcalf Road bicycle climbing lane. This trail zone would offer 4 trail  segments, and would be intended to cater primarily to mountain bikers while also establishing  hiker access to National Forest lands to the north of Town.   P1: the primary climbing trail, and open to bikers and hikers. It is intended to be  relatively gentle and wide, and follows the west bank of Metcalf creek.   P2: a downhill‐only, expert difficulty mountain bike trail intended to challenge and  inspire experienced and capable riders.   P3: a downhill‐only, intermediate difficulty mountain bike trail intended to provide a  venue for riders to enjoy speed and flow.   P7: the multi‐use access trail into the National Forest, this would generally follow an old  road/trail alignment and would connect the Town’s trail networks to the Forest Service  trails at the western terminus of the Nottingham Ridge trail. The development of this  trail is speculative at this point, because it lies primarily on federal land and construction  would be subject to the approval of the Forest Service.   The Wildridge Connector Trails: These trails are intended to improve the connectivity between  the West Avon Preserve, the Upper Metcalf Loops, and the urban setting in downtown and  along Nottingham road. The goal is to provide a more enjoyable experience for hikers and bikers  than traveling along the roads.   P4: an intermediate trail that encourages travel between the top of the West Avon  Preserve and the Upper Metcalf Loops. This caters primarily to the desire of riders to be  All existing and proposed trails are shown in Figure 1, Trail Network Overview. Additional detailed  maps, including aerial imagery, are provided in Appendix A and Appendix B. Details of all proposed  trails and facilities are provided in Figure 2, Proposed Trails, Figure 3, Estimated Trail Construction  & Maintenance Costs, and Figure 4, Proposed Facilities.  Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan  5    able to link longer rides together including multiple trail networks while minimizing the  time spent traveling on pavement.   P6: an easy connector trail on the north side of Nottingham Road, designed to provide a  soft surface trail alternative to the paved trail, and to encourage bikers to leave their  vehicles in downtown Avon or at Nottingham road by improving access to the Metcalf  climbing lane.   West Avon Preserve Connector:  The West Avon Preserve is generally considered to be  fully developed, with approximately 11.5 miles of existing trails. However, the desire for  a short 0.4 mile connector trail was identified through the public process.  The P8 trail  segment is a multi‐use trail designed to provide additional loop options and connections  between Wild West and Wyse Way trails.  The lack of connectivity in this area has been  demonstrated with increased demand and trespass from O’Neal Spur road to access  Wild West. There is a stringent evaluation process administered by Eagle Valley Land  Trust for any new trails that might be considered in the West Avon Preserve.  The next  phase of assessment required to entertain this trail would be for a certified wildlife  biologist to conduct field work to help clarify impacts to the conservation values and  suggest mitigation measures as required by the Conversation Easement for the  property.   The Buffalo Ridge Loop: A short 3‐mile loop hike that is open only to hikers, comprised of an  upper (M3) and lower (M2) bench trail. This loop is intended to provide a warm, sunny venue  for casual use within walking distance of downtown Avon, and to take advantage of existing  infrastructure in the area that is not currently utilized.   The East Avon Preserve: A speculative development proposal for a parcel that is currently being  annexed by the Town. Development restrictions and the limitations imposed by surrounding  development will affect the range of potential for this parcel. However, this plan proposes to  develop a beginner‐level stacked loop trail system on the parcel, consisting of three trail  segments (M4, M5, & M6). The intention is to provide a family‐friendly learning environment for  children, beginning mountain bikers, and other users.  Key Facility Upgrades:    Construction of a Pump Track on a 0.27‐acre lot between Nottingham Lake and the tennis  courts. This facility is intended to cater primarily to young residents of Avon, and will be  designed to offer a gentle progression of learning and challenge.   A loop or series of small loop  trails that have small jumps and banked turns designed for riders to push and pull their bicycle  in a “pumping” maneuver through the bumps without pedaling.      Construction of a trailhead and parking lot at the Upper Metcalf Loops, intended to provide an  access point, staging area, and information stop for trail users.   Improvements to the existing trailhead along Swift Gulch Road, to improve its function and  visual attractiveness, and to better serve the proposed Buffalo Ridge Loop trail.   Completion of several small extensions and connections within Town’s existing network of  paved trails and bike lanes are proposed in this plan. All are displayed in Figure 1.  Exhibit A to Ordinance 2016-20     To w n  of  Av o n                               Recreational  Trails  Master  Plan   6    Fi g u r e  1.   Tr a i l  Ne t w o r k  Ov e r v i e w      Exhibit A to Ordinance 2016-20     To w n  of  Av o n                               Recreational  Trails  Master  Plan   7    Fi g u r e  2.   St u d i e d  Tr a i l s       Le v e l  of  Pr i o r i t y E s t i m a t e d  Co m p l e t i o n M a c h i n e ‐Bu i l t H a n d ‐Bu i l t S t e e p  Sl o p e s D r a i n a g e  crossings H e a v y  Vegetation L e g a l / R e g u l a t o r y W e t l a n d s V i e w s h e d W i l d l i f e  Penstemon P1 MU L T I ‐US E : In t e r m e d i a t e   cl i m b i n g  em p h a s i s  tr a i l  to   ac c e s s  th e  to p  of  Me t c a l f   Lo o p s  & Na t i o n a l  Fo r e s t   Di r t 3 6 "  ‐   24 " P2 MO U N T A I N  BI K E  ON L Y :  Ex p e r t  do w n h i l l  dir e c t i o n a l   tr a i l Di r t 24 " P3 MO U N T A I N  BI K E  ON L Y :  In t e r m e d i a t e  do w n h i l l   di r e c t i o n a l  tr a i l Di r t 24 " P7 MU L T I ‐US E  CO N C E P T U A L :   In t e r m e d i a t e  Na t i o n a l   Fo r e s t  ac c e s s  tr a i l LO W De p e n d e n t  on   US F S  ca p a c i t y Di r t 24 "         * P4 MU L T I ‐US E : In t e r m e d i a t e   ac c e s s  & co n n e c t i v i t y  tr a i l ME D I U M Di r t 24 " P6 MU L T I ‐US E : Ea s y  ac c e s s   an d  co n n e c t i v i t y  tr a i l LO W Di r t 36 " We s t  Av o n  Pr e s e r v e P 8 MU L T I ‐US E ,  BI K E   EM P H A S I S : In t e r m e d i a t e   co n n e c t o r  tr a i l ME D I U M 2 0 1 7 ‐20 1 8 Di r t 36 "           ** M2 HI K I N G  ON L Y : Do g  wa l k i n g   an d  pe d e s t r i a n  lo o p ME D I U M Di r t 36 " M3 HI K I N G  ON L Y : Do g  wa l k i n g   an d  pe d e s t r i a n  lo o p ME D I U M Di r t 36 " M4 MU L T I ‐US E : Be g i n n e r  &  in t e r m e d i a t e  in s t r u c t i o n a l   lo o p Di r t 36 " M5 MU L T I ‐US E : Be g i n n e r ‐ fr i e n d l y  in s t r u c t i o n a l    lo o p Di r t 36 " M6 MU L T I ‐US E : Be g i n n e r ‐ fr i e n d l y  in s t r u c t i o n a l  lo o p Di r t 36 " Tr a i l  Zo n e Environmental  Concerns Co n s t r u c t i o n  Me t h o d C o n s t r u c t a b i l i t y  Challenges Pr i o r i t i z a t i o n Tr a i l  #U s e  Em p h a s i s T r a i l  Su r f a c e T r a i l  Wi d t h * Co n s t r u c t i o n  of  an y  tr a i l s  on  Fo r e s t  Service  land  is  subject  to  comprehensive  analysis   an d  ap p r o v a l  by  th e  Fo r e s t  Se r v i c e  as  part  of  NEPA  review. **  Co n s t r u c t i o n  of  an y  ne w  tr a i l s  within  West  Avon  Preserve  is  subject  to  Eagle  Valley   La n d  Tr u s t  re v i e w  an d  ap p r o v a l ,  as  governed  by  the  property's  conservation  easement. Up p e r  Me t c a l f  Lo o p s Wi l d r i d g e  Co n n e c t o r   Tr a i l s Bu f f a l o  Ri d g e  Lo o p Ea s t  Av o n  Pr e s e r v e Fa l l  20 1 6 Wi t h i n  5  ye a r s ,   pe n d i n g  pr o g r e s s   of  la n d   de v e l o p m e n t HI G H LO W 20 1 7 20 1 7 ‐20 1 8 Exhibit A to Ordinance 2016-20     To w n  of  Av o n                               Recreational  Trails  Master  Plan   8    Fi g u r e  3.   Es t i m a t e d  Tr a i l  Co n s t r u c t i o n  & Ma i n t e n a n c e  Co s t s          Hand ‐Built B r i d g e s / R o a d  Xing H e a v y  Vegetation S t e e p  Slopes P1 MU L T I ‐US E : In t e r m e d i a t e   cl i m b i n g  em p h a s i s  tr a i l  to   ac c e s s  th e  to p  of  Me t c a l f   Lo o p s  & Na t i o n a l  Fo r e s t   Di r t 3 6 "  ‐   24 " 1 . 2 56 0 $6 3 , 0 0 0 $3,150 P2 MO U N T A I N  BI K E  ON L Y :  Ex p e r t  do w n h i l l  di r e c t i o n a l   tr a i l Di r t 24 " 1. 1 49 0 $5 6 , 0 0 0 $2,800 P3 MO U N T A I N  BI K E  ON L Y :  In t e r m e d i a t e  do w n h i l l   di r e c t i o n a l  tr a i l Di r t 24 " 0. 9 53 0 $6 2 , 0 0 0 $3,100 P7 MU L T I ‐US E  CO N C E P T U A L :   In t e r m e d i a t e  Na t i o n a l   Fo r e s t  ac c e s s  tr a i l Di r t 24 " 3. 0 14 0 0 ‐‐ ‐‐ P4 MU L T I ‐US E : In t e r m e d i a t e   ac c e s s  & co n n e c t i v i t y  tr a i l Di r t 24 " 1. 2 18 0 $3 6 , 0 0 0 $1,800 P6 MU L T I ‐US E : Ea s y  ac c e s s   an d  co n n e c t i v i t y  tr a i l Di r t 36 " 2. 0 46 5 $2 6 , 0 0 0 $1,300 We s t  Av o n  Pr e s e r v e P 8 MU L T I ‐US E ,  BI K E   EM P H A S I S : In t e r m e d i a t e   co n n e c t o r  tr a i l Di r t 36 " 0. 4 26 0 $1 2 , 0 0 0 $600 M2 HI K I N G  ON L Y : Do g  wa l k i n g   an d  pe d e s t r i a n  lo o p Di r t 36 " 1. 5 15 0 $1 0 , 0 0 0 $500 M3 HI K I N G  ON L Y : Do g  wa l k i n g   an d  pe d e s t r i a n  lo o p Di r t 36 " 1. 5 23 0 $3 6 , 0 0 0 $1,800 M4 MU L T I ‐US E : Be g i n n e r  &  in t e r m e d i a t e  in s t r u c t i o n a l   lo o p Di r t 36 " 0. 8 34 0 $2 4 , 0 0 0 $1,200 M5 MU L T I ‐US E : Be g i n n e r ‐ fr i e n d l y  in s t r u c t i o n a l    lo o p Di r t 36 " 0. 4 19 0 $1 8 , 0 0 0 $900 M6 MU L T I ‐US E : Be g i n n e r ‐ fr i e n d l y  in s t r u c t i o n a l  lo o p Di r t 36 " 0. 4 10 0 $1 2 , 0 0 0 $600 TO T A L S 14 . 2 49 0 0 $3 5 5 , 0 0 0 $1 7 , 7 5 0 Tr a i l  Wi d t h CONCEPTUAL  TRAIL  CONNECTION  ‐ cost  factors  not  analyzed 12  NE W  TR A I L S  IN  5  AR E A S Construction  Cost  Factors Up p e r  Me t c a l f  Lo o p s Wi l d r i d g e  Co n n e c t o r   Tr a i l s Bu f f a l o  Ri d g e  Lo o p Ea s t  Av o n  Pr e s e r v e Ap p r o x i m a t e   Mi l e a g e El e v a t i o n   Ch a n g e  (ft ) Co n s t r u c t i o n   Co s t  Es t i m a t e An n u a l   Ma i n t e n a n c e Tr a i l  Zo n e Tr a i l  #U s e  Em p h a s i s T r a i l  Su r f a c e Exhibit A to Ordinance 2016-20     To w n  of  Av o n                               Recreational  Trails  Master  Plan   9    Fi g u r e  4.   Pr o p o s e d  Fa c i l i t i e s     Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan    10    INTENDED TRAIL EXPERIENCES Table 1. Permitted Trail User Groups  Trail Zone Trail ID Permitted Users Upper Metcalf Loops  P1 Hikers* & Bikers** P2 Bikers Only  P3 Bikers Only  P7 Hikers & Bikers  Wildridge Connector  Trails  P4 Hikers & Bikers  P6 Hikers & Bikers  West Avon Preserve P8 Hikers & Bikers  Buffalo Ridge Loop  M2 Hikers Only  M3 Hikers Only  East Avon Preserve  M4 Hikers & Bikers  M5 Hikers & Bikers  M6 Hikers & Bikers  Paved Trails/Sidewalks  ‐‐ Hikers & Bikers  Pump Track PT Bikers Only  * The term “hikers” includes all pedestrians (trail runners, dog walkers), as well as winter pedestrian travel modes (snowshoes, cross-country skis) on trails that do not have seasonal closures. ** The term “bikers” includes all non-motorized wheeled travel (mountain bikes, hand bikes), as well as winter travel on fat bikes for trails that do not have seasonal closures. Motorized vehicles, electric-assist vehicles, and e- bikes are not included.   Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan    11    Multi-use Trails The majority of trails within the Town, both currently existing and studied in this document, are multi‐ use trails that are intended to be shared by hikers, runners, dog walkers, mountain bikers, and  snowshoers and cross‐country skiers on trails that are not closed in the winter. Within the Town  boundaries, “Multi‐use” typically includes hiking and biking, but not equestrian or motorized travel.   Multi‐use trails within the Town are designed to provide a desirable experience for all users, by  promoting outdoor physical exertion, offering scenic views of the surrounding environment, creating a  venue for interaction with the natural world, and being constructed in sustainable and environmentally  conscious manner.  There are certain unavoidable conflicts between different user groups on shared multi‐use trails. A trail  that is open to multiple modes of transportation is inevitably a compromise among the desired trail  characteristics of each user group. Hikers, bikers, snowshoers, etc. all have different preferences  regarding a trail’s average grade and width, the amount of mileage needed to create an enjoyable  experience, the interest in or tolerance of on‐trail obstacles, and so forth.   The easiest way to create a very high‐quality trail experience is to limit the trail to only one user‐group  and design the trail exactly to the desires of that group. “Flow trails” for mountain bikes are an example  of this approach, where a carefully graded and bermed tread is given priority to the exclusion of all else.  Even if they are permitted, hikers typically have very little interest in flow trails because the hiker’s  desire for scenic views, narrow rough tread, and a feeling of solitude and purposeful travel are not  accommodated by the trail.   However, trails devoted to a single user group are less efficient in a setting such as the Town’s open  space, with limited area available for trails and a limited budget for construction. It is not feasible to  develop extensive user‐specific trail networks for all users within the constraints of the Town  boundaries. Therefore, this Plan has generally elected to designate trails as multi‐use, open to both  hikers and bikers, in the interest of providing expanded trail access for all. Shared trails, and the social  encounters that they create, also serve to foster a shared sense of identity and place among the citizens  of Avon, regardless of their preferred method of recreational travel.   Multi‐use trails can be built purposefully to avoid conflict.  For example, obstacles such as rocks or tight  corners may be added to slow down bike riders in order to provide a safer travel pathway for multiple  user groups.  International trail building guidelines, which allow for creativity and added trail features  that provide unique user experiences, are encouraged for new trail construction.  Mountain Bike Trails Two mountain bike‐specific trails are proposed as the centerpiece of the Upper Metcalf Loops Trail  Zone. P2 and P3 are both directional, downhill‐only trails restricted to bike travel. They are intended to  Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan    12    offer a technical trail experience that is attractive to experienced mountain bikers, and that challenges  riders’ skill and equipment. Trails of this type have been prioritized in the plan due to the following  factors:   The demonstrated success and popularity of Lee’s Way Down, a mountain bike emphasis  directional trail in the West Avon Preserve.   Clear feedback from the community that challenging mountain bike trails are desired as a  recreational amenity.   Known issues with socially established “downhill trails” in Town boundaries, which are an  attempt to provide this type of trail experience, but are generally unsustainable and illegal in  their current location. The development of approved and sustainable trails of this type is  intended to shift the illegal trail use currently occurring onto legal trails.  Hikers Only Trails At the time of the development of this Plan, the only hiking‐specific trails within the Town are the  unnamed “Social Trails” around Beaver Creek Point in the West Avon Preserve. Public outreach and  comment from the hiking community of Avon residents indicated that the extent of social trails at  Beaver Creek Point was sufficient for the use they received from the community, and that additional  hiker trails in the West Avon Preserve were not needed. However, the Beaver Creek Point trails are not  easily accessible from downtown Avon due to their location up in the Wildridge neighborhood.  Therefore, one additional hikers only trail loop is proposed along Swift Gulch Road (the “Buffalo Ridge  Loop”). The Buffalo Ridge Loop consists of two trails, M2 & M3, which combined form a loop of  approximately three miles. This loop is intended to provide a venue for hikers and dog walkers that is  walking distance from downtown, and traverses rolling terrain, shallow basins, and steep slopes  dominated by sagebrush. The location has several advantages:   The usable season for the Buffalo Ridge Loop is likely to be significantly longer than other Avon  trail zones due to their lower elevation and south‐facing aspect. It is anticipated that there will  be at least some portion of the year in early spring when the Beaver Creek Point trails and  surrounding Forest Service trails are snow‐covered or muddy, but the Buffalo Ridge Loop is dry  and usable.   The location offers the potential of impressive views southwards across Town to Beaver Creek  and the York Range, at the cost of relatively low mileage, if M3 can be constructed high enough  on the hillside. Impressive views and low mileage are attractive features for hikers looking for a  low‐commitment, “lunch break” type of outdoor experience.   The location already has necessary infrastructure in place, which is currently underutilized  because the only trail use currently occurring is informal social use of old two‐track roads and  utility alignments. A paved parking area and gated trailhead exists, as well as a striped and  signed pedestrian walkway that connects the parking lot to the existing paved trail along the  south side of Swift Gulch Road. Infrastructure is typically a significant component of the  Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan    13    construction cost for trail facilities. The fact that only minor improvements to signage and  fencing would be required makes this trail zone an efficient choice from a financial perspective.  Hard Surface Trails Avon already has an excellent and extensive network of paved trails and bike lanes, and continues to  develop additional connections based on community input. For example, the bicycle climbing lane on  Metcalf Road will significantly improve the experience of cyclists commuting between the Wildridge  neighborhood and downtown, for work or recreation.  Several small additions to the network are proposed in this plan. All are displayed in the maps provided  in Appendix A.   A short connection from the intersection of Buck Creek Road and Nottingham Road to the  existing paved trail that parallels Nottingham road. This would improve non‐motorized travel  from the downtown core to Buck Creek Road and the Buck Creek trailhead, as it would allow  pedestrians and cyclists to reach Nottingham Road on paved trail from downtown Avon and the  centralized recreational amenities at Nottingham Lake, without having to cross Avon Road.   An extension of the paved trail on the south side of Swift Gulch Road, extending eastward from  its current terminus at the intersection of Post Boulevard through the planned Village at Avon  residential development and intersecting with the Regional Eagle Valley Trail. This is intended  both to connect the new residential development to the downtown, and also to provide  connectivity to the Eagle Valley Regional Trail and the up‐valley towns of Eagle‐Vail and Vail.   A very short connection from the existing sidewalks at Riverfront Lane and Lake Street to the  existing Regional Eagle Valley Trail along the river, which would improve the connectivity of the  west end of Avon and the recreational amenities of Nottingham Park to the Eagle Valley  Regional Trail.  Any future trail connection in this area would be dependent upon final  development plans and approval of the adjacent private land owners.     A spur from the existing sidewalk along Hurd Lane that would cross the railroad tracks and  parallel East Beaver Creek Boulevard. This is intended to provide improved non‐motorized  access to the planned Village at Avon development, and the specific alignment of this path  would be dependent upon the specifics of that development plan.  Motorized Trails No motorized trails currently exist within Town open space with the exception of motorized use of two  existing motorized trailheads in Wildridge, and no motorized trails are proposed in this Plan.  Motorized  trail use is fundamentally incompatible with the front‐country nature of all existing or proposed trail  development, for the following reasons:  Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan    14     All trails are relatively close to existing or planned residential development, and nuisance  concerns related to noise and dust associated with motorized recreation cannot be reasonably  mitigated.   All trails in conservation easements (including the West Avon Preserve) are explicitly off‐limits to  motorized use, due to environmental concerns.   The available parking or trailhead areas cannot reasonably be built large enough to  accommodate the staging needs of motorized recreation (pull‐through trailer parking).   The extent of trails that are feasible within the Town’s boundaries is not sufficient to create an  attractive experience for motorized recreationalists, who are typically seeking trail experiences  that are significantly longer than the 2‐10 mile loops offered by the Town trail networks.   There are extensive motorized recreation opportunities on the National Forest land surrounding  the Town.   Two trailheads exist within Town: June Creek and Metcalf Creek (USFS #779).  Continued year‐ round motorized access to these trailheads is valued by the community.     Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan    15    USAGE & ETIQUETTE Trail Difficulty Proposed trails have been designed to provide a range of difficulty and technical challenge. This range of  difficulty is intended to provide the diversity of trail experiences that is one of the primary goals of this  Plan. Trail networks that provide a range of difficulty cater to the widest possible variety of users; some  users will choose less difficult trails due to their inclination, their skill level, their level of fitness, their  chosen equipment, or because they prioritize scenic views or mileage in their trail experience. Other  users will choose more difficult trails due to an interest in technical challenges, improving skills, or  competition. Most users will choose to utilize a variety of trail difficulties during a visit to a trail network,  or over repeated visits. Trail centers that offer a full range of challenge are generally considered to be  more attractive to users, and to provide the maximum value from a given mileage of trail.   In response to comments received from the biking community, “technical challenge” is in reference to  the activity of mountain biking, and generally describes the extent of obstacles (such as rocks, roots, and  tight corners) that exist on the trail and add challenge by impeding travel. Obstacles may be naturally  occurring features, natural features modified by trail builders to be a more prominent trail component,  or may be artificial constructed features. “Difficulty” applies more generally to all trail users, and is  intended to convey the overall challenge of the trail, including not only technical obstacles but also  aerobic difficulty, elevation, and distance. A technically challenging trail for a mountain biker may not  pose many problems for a hiker to negotiate; however, in comparing a difficult trail to an intermediate  trail, all users are likely to agree that the relative challenge posed by the first is greater than the second.  Given that most of the proposed trails are multi‐use, trails will be signed for their overall difficulty rather  than their level of technical challenge. Two trails are proposed that are challenging, directional‐travel,  and mountain‐bike emphasis with significant technical challenges (P2 & P3). These trails will have  additional signage to reflect these characteristics and notify users.  Signage will use IMBA‐standard symbology (Green Circle/Blue Square/Black Diamond) that has been  adapted from ski resort rating systems. Not only is this symbology the standard for mountain bike trails,  but it will have immediate crossover familiarity for a large portion of Avon’s citizens and visitors through  their exposure to the system at ski resorts locally and elsewhere. Difficulty signage should be provided  at trailheads by trail network maps, and at trail intersections by signposts.  The trail difficulty ratings provided in Table 1 are estimates based on the terrain that the individual trail  sections traverse and their intended level of challenge. Limitations associated with construction may  require ratings to be adjusted upwards or downwards, either upon initial construction or following  several seasons of use.      Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan    16    Table 2. Proposed Trail Difficulties  Trail Zone Trail ID Difficulty Upper Metcalf Loops P1 Intermediate P2 Very Difficult P3 Intermediate P7 Intermediate Wildridge Connector Trails P4 Intermediate P6 Easy West Avon Preserve P8 Intermediate Buffalo Ridge Loop M2 Easy M3 Easy East Avon Preserve M4 Intermediate M5 Easy M6 Easy   Principles for Trail Use Regulations The following regulations apply to all trails within the Town boundaries, and may be enforced by law  enforcement officers or code enforcement officials as needed. The purpose of the regulations is to  protect the trail users, the trails, and the environment of the Town. The Town will employ and direct  code enforcement personnel to enforce rules throughout open space areas.  Violators shall be cited.     Know the Rules:  Most trailheads include signage with applicable regulations.  No smoking,  marijuana, or alcohol is permitted either on trails or at trailheads.  Please respect other trail  users and know the Town Ordinances.   Leave No Trace:  Be sensitive to the dirt beneath you. Wet and muddy trails are more vulnerable  to damage than dry ones. When the trail is soft, consider other options (example informational  Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan    17    signage is provided in Appendix E). This also means staying on existing trails and not creating  new ones. Don't cut switchbacks.  Be sure to pack out at least as much as you pack in.   Yield Appropriately: Do your utmost to let your fellow trail users know you are coming — a  friendly greeting or bell ring are good methods. Try to anticipate other trail users as you  approach switchbacks. Bicyclists should always yield to other trail users, unless the trail is clearly  signed for bike‐only travel.  Bicyclists and hikers traveling downhill should pull to the side and  yield to ones headed uphill, unless the trail is clearly signed for one‐way or downhill‐only traffic  (i.e. Lee’s Way).   Strive to make each pass a safe and courteous one. Stay to the right and pass  on the left, sharing the trail with others while listening and watching.   Respect Trail and Road Closures:  Ask for clarification if you are uncertain about the status of a  trail.  Do not trespass on private land.     Never Scare Animals: Animals are easily startled by an unannounced approach, a sudden  movement or a loud noise. Give animals enough room and time to adjust to you.  Disturbing  wildlife is a serious offense.   Plan Ahead: Know your equipment, your ability and the area in which you are riding or hiking  and prepare accordingly.  Strive to be self‐sufficient: keep your equipment in good repair and  carry necessary supplies for changes in weather or other conditions.    Manage Your Pets:  Four‐legged best friends are allowed off‐leash in Town Open Space (i.e.  West Avon Preserve) but must be under voice control and the owner must have a leash in his or  her possession.  Recognize that your dog may make others apprehensive, and maintain close  control of your dog when approaching other users.  Dog owners must promptly remove fecal  waste and deposit it in a proper trash container.       No Motorized Use: No motorized vehicles, electric vehicles, e‐bikes, drones, model planes &  helicopters, or any other motorized recreational devices may be used in Town open space areas.   Motorized use is limited to June Creek Trail and Metcalf Creek Road.   Respect Adjacent Private Property.  Be aware of the proximity to adjacent property and the  privacy of others. Keep noise and loud chatter to a minimum for the sake of wildlife and  neighbors ‐‐‐in parking lots and on the trails.   Practice low‐impact use.  Wet or muddy trails are vulnerable to damage –detour to another  route. If a trail is muddy enough that you are leaving a tire rut or footprints deeper than ½”, it is  too wet to use and should be considered closed.   Respect Hours of Operation.  Some trails and trailheads are closed overnight.  Do not enter  closed areas during posted curfews for environmental and safety reasons.   Additional Regulations:   No fires or fireworks   No hunting No discharge of weapons   No motorized or electrically assisted recreation  Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan    18     No collection of artifacts   No commercial activity   No removal or collection of plants, animals, fungi, or rocks   No hang‐gliding   No loud music   No camping   No overnight parking in trailhead parking areas   No smoking  Seasonal Closures Trail closures are the most important and effective tool to protect critical, undisturbed deer and elk  winter range land as well as bald eagle roosting and foraging habitat. The intent is to avoid the  disturbance caused by trail users during the times of year when animals rely most on the habitats where  the trails are located. The primary wildlife concern is for winter range for deer and elk. Winter is a time  of great stress on many animals. During the winter months, deer and elk rely on their fat reserves as  energy stores to survive the cold. If humans or other animals (such as dogs) spook a deer during winter,  it could spell the death of that animal during the next cold snap.  Important winter range is generally  found along the south facing lower elevation slopes on the north side of the valley, where animals can  find respite from the deeper snowpack found in the rest of their range.  Seasonal closure dates will be developed and managed in consultation with CPW, and vary from one  trail zone to another depending on habitat factors.   Paved Trails: These trails are not subject to regular seasonal closure, but may be impassable or  difficult to navigate at irregular intervals due to snow and ice conditions. The Town maintains  the paved surface trails, including plowing on an as‐needed basis.   Existing Trails in the West Avon Preserve: All trails in the West Avon Preserve are closed to  protect wildlife habitat between December 15th and April 15th, with the exception of the trails  Our Backyard and PB&J. The lifting of the seasonal closure is determined on a year‐to‐year basis  in coordination with the Eagle Valley Land Trust and CPW.    Proposed Trails in the West Avon Preserve: The connector trail P8 is within the West Avon  Preserve, and if constructed would be subject to the same seasonal closures as the other trails  in the West Avon Preserve.    Upper Metcalf Loops:  All trails in the Upper Metcalf Drainage (P1, P2, P3) would be subject to  seasonal wildlife closures between December 1st and June 15th.  Trails could be opened earlier if  determined acceptable by CPW after seasonal evaluation.   Proposed Trails in Wildridge:  The connector trail P4 would be subject to seasonal closures  Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan    19    consistent with those in the Upper Metcalf Loops.    Proposed Trails in east Avon (Buffalo Ridge Loop and the East Avon Preserve):  All trails in the  East Avon Preserve and Buffalo ridge would be subject to seasonal closures between December  1st and June 15th.  Trails in these could be opened earlier if determined acceptable by CPW after  seasonal evaluation.  Enforcement of seasonal closures will be accomplished primarily by signage posted at trailheads,  temporary barriers on closed trails, and through community outreach channels (Town website, social  media, partner organizations). Violations of seasonal closures are serious offense, and violators will be  cited by code enforcement officials.  No Commercial Use The prohibition on commercial use applies to any for‐profit use of the trails, including races, fundraisers,  and other similar events. The Town reserves the right to deny applications for commercial use, and does  not intend to emphasize or market the in‐Town trail networks as a commercial venue, due to concerns  regarding the privacy and quality of life of Town citizens.  Special Events It is the policy of the Town that any organized activity that occurs on Town lands will require a Special  Events Permit.  Commercial racing events will not be entertained.  Each special event will be reviewed  on a case‐by‐case basis and will be reviewed with the following specific considerations:   Duration of event.   Specific location.   Potential impacts to vegetation and wildlife.   Potential impacts to soil stability.   Potential impacts to adjacent landowners.   Consistency with vision of open space purpose to provide passive recreational access.   The extent to which the proposed use interferes with, compromises or diminishes the ability for  others to use and enjoy the area.   Potential increased management costs for the Town.   Overall scope and scale of impacts to adjacent properties.    Enforcement It is recognized with existing trails and trailheads that a lack of active enforcement by volunteer groups  or Town employees has resulted in an increase in conflicts and unpermitted activities.  The  implementation of a program to manage all uses and activities with an enforcement program will be  pursued.  The focus of the program will be to emphasize the need to follow established regulations and  educate trail users.  Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan    20    MAINTENANCE It is the intention of Avon to provide for proper maintenance of all trails to achieve the following goals:   Protect the quality of the trail user’s experience   Preserve the safety of the trails   Prevent erosion   Maintain the integrity of the soil and vegetation surrounding the trails   Protect the financial investment in the construction of trails  Maintenance of Existing Trails & Facilities The existing trails in the West Avon Preserve have already been through two cycles of yearly  maintenance since their construction. In general, the Town’s experience has been that professionally  designed and constructed trails have fairly low maintenance requirements, despite the steep slopes,  erosive soils, and challenging weather conditions on which the trails have been constructed. Minor  erosion and tread maintenance is the predominant maintenance need.  Professional maintenance service is provided on a per‐foot cost basis, and is most appropriate for  significant and defined trail issues, such as gullied trails, major drainage problems, or constructed  feature repair (bridges and berms). Volunteer maintenance under the direction of the Public Works  Department has been sufficient in the past to address ongoing minor issues, such as tread repair,  drainage maintenance, incipient trail braiding, and yearly vegetation clearance.  Extrapolating from previous years’ maintenance budgets, it is anticipated that the real annual  maintenance cost of trails within the Town will be approximately 5% of the trails’ construction budget.  This includes the value of maintenance provided by volunteers at no cost to the town. In the past, paid  maintenance has only been required on the heavily used constructed trails, especially Lee’s Way Down,  and has been approximately $3,500 annually. Assuming that volunteer labor continues to be available,  this maintenance cost is likely to persist, or grow slightly as use of trails continues to increase.  In addition to trail maintenance, there are facility maintenance tasks that entrain costs to the Town.  These include:   Trash collection   Paved trail and parking lot plowing in the winter   Striping of parking lots   Port‐o‐potty maintenance, cleaning, and waste disposal   Dog waste station maintenance and stocking   Patrolling and citations  Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan    21    In addition to ongoing maintenance of the trails in the West Avon Preserve, there are several one‐time  maintenance tasks that should be considered for the Beaver Creek Point portion of the West Avon  Preserve. These tasks have the potential to improve the trail experience for all users, and should be  considered in yearly maintenance planning as volunteer availability, maintenance staffing, and budgets  allow:   Add signage to make the social trails explicitly limited to hikers. They are generally functioning in  this manner already, but signage will inform new users and help set expectations and behavior  patterns. Mountain bike use at Beaver Creek Point can be confined to the designated and  named trails, including Our Backyard, PB&J, and the other system trails.   Establish signage or cairns to mark the hiking trails that will be maintained, and close and  reclaim redundant trail spurs or connections. Social trail networks established without a  planning process tend to spider web as users create shortest‐path trail connections; closing  redundant trails makes the network more functional, easier to comprehend and navigate, and  minimizes erosion and environmental impacts.  Maintenance of Proposed Trails & Facilities Cost estimates for the maintenance of the proposed trails has been provided previously in this  document (Figure 3). Based on the Town’s experience with maintenance costs for existing trails in the  West Avon Preserve, a baseline estimate of 5% of construction cost has been applied to all proposed  trails. The maintenance tasks represented by this cost are substantially similar to the ongoing  maintenance in the West Avon Preserve, and it is assumed that a combination of paid and volunteer  labor will be used to address erosion damage, vegetation clearance, drainage issues, and user impacts.  The maintenance costs for proposed facilities have also been provided previously in this document  (Figure 4) and are extrapolated from the Town’s current real costs to maintain currently existing  facilities.   In summary, it is projected that the proposed trail and facility development will require annual  maintenance funding from the Town of approximately $30,000 annually. A significant portion of this is  likely to be provided on a volunteer basis by the Town’s partner groups.     Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan    22    ENVIRONMENTAL PROTECTION The Town is committed to developing and maintaining a recreational trails network while preserving the  natural setting and wildlife that draws so many citizens to Avon in first place. The construction and use  of trails have unavoidable impacts on the natural environments, but the Town strives to mitigate those  impacts by locating trails in less‐sensitive habitats, applying seasonal closures as necessary and  appropriate, and enforcing trail regulations that minimize user impact.    Existing Conditions & Concerns The existing trails in the West Avon Preserve are managed in accordance with the conservation  easement on that property, in cooperation between the Town and the Eagle Valley Land Trust. Prior to  the development of trails on the property, a baseline environmental investigation was conducted to  determine existing conditions and identify sensitive natural resources1. The management plan under  which the trails are permitted was based on the findings of this report, and trails were located as  possible to avoid areas of concern.  The report identified the following primary concerns as occurring within the Preserve:   Mule deer and elk winter range    Bald eagle winter foraging habitat   Occupied Harrington’s penstemon habitat  In addition to avoiding the critical habitat areas where possible, a seasonal closure between December  15th and April 15th was established in cooperation with CPW to protect the winter habitat values and  minimize disruption to wildlife during their most vulnerable period in the West Avon Preserve.  The experience of the Town and Eagle Valley Land Trust has been that this evaluation and management  approach has been effective to protect the habitats, wildlife, and natural setting of the West Avon  Preserve. No formal biological study has been completed to document changes in wildlife utilization of  the Preserve, however anecdotal evidence and observations from trail users and Wildridge residents are  that wildlife continue to use the property.  The referral comments received from CPW, based upon the review of the draft Trails Master Plan, are  included as Appendix F for reference.  Based upon new studies and recommendations from CPW, more  restrictive closure periods (between December 1st  and June 15th) are proposed for future trails in the                                                               1 Rare Earth Science, “Baseline Documentation Report – Eagle Valley Land Exchange, West Avon Parcel”, prepared  for Eagle Valley Land Trust, October 2012.  Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan    23    Upper Metcalf Drainage, Buffalo Ridge, and East Avon Preserve areas, with earlier openings possible  based upon annual assessments (as previously mentioned).    Proposed Development Initial Evaluation Based on the success of the West Avon Preserve environmental protection effort, a similar evaluation  process is recommended for the additional trail development proposed in this Plan. All trail proposals  were initially vetted under a multi‐factor environmental analysis. The West Avon Preserve was not  included in this analysis, as there is minimal planned development within the Preserve and there is a  stringent existing evaluation process administered by Eagle Valley Land Trust for any new trails that  might be considered in Preserve.  This initial desktop analysis evaluated the following datasets:   The National Wetland Inventory from the US Army Corps of Engineers,   All wildlife habitat mapping as provided by CPW,   Known occurrences of Harrington’s penstemon,   An estimation of likely penstemon habitat extrapolated from the location of known occurrences,    An internal generated digital elevation model of slope steepness.   The datasets were refined at a local scale based on aerial imagery analysis and limited field  investigation. Areas with multiple significant issues were mapped as “avoidance zones” (Appendix D)  based on the initial conclusions that there were significant environmental risks associated with trail  development in these areas. Proposed trails were modified to the extent possible to skirt around the  avoidance zones, and in several cases were dropped from consideration altogether.  There are still proposed trails in avoidance zones, primarily M3 and M4. Given the limited land base  available for trail development within the Town boundaries, and the many other competing factors  including private property and viewshed concerns, it was not feasible to have no trails within avoidance  zones while still proposing a functional trail network. Trails within avoidance zones can be built  responsibly, but there are likely to be significant additional challenges that need to be planned for.  However, it is the intention of this plan that no additional trails will be developed in avoidance zones for  the lifetime of the plan, and that the avoidance zones would serve as protected open space and wildlife  habitat for the future, as a buffer against further residential or recreational development within the  Town boundaries.  Proposed Development Visual Impact A viewshed analysis was prepared to determine the relative visibility of all proposed to trails to residents  of Wildridge and Mountain Star. Results are presented in Appendix C. Viewshed analysis methodology is  as follows:  Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan    24     Virtual observers are placed standing at the middle of each of 278 properties in Wildridge and  40 properties in Mountain Star.   Calculations are performed to determine how many of those virtual observers can see a given  point on the map.    The model accounts for topography, but cannot account screening vegetation, and does  not differentiate between areas that are visible close to the observer (foreground) vs.  far from the observer (background).   The heat map visualization indicates how many observers can see a given point.   Red signifies that a given point is “visible to many properties.”    Blue signifies that a given point is “visible to few properties.” However, blue areas on  the map may be highly visible to those few observers who have lines of sight to that  location.  In summary, some of the conclusions of the visual impact analysis are as follows:   Upper Metcalf Loops: the ascent trail P1 is topographically screened from most viewers, as is the  trailhead. P2 is shown as somewhat visible, but will be generally screened by vegetation  including west facing aspen tree stands. Hand building and 24” trail width could help minimize  visual impact.   Wildridge Connectors: P4 is highly visible where it climbs above Wildridge road. Hand building  and 24” width, along with minimal vegetation removal, would help to mitigate visual impacts.  Proposed Development Field Evaluation The initial environmental assessment presented in Appendix D is necessarily speculative, based on the  limitations of available datasets, and cannot serve as a final determination of environmental impact for  any of the proposed trails. It is the intention of the Town that a rigorous, project‐specific environmental  investigation will be performed before any trail is constructed, and that this investigation will be  founded on data collected in the field and on a detailed pedestrian survey of a flagged construction  corridor.  This investigation will consider factors including the following, as applicable:   Impacts to big game habitat   Impacts to non‐game wildlife   Impacts to special status species, with special attention given to Harrington’s penstemon which  is known to occur commonly in the area   Impacts to wetlands, water courses, and riparian areas   Risk factors associated with the soils, geological substrates, and slopes underlying the proposed  trail   Likely impacts on weed abundance and extent due to construction disturbance   Potential impacts to historic or cultural features such as roads or dwellings.  Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan    25      This project‐specific investigation will be completed and evaluated prior to any commitments towards  funding or approving trail construction within Town boundaries.  Process for New Trail Construction Based upon Town Staff experience with constructing trails, the following process is recommended for  any new trail identified within this plan:  I. Planning     Trail route(s) flagged in the field by ARTAG, VVMBA, or other trail advocacy group   Route(s) GPS and Mapped for community review, with description of use ‐ exclusive to bike  riders or multi‐user design   Riparian Areas, if necessary, must be flagged as a first step by a qualified Environmental  Resource professional, including review of Avon Municipal Code Section (AMC) 7.28.100,  Natural Resource Protection, in order to confirm compliance with:   Identify Permitted Management Activities.  AMC 7.28.100(G)   Bridge construction that minimizes disturbance and removal of vegetation.  AMC 7.28.100(I)   Wildlife Baseline Report including recommendations for seasonal closures.   Route(s) modified, if necessary, based on Riparian study or other Wildlife Studies.   Parking Feasibility studied, if applicable.   Develop operations and maintenance plan    II. Public Review – 30‐45 days   Outreach with at least two Open Houses     Modify Route(s) if necessary    III. Construction Options Identified and Evaluated     Request for Proposals from qualified constructors to determine costs   Review grant opportunities    Present findings to Avon Town Council for consideration of private construction with or without  grants vs. volunteer with or without grants   Budget Appropriation, and Amendment, if necessary    IV. Bidding & Construction ‐ depends on construction technique, terrain, length and cost estimate.     Exhibit A to Ordinance 2016-20     To w n  of  Av o n                               Recreational  Trails  Master  Plan         APPENDIX  A  – TRAIL  MAPS  Overview  Map  ‐  “Existing  and  Proposed  Trails” Detail  Map  ‐ “P  System  Trails” Detail  Map  ‐ “M  System  Trails”    Exhibit A to Ordinance 2016-20     To w n  of  Av o n                               Recreational  Trails  Master  Plan              Exhibit A to Ordinance 2016-20     To w n  of  Av o n                               Recreational  Trails  Master  Plan          Exhibit A to Ordinance 2016-20     To w n  of  Av o n                               Recreational  Trails  Master  Plan           Exhibit A to Ordinance 2016-20     To w n  of  Av o n                               Recreational  Trails  Master  Plan          AP P E N D I X  B  – AERIAL  IMAGERY  TRAIL  MAPS   Overview  Map  ‐  “Existing  and  Proposed  Trails” Detail  Map  ‐ “P  System  Trails” Detail  Map  ‐ “M  System  Trails”           Exhibit A to Ordinance 2016-20     To w n  of  Av o n                               Recreational  Trails  Master  Plan            Exhibit A to Ordinance 2016-20     To w n  of  Av o n                               Recreational  Trails  Master  Plan            Exhibit A to Ordinance 2016-20     To w n  of  Av o n                               Recreational  Trails  Master  Plan           Exhibit A to Ordinance 2016-20     To w n  of  Av o n                               Recreational  Trails  Master  Plan         AP P E N D I X  C  – VISUAL  IMPACT  ANALYSIS  MAPS   “Viewshed  Impacts: From  Wildridge”     “Viewshed  Impacts: From  Mountain  Star”      Exhibit A to Ordinance 2016-20     To w n  of  Av o n                               Recreational  Trails  Master  Plan            Exhibit A to Ordinance 2016-20     To w n  of  Av o n                               Recreational  Trails  Master  Plan            Exhibit A to Ordinance 2016-20     To w n  of  Av o n                               Recreational  Trails  Master  Plan         AP P E N D I X  D  – ENVIRONMENTAL  & WILDLIFE  MAP  “Trail  Development  Constraints” Exhibit A to Ordinance 2016-20     To w n  of  Av o n                               Recreational  Trails  Master  Plan               Exhibit A to Ordinance 2016-20    Town of Avon  Recreational Trails Master Plan Update    APPENDIX E – TRAIL ETIQUETTE FOR MUD SEASON       Exhibit A to Ordinance 2016-20    Town of Avon            APPENDIX F – CPW COMMENTS    Exhibit A to Ordinance 2016-20 Exhibit A to Ordinance 2016-20 Exhibit A to Ordinance 2016-20 Exhibit A to Ordinance 2016-20 Exhibit A to Ordinance 2016-20 Exhibit A to Ordinance 2016-20 Exhibit A to Ordinance 2016-20 So u r c e : E s r i , D i g i t a l G l o b e , G e o E y e , E a r t h s t a r G e o g r a p h i c s , C N E S / A i r b u s D S , U S D A , U S G S , A E X , Ge t m a p p i n g , A e r o g r i d , I G N , I G P , s w i s s t o p o , a n d t h e G I S U s e r C o m m u n i t y 01 .53 0. 7 5 Mi l e s Ar e a o f I n f l u e n c e f o r M u l e D e e r ( T a y l o r & K n i g h t 2 0 0 3 ) 10 0 m A r e a o f I n f l u e n c e Mu l e D e e r M i g r a t i o n C o r r i d o r s Mu l e D e e r W i n t e r R a n g e To w n o f A v o n S o f t T r a i l s Ex i s t i n g Pr o p o s e d Ex i s t i n g W R N F T r a i l s 10 0 m A r e a o f I n f l u e n c e f o r M u l e D e e r Fi g u r e 1 Exhibit A to Ordinance 2016-20 So u r c e : E s r i , D i g i t a l G l o b e , G e o E y e , E a r t h s t a r G e o g r a p h i c s , C N E S / A i r b u s D S , U S D A , U S G S , A E X , Ge t m a p p i n g , A e r o g r i d , I G N , I G P , s w i s s t o p o , a n d t h e G I S U s e r C o m m u n i t y 01 .53 0. 7 5 Mi l e s Ar e a o f I n f l u e n c e f o r M u l e D e e r ( T a y l o r & K n i g h t 2 0 0 3 ) 39 0 m A r e a o f I n f l u e n c e Mu l e D e e r M i g r a t i o n C o r r i d o r s Mu l e D e e r W i n t e r R a n g e To w n o f A v o n S o f t T r a i l s Ex i s t i n g Pr o p o s e d Ex i s t i n g W R N F T r a i l s 39 0 m A r e a o f I n f l u e n c e f o r M u l e D e e r Fi g u r e 2 Exhibit A to Ordinance 2016-20 So u r c e : E s r i , D i g i t a l G l o b e , G e o E y e , E a r t h s t a r G e o g r a p h i c s , C N E S / A i r b u s D S , U S D A , U S G S , A E X , Ge t m a p p i n g , A e r o g r i d , I G N , I G P , s w i s s t o p o , a n d t h e G I S U s e r C o m m u n i t y 01 .53 0. 7 5 Mi l e s Ar e a o f I n f l u e n c e f o r E l k ( W i s d o m e t a l . 2 0 0 5 ) 50 0 m A r e a o f I n f l u e n c e - P e d e s t r i a n El k W i n t e r R a n g e To w n o f A v o n S o f t T r a i l s Ex i s t i n g Pr o p o s e d Ex i s t i n g W R N F T r a i l s 50 0 m A r e a o f I n f l u e n c e f o r E l k Fi g u r e 3 Exhibit A to Ordinance 2016-20 So u r c e : E s r i , D i g i t a l G l o b e , G e o E y e , E a r t h s t a r G e o g r a p h i c s , C N E S / A i r b u s D S , U S D A , U S G S , A E X , Ge t m a p p i n g , A e r o g r i d , I G N , I G P , s w i s s t o p o , a n d t h e G I S U s e r C o m m u n i t y 01 .53 0. 7 5 Mi l e s Ar e a o f I n f l u e n c e f o r E l k ( W i s d o m e t a l . 2 0 0 5 ) 15 0 0 m A r e a o f I n f l u e n c e - M o u n t a i n B i k e s El k W i n t e r R a n g e To w n o f A v o n S o f t T r a i l s Ex i s t i n g Pr o p o s e d Ex i s t i n g W R N F T r a i l s 15 0 0 m A r e a o f I n f l u e n c e f o r E l k Fi g u r e 4 Exhibit A to Ordinance 2016-20 Ac r e a g e C a t e g o r i e s : Wi t h i n T O A % o f T O A 10 0 m A O I % 39 0 m A O I % 50 0 m A O I % 15 0 0 m A O I % To t a l A c r e a g e s 54 3 6 . 0 4 1 0 0 % 1 0 8 1 . 0 0 2 0 % 2 5 7 9 . 8 0 4 7 % 3 0 5 9 . 7 9 5 6 % 5 1 8 0 . 0 6 9 5 % El k W i n t e r R a n g e 45 0 5 . 2 2 8 3 % 1 0 4 6 . 23 2 3 % 2 3 1 2 . 9 1 5 1 % 2 6 9 1 . 3 3 6 0 % 4 4 1 1 . 4 7 9 8 % De e r W i n t e r R a n g e 10 2 7 . 9 7 1 9 % 3 0 8 . 03 3 0 % 6 3 2 . 5 5 6 2 % 7 2 2 . 2 1 7 0 % 1 0 2 7 . 9 7 1 0 0 % De e r M i g r a t i o n C o r r i d o r 4 7 3 5 . 7 2 8 7 % 1 0 7 0 . 7 9 2 3 % 2 4 3 8 . 2 9 5 1 % 2 8 2 5 . 7 0 6 0 % 4 6 2 4 . 4 8 9 8 % Ex a m p l e : Tr a i l A r e a s o f I n f l u e n c e ( A O I ) f r o m L i t e r a t u r e : Of t h e 1 0 2 7 . 9 7 a c r e s o f M D w i n t e r r a n g e ha b i t a t w i t h i n t h e T o w n o f A v o n , 3 0 8 . 0 3 ac r e s o r 3 0 % i s i n d i r e c t l y i m p a c t e d b y p r op o s e d a n d e x i s t i n g t r a i l s w h e n a 1 0 0 me t e r b u f f e r i s a p p l i e d . Fi g u r e 5 Exhibit A to Ordinance 2016-20 August 16, 2016 PZC Meeting Comprehensive Plan Amendment – Trails Plan 1 Staff Report – Comprehensive Plan Amendment August 16, 2016 Planning & Zoning Commission Meeting Project File Case #CPA16002 Master Plan Town of Avon Recreational Trails Master Plan Prepared On August 12, 2016 Prepared By Matt Pielsticker, Planning Director, AICP INTRODUCTION The Town of Avon is processing a Comprehensive Plan Amendment to consider the 2016 Recreational Trails Master Plan (“Trails Plan”). At the direction of Town Council, the Trails Plan has been developed to evaluate potentials for additional trails within the Town boundaries, and to address the management, maintenance, and development of existing and new trails. This report outlines the meeting order for the Planning and Zoning Commission (“PZC”) Public Hearing on August 16, 2016, provides background context for trails planning in Town, outlines the process for review, and highlights the mandatory review criteria for comprehensive plan amendment reviews. The PZC will make a recommendation to the Town Council, who makes the final decision on the Trails Plan. ORDER OF AUGUST 16 PUBLIC HEARING: 1. Persons wishing to speak at the public hearing need to have signed up on the sheet provided upon entering the room. If you did not sign-up, please do so on the sheet at the back of the room. 2. Staff introduces the process, PZC role, meeting order and packet materials. 3. Alex Nees, Olsson Associates, presents the Trails Plan. 4. The Commission asks questions of Staff and Consultant. 5. Public Comment: The public is encouraged to comment on the proposal, and is asked to keep individual contribution brief. Please respect a 2 minute limit for comments. Timing will be provided to assist the speakers. We will use the sign-up sheet for the order of speaking. Please come to the podium to speak. 6. Members of the Planning Commission make individual comments concerning the Trails Plan. 7. Chairperson entertains a Motion. Options for action are listed on page 6 of this report. 8. PZC shall then vote on the proposed motion. BACKGROUND The 2009 Town of Avon Recreational Trails Master Plan (“2009 Trails Plan”) was developed in 2008 and adopted by the Avon Town Council in November, 2009. The 2009 Trails Plan provides guidance and best practices for sustainable trail development, directional and regulatory signage recommendations, general trail construction and maintenance techniques, as well as a list of detailed capital improvements for new trails. The 2009 Trails Plan is available for review on the Town of Avon website at www.avon.org/trails. Conditions have changed since adoption of the 2009 Trails Plan, most notably being the acquisition of the 478 acre West Avon Preserve, through a multi-party land exchange; and subsequent construction of 11.2 miles of soft surface multi-use trails in the West Avon Preserve. Some of the trails were detailed in the 2009 Trails Plan; and, other new trails in the West Avon Preserve were designed by the local International Mountain Bike Association (IMBA) chapter members. Following the construction of the new trails and at the recommendation of the 2009 Trails Plan, the Avon Recreational Trails Advisory Group (ARTAG) was formed in 2015 to aid with future trail planning and management of existing infrastructure. Exhibit B August 16, 2016 PZC Meeting Comprehensive Plan Amendment – Trails Plan 2 In addition to soft trail construction in recent years, the paved Eagle Valley Trail and spur trail construction within Town, will provide connections across the County and into the Wildridge neighborhood. Portions of the regional Eagle Valley trail were completed with bridges over the Eagle River and Beaver Creek, and the last section of the ECO trail through Avon is under construction currently. Potential soft and hard new trails, which are not mentioned in the 2009 Trails Plan have been identified by Town Staff for consideration in capital improvement planning, including: connection from Swift Gulch Road to the Buck Creek trailhead on Buck Creek Road, connection from the ECO spur trail on Nottingham Road to the new Buck Creek Medical Office Building, and better connectivity to residential projects on the north side of Nottingham Road. Most recently, the Avon Town Council approved a Strategic Plan, with emphasis added to address trail connectivity between local and regional soft and hard surface trail networks. This Trails Plan is intended to guide Town expenditures for new trail development and trail investments such as trailheads with potential grant funding from the Colorado Parks and Wildlife, National Forest Foundation, or other grant opportunities. The Town of Avon retained Olsson Associates, as planning consultant to the Town, and a Steering Committee oversaw the Trails Plan development to ensure it was developed as a comprehensive review of all Town-owned land for potential trail development or non-development, rules of etiquette and estimated costs for new trail development. It is now the responsibility of the Planning and Zoning Commission (“PZC”) to make a recommendation to the Town Council. PROCESS The PZC will review the Trails Plan and conduct a public hearing on August 16, 2016. After conducting a public hearing(s), PZC will forward a recommendation to Town Council. Subsequently, final action is taken on the applications by Town Council after conducting public hearings and either approval by Ordinance. COMPREHENSIVE PLAN REVIEW CRITERIA: The review procedures for this application are governed by the Avon Municipal Code (“AMC”). According to AMC §7.16.030(e), Review Criteria, the following criteria must be considered prior to formulating a recommendation to the Avon Town Council: (1) The surrounding area is compatible with the land use proposed in the plan amendment or the proposed land use provides an essential public benefit and other locations are not feasible or practical; Staff Review & Report PUBLIC HEARING(s): PZC PUBLIC HEARING: Council & 1st Reading of Ordinance PUBLIC HEARING: Council & 2nd Reading of Ordinance Exhibit B August 16, 2016 PZC Meeting Comprehensive Plan Amendment – Trails Plan 3 Staff Response: The development of trails would have unavoidable impacts on the natural environment. This fact is acknowledged in the plan and confirmed with the input received from the Colorado Parks and Wildlife (“CPW”). The purpose of seasonal trail closures, trail design, and added restrictions (i.e. no pets) is to mitigate impacts that are inherent with trail development. The locations of the trails in the plan were deliberately located and vetted by a multi-factor environmental analysis. Please refer to the Trails Plan starting on page 21 and including mapping work for details on the desktop analysis work. It includes wetland inventory, wildlife mapping, known and extrapolated area occurrences of Harrington’s penstemon, and slope steepness review. All of these factors were taken into account with the Trails Plan. Compatibility of the trail locations should be reviewed in light of the public comments, CPW comments, and concerns over a number of issues including: wildlife, viewsheds, proximity to residential buildings, environmental concerns, potentials of trespass into private property, enforcement of open space rules, and the existing supply of multi-use trails both in Avon and the surrounding resorts. (2) Transportation services and infrastructure have adequate current capacity, or planned capacity, to serve potential traffic demands of the land use proposed in the plan amendment; Staff Response: New parking and trailhead facilities are proposed near the M4, M5, M6 trails and at the truck turnaround on Metcalf Road. There is adequate infrastructure capacity to get to the existing and planned trailheads. The paved bike path on the north side of Interstate 70, linked with the new Metcalf Road bicycle climbing lane, connects the Upper Metcalf trails. This path also connects to existing parking infrastructure on Swift Gulch Road for access to M2 and M3. Further to the East, the path and roadway connection to a future trailhead accessing M4, M5, and M6 are nearly complete. (3) Public services and facilities have adequate current capacity, or planned capacity, to serve the land use proposed in the plan amendment; Staff Response: The Trails Plan includes estimates for on-going maintenance of proposed trails and facilities. These estimates are based upon industry standards and comparable assets in the West Avon Preserve. Maintenance monies for trails and trailheads are budgeted annually for oversight including but not limited to: trash removal, signage, noxious weed control, and erosion control. If the Trails Plan is adopted and developed, Town Staff will adjust staffing and maintenance priorities accordingly. Police and fire service to the Wildridge and Mountain Star neighborhoods are not anticipated to be negatively affected by any increase in traffic or the addition of trailheads and parking. (4) The proposed land use in the plan amendment will result in a better location or form of development for the Town, even if the current plan designation is still considered appropriate; Staff Response: The current (2009 Trail Plan) trail plan has served its useful life and is ripe for update. PZC must determine whether or not the new trail development results in a better location of trail infrastructure. Based upon many of the public comments received thus far, there are a number of reservations with the location of trails, particularly with respect to the Upper Metcalf drainage area. Serious consideration to the CPW comments and public sentiment is warranted when evaluating the Trails Plan. (5) Strict adherence to the current plan would result in a situation neither intended nor in keeping with other key elements and policies of the plan; Exhibit B August 16, 2016 PZC Meeting Comprehensive Plan Amendment – Trails Plan 4 Staff Response: The 2009 Trail Plan is outdated and not reflective of current conditions. As mentioned above, several development have occurred since adoption, including completion of the Eagle Valley regional system in Avon, West Avon Preserve buildout, and the Metcalf Road bicycle climbing lane is now underway. The guiding principles of the 2009 Trail Plan are valid; however, the trails plan should be updated at a minimum to reflect current conditions. (6) The proposed plan amendment will promote the purposes stated in this Development Code; and, Staff Response: PZC must consider whether or not the Trails Plan strikes an even balance between providing open space and recreational activities and protection of our environmental resources. The entire Purpose statement section from the Development Code (AMC 7.04.030 - Development Code Purposes) is outlined for reference. While many of the purpose statements relate to vertical development, of particular interest are (e), (g), and (k) below: (a) Divide the Town into zones, restricting and requiring therein the location, erection, construction, reconstruction, alteration and use of buildings, structures and land for trade, industry, residence and other specified uses; regulate the intensity of the use of lot areas; regulate and determine the area of open spaces surrounding such buildings; establish building lines and locations of buildings designed for specified industrial, commercial, residential and other uses within such areas; establish standards to which buildings or structures shall conform; establish standards for use of areas adjoining such buildings or structures; (b) Implement the goals and policies of the Avon Comprehensive Plan and other applicable planning documents of the Town; (c) Comply with the purposes stated in state and federal regulations which authorize the regulations in this Development Code; (d) Avoid undue traffic congestion and degradation of the level of service provided by streets and roadways, promote effective and economical mass transportation and enhance effective, attractive and economical pedestrian opportunities; (e) Promote adequate light, air, landscaping and open space and avoid undue concentration or sprawl of population; (f) Provide a planned and orderly use of land, protection of the environment and preservation of viability, all to conserve the value of the investments of the people of the Avon community and encourage a high quality of life and the most appropriate use of land throughout the municipality; (g) Prevent the inefficient use of land; avoid increased demands on public services and facilities which exceed capacity or degrade the level of service for existing residents; provide for phased development of government services and facilities which maximizes efficiency and optimizes costs to taxpayers and users; and promote sufficient, economical and high- quality provision of all public services and public facilities, including but not limited to water, sewage, schools, libraries, police, parks, recreation, open space and medical facilities; (h) Minimize the risk of damage and injury to people, structures and public infrastructure created by wild fire, avalanche, unstable slopes, rock fall, mudslides, flood danger and other natural hazards; (i) Achieve or exceed federal clean air standards; Exhibit B August 16, 2016 PZC Meeting Comprehensive Plan Amendment – Trails Plan 5 (j) Sustain water sources by maintaining the natural watershed, preventing accelerated erosion, reducing runoff and consequent sedimentation, eliminating pollutants introduced directly into streams and enhancing public access to recreational water sources; (k) Maintain the natural scenic beauty of the Eagle River Valley in order to preserve areas of historical and archaeological importance, provide for adequate open spaces, preserve scenic views, provide recreational opportunities, sustain the tourist-based economy and preserve property values; (l) Promote architectural design which is compatible, functional, practical and complimentary to Avon's sub-alpine environment; (m) Achieve innovation and advancement in design of the built environment to improve efficiency, reduce energy consumption, reduce emission of pollutants, reduce consumption of non-renewable natural resources and attain sustainability; (n) Achieve a diverse range of attainable housing which meets the housing needs created by jobs in the Town, provides a range of housing types and price points to serve a complete range of life stages and promotes a balanced, diverse and stable full time residential community which is balanced with the visitor economy; (o) Promote quality real estate investments which conserve property values by disclosing risks, taxes and fees; by incorporating practical and comprehensible legal arrangements; and by promoting accuracy in investment expectations; and (p) Promote the health, safety and welfare of the Avon community. (7) The proposed plan amendment will promote the health, safety or welfare of the Avon Community and will be consistent with the general goals and policies of the Avon Comprehensive Plan. Staff Response: The Trails Plan is intended to accomplish the Goals outlined on Page 1 of the document. They include providing protection of the natural setting, scenic beauty, and wildlife that draw people to live in Town. Additionally, the project goals include increased connectivity of the Town’s trial network and the provision of open space for all trail users with an inclusive public process for all voices to be heard. Restrictions are included in the plan to safeguard wildlife concerns including extended seasonal closures, no pets, races or other commercial activity. The added restrictions are deemed necessary to protect the public health, safety, and welfare. These valuable environmental concerns can be reviewed in concert with Goals and Policies in the Avon Comprehensive Plan (2006). For example, “Avon will continue to enhance its strong connections to its spectacular scenery, magnificent natural surroundings, and ample outdoor recreational opportunities (page 5).” The following policies and principles from the Avon Comprehensive Plan relate directly to this Application process: Policy C.2.3: Require pedestrian, bike, and automobile connections, where appropriate, between proposed and existing residential neighborhoods. The use of multiple access points, traffic calming devices, and/or street design standards will be employed to minimize cut through traffic. Wildridge District: Promote a trail system through open space areas in Wildridge to provide alternatives to the roadways for pedestrian circulation and greater connection to the surrounding open space. Exhibit B August 16, 2016 PZC Meeting Comprehensive Plan Amendment – Trails Plan 6 Mountain Star District: Consider the development of a trailhead to access the surrounding public lands. PZC OPTIONS: After conducting a Public Hearing and considering public comments and testimony, the following options are offered to PZC for consideration: 1. Continue the Public Hearing and request further information. Additional Public Hearing(s) could be held, if necessary, prior to a formal recommendation on the Trails Plan to Town Council. Possible considerations include:  PZC may wish to require additional studies pursuant to ADC 7.16.020(f)(2), Authority to Require Additional Studies, if the materials are not adequate to evaluate the Plan against the review criteria.  PZC may request additional time to evaluate the Trails Plan based upon the volume of public comments.  PZC may desire on-site review of the proposed trail locations. 2. Recommend Denial of Trails Plan (Option 1 in Trails Plan). 3. Recommend Approval with condition that no new trails in West Avon Preserve or Upper Metcalf Drainage are developed (Option 2 in Trails Plan). 4. Recommend Approval with condition to remove P2, P3, and P4 (Option 3 in Trails Plan). 5. Recommend Approval with condition to remove P1 and P2 (Option 4 in Trails Plan). 6. Recommend full Approval of Trails Plan (Option 5 in Trails Plan). ATTACHMENTS:  2016 Recreational Trails Master Plan  Summaries of Written Public Comments received as of August 11, 2016  Written Public Comments received as of August 11, 2016  Summary of Oral comments from June 15, 2016 Public Meeting Exhibit B Name 1 Jim Daus 2 Chuck Bunting 3 Mrs. Bunting 4 Dave Matroski 5 Rick Spitzer 6 Jim Yaeger 7 Jim Benson 8 Mark Kladkoff 9 Matt Thompson 10 Dan Griffith 11 Mark Luzar 12 Casey Wyse 13 Cody Wyse 14 John Schwartz 15 Laurie Baker 16 Toby Sprunk 17 Greg Johnson 18 Neal Henzler 19 Andy Gunyon 20 Sturkey 21 Fritz Bratschie 22 Rich Carroll 23 Bike Shop Guy 24 Karen Pearlman 25 Guy Sedillo 26 No name  He encouraged more education of trail etiquette.  Toby talked about the purpose of the conservation easement. He argued that everyone's statements about the impact  to wildlife are anecdotal and that the Division of Wildlife needs to evaluate the impact to wildlife habitat by  conducting a wildlife impact study.  Greg said he has no issue with P4. He is a proponent of the plan because it adds value to the neighborhood. He  opined that humans are an impact to wildlife and mountain biking is just a small part of it.  Neal said he is in favor of the Metcalf Drainage Trails, would like P3 moved, and does not agree that there should be  another trail constructed that would parallel Nottingham Road (P6).  Andy opined that the trail system has boosted property values in Wildridge.  He said he would like to see a wildlife impact study conducted.  Fritz said he believes the trail system is an amenity and opportunity.  Rich said the trail system has been a great amenity for the Town. He said he would like to see P1, P2, and P3 built right  away.  Karen said her concern with the plan is P4 and P5.  Guy said he is a proponent of the upper Metcalf development and is in favor of the plan.  She said P1, P2 and P3 should be a priority.  Laurie said she does not agree that more trails should be built. She explained that the trails affect her life dramatically  as they have lessened her privacy. She suggested that bikers should bike up to the trails rather than drive up to the  area, park and cause congestion.  Dave is concerned about how close P5 comes to his property. He expressed his worry about the property values,  charm and safety of Wildridge deteriorating as a result of the new trails. He is strongly against the connector trail. He  does not support the Metcalf Drainage Trails due to their impact on wildlife habitat.  Rick stated he has two concers: 1)wildlife habitat, and 2) the area becoming a world class mountain biking area and  becoming too big of a draw. He said there are a lot of deer and fox at the P4 and P5 intersections.  Jim expressed his discontent with using the multiuse trails as a hiker.  Jim expressed his concern for wildlife habitat. He is opposed to the new trails. He said the trails in the WAP are an eye  sore.  Mark said he is worried about the impact on the wildlife. He is also concerned about the traffic and parking on West  Nottingham. Matt called for a wildlife impact study. He opined that the wildlife does not mind sharing the trails and does not think  there will be a significant impact on wildlife. He said he sees wildlife on the trails all the time . Dan said he belives a Wildridge covenant committee created.  Mark said he does not believe wildlife habitat will be affected by the development of new trails. He called for more  education of youth on proper trail etiquette.  Casey said he is  proponent of the plan and he does not envision an impact on wildlife habitat.  Cody said he is a proponent of the connectors and plan.  Jim state that he would like to see more canvassing of Wildridge residents to gauge how they feel abou the  development of more trails.  She reiterated some of Chuck Bunting's comments about affecting wildlife habitat. She said she is concerned about  the views that will be affected.  Summary of Oral Public Comments from June 15, 2016 Public Meeting Comments Jim stated that a few properties have issues with the proposed trails in the plan. He said the Town needs to be  cautious in moving forward with the plan and work to preserve wildlife habitat. He said the trail marked P8 is not  approved at this time. Jim also requested notes be added to the maps and tables in the plan clarifying the restrictions  under which the Town has taken title to the properties.  Chuck said the connector trails will be highly visible from his home (corner of Wildridge Road & Bear Trap). He asked if  the Town has any statistics on the usage of the trails in the WAP. He said his impression is that demand for the  connector trails will be low. He requested the Town take a close look at the visual and wildlife impact of P4 and P5. He  mentioned that there are a lot of deer in the area.  Exhibit B