Confluence conceptConcept Design Staff Report
September 29, 1998 Planning & Zoning Commission meeting
Report date
December 20, 2019
Project type
Mixed Use Development
Legal description
Attached
Zoning
PUD proposed
Introduction
Vail Resorts, Inc. (VRI) has applied for Planned Unit Development (PUD) zoning on the Confluence site, located north of Highway 6 and the Eagle River and West of Avon Road. The 18.88
acre property was annexed on August 25, 1998.
Proposed uses include transportation (with a gondola and/or funicular at some future point), timeshare, hotel, retail, restaurant, theaters and offices open space, intercept skier parking,
and employee housing.
The proposed density is 30 dwelling units per acre, up to a maximum of 456 dwelling units. Since three hotel rooms (accommodation units) equal one dwelling unit, up to 1,368 hotel rooms
could be constructed on the site. The PUD does not specify the commercial square footage, or number of employee housing units.
The proposed maximum building height is 140 feet.
Town Council has expressed a desire that the project include a conference center.
Review Criteria
Following are the PUD review criteria to be used in assessing the application.
Conformance with the Town of Avon Comprehensive Plan’s Goals and Objectives.
Conformity and compliance with the overall design theme of the town, the sub-area design recommendations and design guidelines of the Town.
Design compatibility with the immediate environment, neighborhood, and adjacent properties relative to architectural design, scale, bulk, building height, buffer zones, character, and
orientation.
Uses, activity, and density provide a compatible, efficient, and workable relationship with surrounding uses and activity.
Identification and mitigation or avoidance of natural and/or geologic hazards that affect the property upon which the PUD is proposed.
Site plan, building design and location and open space provisions designed to produce a functional development responsive and sensitive to natural features, vegetation and overall aesthetic
quality of the community.
A circulation system designed for both vehicles and pedestrians addressing on and off site traffic circulation that is compatible with the town transportation plan.
Functional and aesthetic landscaping and open space in order to optimize and preserve natural features, recreation, views and function.
Phasing plan or subdivision plan that will maintain a workable, functional, and efficient relationship throughout the development of the PUD. The phasing plan shall clearly demonstrate
that each phase can be workable, functional and efficient without relying upon completion of future project phases.
Adequacy of public services such as sewer, water, schools, transportation systems, roads, parks, and police and fire protection.
That the existing streets and roads are suitable and adequate to carry anticipated traffic within the proposed PUD and in the vicinity of the proposed PUD.
Staff Comments
Based upon our initial review of the project’s basic concepts, staff has the following comments. They are not intended to constitute a complete project report. Staff will conduct a complete
review and provided a full analyst with the PUD staff report.
Conformance with PUD Zoning Requirements
The PUD Guide provides general parameters for the site’s development. Although the process outlined in Section 17.20.110 of the Zoning Code is oriented toward detailed site-specific
development plans, staff believes the large scale of the project justifies a phased approval process. The initial step would be approval of a generalized PUD that includes development
standards. The submittal of detailed, development plans would occur as a second step in the review process. Preliminary PUD zoning approval, however, will require a more detailed
PUD Plan that includes the development standards and other zoning information.
The wildlife study and wetlands/vegetation mapping included with the application are relatively recent, but were prepared for the Eagle County PUD application in which the site was to
be developed as a surface parking lot. The study and mapping should be reviewed by the original preparer and updated where necessary to address impacts created by the current proposal.
The geo-technical report should also be updated to reflect this development proposal.
Conformance with the Comprehensive Plan:
The Comprehensive Plan states that flexible zoning should be used where it provides a clear benefit to the community. The provision of intercept parking, lodging, a strong pedestrian
connection with the Town Center, a conference center and a multi-modal transportation center, plus protection of the river corridor, would be beneficial to the community. Conversely,
the lack of any of these key elements would significantly affect the relative benefits of the project.
This mixed-use development represents a significant upgrade from the Comprehensive Plan designation of this area for resort service uses, including employee housing, maintenance yards,
visitor parking and transportation facilities.
The Comprehensive Plan recommends that major transportation and parking facilities provide direct linkages and connections to the Town Core and include retail, offices and entertainment
uses to encourage pedestrian activity. The PUD Plan and development agreement should include commitments for a strong pedestrian connection and other appropriate linkages to the town
core. Determining those connections will likely require a master plan that includes the Pedestrian Mall in the Town Center and linkages between this site and the Town Core.
A specific commitment for deed restricted employee housing units needs to be included in the plans.
With the inclusion of the key elements noted above, this development could enhance the tourism base of the Town.
Conformity with Design Theme and Sub-area recommendations for the Riverfront District
The proposed 140-foot height and massing of the project significantly exceeds the 3-4 story buildings contemplated in the Comprehensive Plan. Buildings on this site should be subordinate
to the Town Center, and step down in height as they near the river. A case could be made for increasing the scale beyond that recommended by the Comprehensive Plan, if the project were
integrated effectively with the Town Center and the river.
Guidelines recommend preserving existing quality trees.
The proposal includes formalizing the boat take-out, maintaining public access to the river, and preserving the critical area within the 75-foot building setback.
Compatibility with neighborhood
The proposed 140-foot building height significantly exceeds the height of existing buildings in Avon’s Town Center. Staff recommends that any building exceeding 80 feet in height be
subject to a special review process that includes a detailed visual analysis.
Transportation and circulation
The Confluence site offers a unique opportunity for a transportation hub. The rail corridor will likely be available at some future point for multi-use transportation corridor linking
the entire Eagle Valley, including a non-motorized vehicle path and a fixed guideway system of some sort. A well-designed pedestrian overpass, essential to the success of the project,
would connect the Town Center with the site, as well as the proposed gondola, funicular, or both; which in turn would connect the site with Beaver Creek and Bachelor Gulch.
An off-site pedestrian path and bike lane should be provided along Highway 6 across from the development. A pedestrian circulation plan needs to be provided for the site and connections
with surrounding development.
A traffic study should be provided. Moreover, based on the density of the project that is proposed and the potential for traffic generation, a formal Transportation Demand Management
program should be provided that addresses multi-modal transportation and has such features as free employee bus passes, bicycle racks, and a commitment to programs to promote transit
use.
If you have any questions regarding this project or any other planning matter, please call me at 748-4030, or stop by the Community Development Department.
Respectfully submitted,
Karen Griffith, AICP
Town Planner