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Lot B ACBC PUDTown of Avon Preliminary PUD Zoning Staff Report October 6, 1998 Planning & Zoning Commission meeting Report date December 20, 2019  Legal description Lot B, Avon Center at Beaver Creek Subdivision  Current zoning Town Center (TC)  Proposed zoning Planned Unit Development (PUD)  Address 0130 West Beaver Creek Boulevard  Introduction Shapiro Development is requesting a zone change on Lot B, from Town Center (TC) to Planned Unit Development (PUD), because of the limitations of the existing TC zone district, including height, density, allowed uses, building setbacks and parking requirements. Lot B is a 1.67 acre site currently providing surface parking for both the Avon Center and the Alpine Bank buildings. The site is west of and adjacent to the Avon Center building, and has frontage on the Avon Pedestrian Mall and on West Beaver Creek Boulevard. Its shares its western border with Lot C. The general form proposed would include a new 7-story tower, connected to the existing Avon Center building by an extended one-and two level mixed use commercial building (13,072 square feet of restaurant and 10,789 square feet of retail); and a 152-space parking garage that shares a common access with the proposed Lot C development. PUD zoning is proposed in order to allow a maximum 90 foot building height (the current maximum is 80 feet); reduced building setbacks; and a modified parking standard. The attached Preliminary PUD plan lists the proposed development standards, building locations, access and circulation plans, preliminary landscaping, and a section through the site showing the existing and proposed buildings. Shapiro Development is requesting Preliminary PUD approval to obtain specific feedback regarding the proposed zoning standards and Development Plan, and particularly the proposed parking standards. Preliminary PUD review allows the Planning & Zoning Commission to review the project’s basic elements and to provide more specific feedback to the applicant. Preliminary approval does not bind the Commission or the Town to grant final approval. Review Process The Zoning Code (Title 17, Avon Municipal Code) regards Zone Changes and PUD approval as separate processes, each with a list of evaluation criteria. The Town’s normal practice is to combine the two in a single application and ordinance, resulting in PUD approval. Both sets of evaluation criteria are listed below, along with relevant staff comments. Where the two sets of criteria essentially ask the same questions, the staff comments are not repeated. Is the proposed rezoning justified by changed or changing conditions in the character of the area proposed to be rezoned? National trends in recreational tourism, transportation and land use, the maturing of Beaver Creek and Vail ski areas, the expanded Eagle County Airport, commercial development in areas west of Avon, and the increasing likelihood of a broader use of the railroad corridor, combine to support development of a more dense, urban town center. Both the Comprehensive Plan and Design Guidelines recommend 4 to 8 story buildings in the Town Center. Using current building construction methods, an 8-story building could easily be 100 feet tall, exceeding the 80 feet allowed by TC zoning. Rezoning Lot C to PUD is intended allow development of a density, massing and design that is now constrained by the existing TC zone district regulations. Is the proposed rezoning consistent with the town’s Comprehensive plan? The Comprehensive Plan envisions a Town Center that is a unified, walkable, economically diverse urban environment. The proposed development standards, including height and building massing, vertical mix of uses, increased bed base, ground-level retail and services, employee housing, and connection with the Avon Pedestrian Mall, support the Comprehensive Plan’s goals, policies and specific recommendations. These are discussed in more detail in the staff comments under PUD Design Criteria. Are the proposed uses compatible with the surrounding area or uses? The existing Seasons building and Avon Center building are representative of the dense, vertically mixed-use development contemplated by the Comprehensive Plan and Design Guidelines. Both buildings are relatively large, with ground-level commercial, residential and lodging uses in the upper floors and predominantly structured underground parking. Avon Center, at 98 feet, actually exceeds the allowed height in the TC zone district by 18 feet; the Seasons building is approximately 80 feet tall. The proposed height and mix of uses are compatible with these surrounding structures and uses. Are adequate facilities available to serve development for the type and scope suggested by the proposed zone? The applicants will provide evidence of adequate facilities at Development Plan approval. However, it should be noted that the requested density is below that permitted under TC zoning. PUD Design Criteria According to the Town of Avon Zoning Code, Section 17.20.110, the following shall be used as the principal criteria in evaluating a PUD. Conformance with the Town of Avon Comprehensive Plan’s Goals and Objectives. The proposed scale, uses and density are generally compatible with the Comprehensive Plan’s Goals and Policies, including: Goal A1: Ensure a balanced system of land uses that maintains and enhances Avon's identity as a residential community, and as a regional commercial, tourism and entertainment center. The lodging, retail and service commercial uses will help realize the vision of the Town Center expressed in the Comprehensive Plan and Design Guidelines. Policy A3.5: Since undeveloped land in the Town Center is scarce, it will be developed at higher density, include a vertically integrated mix of commercial and residential uses, and rely primarily on underground and/or structured parking. The proposed development generally conforms to this criterion. However, the proposed density is significantly lower than is allowed by the TC zoning; but the parking provided on site is also significantly less than the amount required by Town regulations. Although a number of factors contribute to this situation, the applicant has indicated that the primary reason for not providing additional density is the high cost of adding a second level of underground parking. Goal B2: Establish the Town Center Area as an inviting, vibrant and safe pedestrian-oriented cultural, retail and entertainment hub. Adding hotel units, office space, retail and restaurant uses to this site and to the Pedestrian Mall increases the activity in the Town Center. The combination of visitors, shoppers, office employees and residents should provide significant support to the retail, service commercial, and restaurants on this and adjacent sites. The development also would benefit from, and help to support a Conference Center located in or adjacent to the Town Center. Policy B2.2: Development and redevelopment in the Town Center should effectively separate vehicles from pedestrian access and circulation. The preliminary site development plan shows an effective pedestrian network within the project, with strong connections with the Pedestrian Mall and adjacent properties and public ways. Policy B2.3: Encourage a range of uses in the Town Center, including retail, offices, hotels, recreation, tourism, and entertainment. The proposed mix of uses conforms to this criterion. Policy E1.4: Commercial areas should be designed to minimize in-town vehicle travel by making it easier for people arriving by car to park and conveniently walk to multiple stores and businesses. The proposed development plan incorporates many of the necessary ingredients to conform to this criterion (please see comment under Policy B2.2.). However, the criterion refers to “commercial areas,” reinforcing the importance of looking at the transportation needs of the Town Center as a system, rather than on a lot-by-lot basis. Staff recommends that this applicant and those for Lot C, the Confluence, Lot 61, and any Town Center developers participate in funding a Downtown Plan that knits together systems, for fixed and other transit), overall building massing, public spaces, utilities, safety, and parking. Policy E2.2: Structured parking will be incorporated in all new development and major redevelopment in the Town Center. Policy H1.3: New development and redevelopment adjacent to the Pedestrian Mall should support its becoming a key focal point and unifying element for the Town Center. Conformity and compliance with the overall design theme of the town, the sub-area design recommendations and design guidelines of the Town. The Comprehensive Plan Subarea Guidelines describe the Town Center as follows: The Town Center is the urban core of the Town. It provides a viable mix of land uses including retail, office, residential, government services, civic facilities, and parks. Buildings should incorporate a vertical mix of uses. New development on remaining vacant parcels and redevelopment of existing structures are essential to completing the urban form intended for the Town Center. Design compatibility with the immediate environment, neighborhood, and adjacent properties relative to architectural design, scale, bulk, building height, buffer zones, character, and orientation. The two existing developments adjacent to Lot B are the Avon Center, a 98-foot high mixed use building, and the Seasons at Avon, an 80-foot high mixed use building. Both of these buildings, consistent with the Comprehensive Plan and Design Guidelines, have ground-level retail and services as well as offices, with residential and lodging units in the upper floors, and predominately structured underground parking. Uses, activity, and density provide a compatible, efficient, and workable relationship with surrounding uses and activity. The proposed development is very much in keeping with the surrounding uses, and are considered by the Town’s adopted policies and guidelines as being necessary to support those adjacent uses and the Pedestrian Mall. Identification and mitigation or avoidance of natural and/or geologic hazards that affect the property upon which the PUD is proposed. Not Applicable. 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. The general pattern of buildings and open space proposed allows for effective pedestrian circulation both within and through the site and a number of potentially inviting outdoor spaces and view corridors to surrounding areas. A circulation system designed for both vehicles and pedestrians addressing on and off site traffic circulation that is compatible with the town transportation plan. Vehicle access is straightforward from either Hwy. 6 or I-70, Avon Road and Beaver Creek Boulevard, to intercept parking via a driveway shared with Lot C. See comment 6 above. Functional and aesthetic landscaping and open space in order to optimize and preserve natural features, recreation, views and function. See comment 6 above. 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. Proposed phasing is to construct the parking structure and tower first, followed by the freestanding buildings adjacent to the mall. Adequacy of public services such as sewer, water, schools, transportation systems, roads, parks, and police and fire protection. See comment under rezoning criteria, # 3 above. 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. See comment under rezoning criteria, # 3 above. Development Standards Development Standards including lot area, site dimensions, setbacks, height, density control, site coverage, landscaping and parking shall be determined by the town council as part of the approved development plan with consideration of the recommendation of the Planning commission. Summary and Recommendation The project’s uses, massing and site layout are generally consistent with the Town’s adopted policies. The project has a mix of uses well-suited to the Town Center: ground-level commercial, lodging above, and retail and restaurant fronting on the Pedestrian Mall. The general massing of the buildings, particularly the stepping up from the mall, with the tallest structure in the middle of the site, conforms to the Town’s Design Guidelines. The increased height requested is similar to the adjacent Avon Center building. The lower retail and restaurant buildings located on the pedestrian mall provide an edge that defines the mall space, and help to create a sense of “street” found in successful urban malls. The proposed density of 82 accommodation units equates to 52.6 accommodation units per acre, well below the maximum density of 140 accommodation units per acre under TC zoning. In the Town Center, lower density is generally considered less desirable. However, the applicant has been unwilling to pursue more urban densities because of the resulting parking deficit. Proposed parking falls short of the Town’s current requirement. Viewed as a standalone project, such a shortfall would not be acceptable. Other projects in the Town Center Because of the number of downtown development proposals before the Town, there is both an urgent need for and a unique opportunity to create a more focused downtown plan that knits together critical elements of transit, pedestrian circulation, vehicle parking and access, utilities, emergency services and other critical services and facilities. Staff would encourage deferring any reduction for parking on this or other sites in the Town Center until completion of the Downtown Plan or equivalent area-wide study. Based on current literature and emerging practices in other communities, such a study will likely result in more efficient use of vehicle parking and transit resources for the applicants and the community. Recommendation Staff recommends granting Preliminary PUD approval for the project as proposed, with the exception that parking standards be deferred until completion of a Downtown Plan. Recommended Motion Approve Preliminary PUD for Lot B, Avon Center at Beaver Creek Subdivision, with the following comments: The applicant commit to participation, on a pro-rata basis, in a Downtown Plan which will incorporate a parking study to determine a revised downtown parking standard. A solar study should be provided to demonstrate the effect of shading on adjacent buildings and outdoor spaces. A Preliminary Subdivision Plan must be approved prior to Final Design approval to clarify the project’s ownership patterns. If you have any questions regarding this project or any community development matter, please call 748-4030, or stop by the Community Development Department. Respectfully submitted, George Harrison Planner Michael Matzko Director of Community Development