Lot B ACBC PUD Dev PlanTown of Avon
PUD Final Development Plan Staff Report
February 2, 1999 Planning & Zoning Commission meeting
Report date
December 20, 2019
Legal description
Lot B, Avon Center at Beaver Creek Subdivision
Current zoning
Planned Unit Development (PUD)
Address
0130 West Beaver Creek Boulevard
Introduction
Lot B is a 1.67-acre surface parking lot west of and adjacent to the Lodge at Avon Center. It is bounded on the south by the Avon Pedestrian Mall, on the north by West Beaver Creek Boulevard,
and on the west by Lot C. The property owner, Shapiro Development, Inc., is requesting Final Development Plan approval.
Legislative History
November 17, 1998: Planning & Zoning Commission recommended approval of a zone change from Town Center (TC) to PUD, including development standards and preliminary development plan.
December 8, 1998: Town Council approved the zone change, development standards and preliminary development plan, as well as a development agreement.
Review Process
PUD Development Plan approval is granted by ordinance.
The P&Z reviews the application, conducts a public hearing, then forwards its recommendation to Town Council in the form of a resolution.
The Council introduces the application in the form of an ordinance, conducts a public hearing, considers P&Z’s recommendation, and then votes whether or not to pass the ordinance.
PUD Design Criteria
According to the Zoning Code, Section 17.20.110, the following shall be used as the principal criteria in evaluating a PUD Development Plan.
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 applicable 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 combination of 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. Because the site provides some of the parking required for Lot A, the development is not as dense as it could be. In part
because the Town is considering a downtown parking strategy, possibly including shared structured parking, the Lot B development plan is designed to accommodate future additional density.
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 Development Plan shows an effective pedestrian network within the project, with strong connections with the Pedestrian Mall and adjacent properties and public ways. Vehicles do not
intrude on the pedestrian areas within the site or the adjacent Pedestrian Mall. Staff feels that the connection between West Beaver Creek Boulevard and the Pedestrian Mall, along the
western property line, should be further strengthened.
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 policy.
Goal C2: Provide for affordable housing for permanent and seasonal residents that is attractive, safe and integrated with the community.
Policy C2.2: Wherever possible, affordable housing will be integrated with, rather than be separate from, the rest of the community.
This project conforms to this goal and policy by providing 6 deed-restricted affordable housing units on site.
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 Development Plan generally conforms to this policy (please see comment under Policy B2.2.). Staff supports the applicant’s stated intention to manage the use of surface parking through
such measures as requiring employees and hotel guests to park in the underground parking structure. It is worth reiterating that the success of these site-specific efforts also relies
heavily on the Town’s ability to address the transportation needs of the Town Center as an integrated system.
Policy E2.2: Structured parking will be incorporated in all new development and major redevelopment in the Town Center.
Approximately 215 of the 270 parking spaces provided are underground, and 55 are surface parking spaces.
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.
The building massing and interior plaza, along with the retail and restaurant uses, support this policy. The applicant has also agreed to participate in the planning of the Pedestrian
Mall, and will participate in its construction on a pro-rata basis. This participation will likely occur through the Confluence Metropolitan District.
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.
The project generally conforms to the Subarea guidelines and Design Guidelines.
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 Lodge at 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. The proposed Development Plan for Lot B conforms to this pattern.
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 is 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 (please see comment on Policy B2.2).
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. The site is also convenient
to the existing Avon Transportation Center on the south side of the Lodge at Avon (see comment 6 above, and comment 1, Policy E1.4). Pedestrian access will depend heavily upon completion
of a design for the Pedestrian Mall, in conjunction with this and other developments in the Town Center, as well as upon a strong north-south pedestrian connection along the common
lot line with Lot C.
Functional and aesthetic landscaping and open space in order to optimize and preserve natural features, recreation, views and function.
The plan generally complies with this criterion. The landscape islands on the surface parking lot are less than standard size, however, based on discussions with the P&Z and Town Council,
as a means of accommodating a few more parking spaces.
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. In the event that the mall buildings are not started
within 6 months of completion of the previous phase, the developer will install interim landscaping until development resumes. Staff will also recommend that improvements to the Pedestrian
Mall are either completed or sufficient funds placed in escrow to complete those improvements as part of the second phase.
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.
The Town’s current infrastructure and anticipated public improvements are based on the impacts generated by density and uses allowed by TC zone district regulations. The Development
Plan for Lot B is well within those parameters. In addition, final design review will incorporate engineering review of the stormwater management measures, final grading, and streetscape
improvements.
Summary and Recommendation
The project’s uses, massing and site layout are generally consistent with the Town’s adopted policies.
The proposed mix of uses is suited to the Town Center: ground-level commercial, lodging above, and retail and restaurant fronting on the Pedestrian Mall.
The massing and arrangement of the buildings conform to the Town’s Design Guidelines. The one- and two-story retail and restaurant buildings adjacent to the Mall provide an edge that
defines the mall space, and help to create a sense of “street” found in successful urban malls. The building height then steps up to the 8-story tower, which is compatible with the
adjacent Lodge at Avon Center.
The applicant has agreed to participate in a Mall Design, as well as completing Mall improvements on a pro-rata basis. This will likely occur through the Confluence Metropolitan District.
The proposed density of 82 accommodation units plus 6 employee housing units equates to 20 dwelling units per acre, well below the maximum density of 30 dwelling units per acre allowed.
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.
The plan does allow for increased density through construction on the surface parking lot, if and when the Town adopts a Town Center parking strategy.
Providing 6 employee units on site conforms to the Town’s goals regarding affordable housing.
Recommendation
Staff recommends Final Development Plan approval for the project as proposed, with the following conditions:
The applicant will enter into a Master Deed Restriction Agreement with the Town of Avon for six on-site deed restricted affordable employee housing units.
The resubdivision vacating the existing property line between Lots A and B, Avon Center at Beaver Creek Subdivision and reestablishing a new property line between these lots in accordance
with this development plan be approved by the Town of Avon.
The pedestrian connection between the Pedestrian Mall and West Beaver Creek Boulevard will be a minimum surfaced width of 10 feet, and established as an easement.
A traffic-demand management program will be established by the owner to encourage commuting employees to use transit and other alternative transportation modes.
A parking management plan will be established by the owner to limit to short term use the surface parking area while encouraging use of the structured parking area.
The owner will establish a snow removal program.
The owner will participate, either directly or through the Metropolitan District, in the Avon Pedestrian Mall master planning, construction, and maintenance.
A solar study will be provided for Final Design Review to examine shadow effects upon public spaces, and to help determine appropriate locations for streetscape furniture, landscaping
and public spaces.
Appropriate language will be added to the Suites @ Avon Center Development Guide stating that, “Development of the Suites @ Avon Center PUD shall conform to the standards outlined above.
Elements not specifically addressed in this Guide shall be governed by Title 17 of the Avon Municipal Code.”
Recommended Motion
I move to adopt Resolution 99-7, recommending approval of a Final Development Plan for the Suites @ Avon PUD, Lot B, Avon Center at Beaver Creek Subdivision.
If you have any questions regarding this project or any community development matter, please call 748-4014, or stop by the Community Development Department.
Respectfully submitted,
Michael Matzko
Director of Community Development