L61 B2 BMBC PUDTown of Avon
Planned Unit Development Staff Report
July 6, 1999, Planning & Zoning Commission meeting
Report date
December 20, 2019
Legal description
Lot 61, Block 2, Benchmark at Beaver Creek Subdivision
Current zoning
Town Center (TC)
Proposed zoning
Planned Unit Development (PUD)
Address
0075 Benchmark Road
Summary
Lot 61 is a vacant, 1.07 acre site west of and adjacent to the Seasons building, with frontage on the Avon Pedestrian Mall, the Avon Transit Center, and Benchmark Road. The site has
been used intermittently as an unpaved, surface parking lot. The owner, IDG3 LLC, is requesting a zone change from Town Center (TC) to Planned Unit Development (PUD), to allow development
beyond that permitted under the existing TC zone district.
The proposed development is an eight-story building, with the tallest portion located on the south side fronting Benchmark Road, and two to three stories on the north side adjacent to
the Pedestrian Mall.
Because the site slopes from north to south, the mall level is approximately 14 feet above the lowest point on Benchmark Road. In effect, the building has two ground levels.
Retail and commercial uses are proposed on the mall level, with residential and accommodation units on the upper floors.
The PUD Development Plan addressed by this staff report incorporates a number of changes from earlier iterations, as recommended by the Planning & Zoning Commission and staff during
at least three public work sessions. These changes include:
Building height reduced by approximately 10 feet to a level midway between that of the Seasons at Avon and the Lodge at Avon Center.
Improvement of vehicle access design to reduce conflicts including the porte cochere, loading area, and consolidation of adjacent entrances.
Stepping back of the building along the Pedestrian Mall.
Maximum number of dwelling units reduced from 120 to 89.
Please refer to the proposed Development Standards on Sheet 1 of the attached Development Plan.
This report includes recommendations for additional changes, all of which have been discussed with the applicant prior to the July 6 Planning & Zoning Commission meeting.
Staff’s recommendation of this Planned Unit Development is for approval with conditions.
Process Overview
According to Title 17 of the Avon Municipal Code, a Zone Change from TC to PUD involves two separate processes: 1) Rezoning, and 2) PUD approval.
Because the review criteria the two processes are similar, the Town’s policy has been to combine the rezoning and PUD approval in a single application and ordinance.
The combined review and approval process is as follows:
Staff review.
Planning and Zoning Commission work sessions.
Planning and Zoning Commission review, public hearing, and formal recommendation to Town Council to approve, deny or approve with conditions.
1st reading of PUD ordinance by Town Council.
2nd reading of ordinance, public hearing, and action by Council to approve, deny, or approve with conditions.
Rezoning Review Criteria
Section 17.28.080 lists criteria for evaluating zone changes.
Is the proposed rezoning justified by changed or changing conditions in the character of the area proposed to be rezoned?
Trends that support more intense development of the Avon Town Center than allowed by current zoning include:
National and international growth of recreational tourism.
Larger and more cosmopolitan resident and visitor populations.
Maturing of the Beaver Creek and Vail ski areas.
Expansion of Eagle County Airport.
Competing commercial development west of Avon.
Potential for innovative transit systems, including broader use of the railroad corridor.
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.
Because an 80-foot building (the Seasons) and a 100-foot building (Lodge at Avon Center) border Lot 61, the applicant is proposing a maximum height halfway between the two.
The remaining three criteria for rezoning are not included here because they are effectively addressed by the PUD approval criteria in Section 17.20.110.H.
PUD Review Criteria
Conformance with the Town of Avon Comprehensive Plan’s Goals and Objectives.
The Comprehensive Plan describes the Town Center as being the “most intensely developed part of town, as a true urban environment with attractive public gathering places. New development
on vacant parcels, as well as redevelopment of existing uses in the Town Center will include mixed-use buildings containing retail and services on the ground floor, offices and/or residential
above, and structured parking and urban amenities such as plazas and walkways. An overall pedestrian network will be developed for the Town Center, to create a truly walkable environment.”
(Page 42)
Relevant Goals and Policies include:
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.
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.
Goal B 2: Establish the Town Center Area as an inviting, vibrant and safe pedestrian-oriented cultural, retail and entertainment hub
Policy B 2.2: Development and redevelopment in the Town Center should effectively separate vehicles from pedestrian access and circulation.
Policy B 2.3: Encourage a range of uses in the Town Center, including retail, offices, hotels, recreation, tourism, and entertainment.
Policy E 1.4: 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.
Policy E 2.2: Structured parking will be incorporated in all development and major redevelopment in the Town Center.
The Development Plan proposed for Lot 61 is generally consistent with the density, vertical integration and diversity, and underground and structured parking contemplated by the Comprehensive
Plan. In previous iterations of this plan, three areas of concern were 1) the amount of additional density, 2) the absence of side and rear lot setbacks, and 3) access for passenger
and service vehicles.
During a recent work session with the Commission, the applicant presented a shading study that demonstrated that the impact of the zero setback along the mall was similar to that of
the adjacent Seasons building. That shading study is included in the attached Development Plan.
The maximum number of units is now 89, rather than 120.
Vehicle access is redesigned. See comment #7.
Conformity and compliance with the overall design theme of the town, the sub-area design recommendations and design guidelines of the Town.
The massing and proportions of the building are generally consistent with the Town’s Design Guidelines. The portion of the building adjacent to the mall steps back above two stories,
which maintains a pedestrian scale. The arcade elements along the mall and on Benchmark Road are consistent with the sub area recommendations in the Comprehensive Plan and in the design
recommendations of the 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.
See comment #4, below.
Uses, activity, and density provide a compatible, efficient, and workable relationship with surrounding uses and activity.
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.
The ground levels of both buildings are occupied by commercial uses. Almost all of the uses proposed for this PUD are currently listed as uses by right or special review in the Town
Center zone district.
To help ensure the vertical mix and pedestrian orientation expressed by the Comprehensive Plan and Design Guidelines, staff recommends the following modifications:
Timeshare and similar uses be permitted by special review.
Retail, service commercial and similar uses are allowed on and below the mall level.
Office uses be allowed on floors above the mall level, and elsewhere by special review.
Residential and accommodation units are allowed above the mall level, and elsewhere by special review.
Identification and mitigation or avoidance of natural and/or geologic hazards that affect the property upon which the PUD is proposed.
N/A
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.
This criterion is directed more towards a larger scale development. However, staff’s opinion is that the proposed design would have a positive effect on the aesthetic quality of the
Town Center.
A circulation system designed for both vehicles and pedestrians addressing on and off site traffic circulation that is compatible with the town transportation plan.
The proposed vehicle access is significantly improved over earlier iterations. Some concern remains with the ability of the porte cochere to accommodate arriving and departing hotel
guests’ and retail patrons’ vehicles.
Staff recommends widening of the loading area and exit lane from 19 to 24 feet; widening the west access to 24 feet; and widening the pedestrian walkway through the interior arcade.
Functional and aesthetic landscaping and open space in order to optimize and preserve natural features, recreation, views and function.
A preliminary landscape plan will be necessary to respond to the first part of this criterion. However, it appears that there is sufficient room for a walkway on Benchmark Road including
planters, street furniture, etc. Views from the Mall and from adjacent properties will be compromised. This is mitigated by the placement of the majority of the building mass to the
south of the site, and by the two-story arcade through the building.
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.
The project is proposed as a single phase.
Adequacy of public services such as sewer, water, schools, transportation systems, roads, parks, and police and fire protection.
The Town’s ability to provide public services is in part based upon the density permitted by existing zoning. Increased density will create additional demand on public services. Staff
therefore recommends that the applicant be responsible for:
Acquisition of additional water rights and their subsequent dedication to the Town if needed to amend the Town’s Water Augmentation Plan.
Capital and operating cost of additional transit services.
Capital and operating costs for additional police and fire protection.
Dedication of sufficient right-of-way and drainage easements to accommodate.
Dedication of right-of-way, drainage, pedestrian and utility easements to the Town to accommodate Benchmark Road Street and Streetscape improvements, plus future pedestrian access to
the Confluence site via elevated walkway. These dedications should be sufficient to allow construction of improvements consistent with the Town’s Streetscape Design Standards and those
improvements constructed in conjunction with the Avon Town Square development.
Construction of street improvements to provide a three-lane cross-section, plus curb and gutter and associated curb, gutter and sidewalk, lighting and street furniture.
Securing an agreement to allow consolidating the west vehicle access on Lot 61 with the Seasons east delivery access.
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.
According to the applicant’s traffic impact study, and assuming completion of the street and streetscape improvements noted in comment # 10, above, Benchmark Road and Avon Road are adequate
to carry the anticipated traffic to and from the PUD.
Staff Recommendation
Staff recommends approval of the proposed PUD Development Plan with conditions, as reflected in the following recommended motion:
I move to adopt Resolution 99-3 recommending approval of a zone change from TC to PUD and approval of the PUD Development Plan dated June 15, 1999, for Lot 61, Benchmark at Beaver Creek
Subdivision, subject to the following conditions:
The Development Standards be revised as follows:
Timeshare and similar uses are allowed by special review.
Retail, service commercial and similar uses are allowed on and below the mall level.
Office uses are allowed on floors above the mall level, and elsewhere by special review.
Residential and accommodation units are allowed above the mall level, and elsewhere by special review.
Deed restricted employee-housing units equal to ten percent of the dwelling units will be included on site.
The loading area and exit lane will be widened from 19 to 24 feet.
The west access will be widened to 24 feet
Sidewalks will be widened to15 feet.
The applicant will be responsible for the following:
Acquisition of additional water rights and their subsequent dedication to the Town if needed to amend the Town’s Water Augmentation Plan.
Capital and operating cost of additional transit services.
Capital and operating costs for additional police and fire protection.
Dedication of sufficient right-of-way and drainage easements to accommodate.
Dedication of right-of-way, drainage, pedestrian and utility easements to the Town to accommodate Benchmark Road Street and Streetscape improvements, plus future pedestrian access to
the Confluence site via elevated walkway. These dedications should be sufficient to
allow construction of improvements consistent with the Town’s Streetscape Design Standards and those improvements constructed in conjunction with the Avon Town Square development.
Construction of street improvements to provide a three-lane cross-section, plus curb and gutter and associated curb, gutter and sidewalk, lighting and street furniture.
Securing an agreement to allow consolidating the west vehicle access on Lot 61 with the Seasons east delivery access.
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,
Michael Matzko
Director of Community Development