Lot C ACBC PUD v2Town of Avon
PUD Staff Report
November 16, 1999 Planning & Zoning Commission meeting
Report date
November 10, 1999
Project type
Mixed-Use Planned Unit Development (PUD)
Legal description
Lot C, Avon Center at Beaver Creek Subdivision
Current Zoning
Town Center (TC)
Address
160 W. Beaver Creek Boulevard
Introduction
Vistana Inc. has submitted revised PUD plans based on the feedback provided by the Planning and Zoning Commission at the November 2, 1999 work session. A letter summarizing the comments
made by P and Z dated November 5, 1999 is attached for your review. This PUD is the final development plan for the property including final building footprints, vehicular access and
circulation, pedestrian circulation, refinement of uses, parking and landscaping. The PUD proposes:
140 two-bedroom Timeshare units
136 Hotel Rooms
20 Employee Housing units
17,000 square feet of retail
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.
More retail space is needed to achieve the vertically mixed-use development prescribed by the Comprehensive Plan. Staff recommends that office/retail building located on West Beaver
Creek Boulevard within the time-share building be expanded and the parking from this area be removed. We also recommend that the pedestrian mall end of the parking garage include an
area for retail space or that can be converted to retail.
Other than the need for more retail space, the development standards proposed for Lot C are generally consistent with the Comprehensive Plan.
20 deed restricted employee- housing units are proposed which include:
(8) studios
(8) 1-bedroom
(2) 2-bedroom
(2) 3-bedrooms
Conformity and compliance with the overall design theme of the town, the sub-area design recommendations and design guidelines of the Town.
The Town Center lies within Subarea 13 of the Urban Design Plan (p. 65, 1996 Comprehensive Plan).
The two story retail building steps back from the Pedestrian Mall as recommended.
The plaza design ties the project to the mall. A pedestrian connection has been provided from the Mall back to the fountain area.
The Guidelines call for pedestrian connections through the property. Pedestrian connections have been provided on the exterior of the project. The walkway through the interior has
been improved from the original submittal. More refinement is needed to create a pleasant pedestrian walkway. This includes creating a wider walkway and either re-locating the loading
and service areas or completely screening these with a wall. As staff understands the applicant’s plans, the undulating fence is proposed at 6 feet tall and will create a canyon effect
in the pedestrian area across from the surface parking area for the hotel.
Design compatibility with the immediate environment, neighborhood, and adjacent properties relative to architectural design, scale, bulk, building height, buffer zones, character, and
orientation.
The applicant has addressed some of the design and architectural concerns expressed in the Work Session on November 2 as follows:
The roof massing has been modified and lowered to create more variety and diminish the vertical massing.
Implemented an array of materials and colors.
Increased the amount of articulation on the hotel and the time-share buildings. The employee-housing remains uniform and now illustrates an unusual color scheme for the Town.
Created variety in the fenestration and balconies.
Provided more detail on the pedestrian level, including landscaping integrated with the commercial and retail areas.
The applicant has addressed the scale and bulk by implementing the design changes outlined above.
Staff still has concerns on the architectural design. The problem arises with the requirement of “compatibility of the design with immediate environment, neighborhood, and adjacent
properties relative to architectural design”. Some of the architectural elements standing alone are consistent with the environment. For example, the stone base, headers, the color
scheme (except the white siding), and brackets are design elements which are consistent with adjacent properties. The revised entry truss on the West Beaver Creek elevation is an attractive,
alpine approach and may be considered an important architectural element to be carried throughout the project. On the other hand, a two-tone metal roof does not appear anywhere within
the Town and is a departure from the existing neighborhood. The white siding and the various materials are inconsistent with adjacent properties. Staff is encouraged by the proposed
design changes but refinement is necessary to conform to the PUD review criteria and Design Guidelines.
Uses, activity, and density provide a compatible, efficient, and workable relationship with surrounding uses and activity.
The uses, density and activity level are in conformance with the Comprehensive Plan and Downtown Design Guidelines. As discussed under criterion 5, the access and circulation needs
to be coordinated with Lot B’s existing and proposed plans. In staff’s opinion, this area is not functional as currently proposed because it does not provide for adequate queuing stacking
or maneuvering for vehicles, particularly buses, delivery and emergency vehicles.
All service areas should be screened and present a finished appearance.
Identification and mitigation or avoidance of natural and/or geologic hazards that affect the property upon which the PUD is proposed.
No significant hazards have been identified.
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 pedestrian ways need refinement to be more functional.
The buildings create significant shadows on employee housing and interior pedestrian area. This should be further addressed.
A circulation system designed for both vehicles and pedestrians addressing on and off site traffic circulation that is compatible with the town transportation plan.
There are several critical issues that must be resolved. The traffic report identifies that Levels of Service E and F will occur on West Beaver Creek Boulevard. This is due to existing
background traffic and projected growth. The circulation and access system for the project must be designed so this situation is not exacerbated. The following is a list of the most
critical issues:
Widening Sun Road to 40 feet wide to accommodate a left turn lane.
The Sun Road design should be coordinated with the Lot B development. This road or access way is not functional as currently proposed. Adequate ingress/egress needs to be provided
to accommodate large vehicles such as buses on site.
The applicants have agreed to provide additional access into the parking garage from Benchmark Road as recommended by the Town Engineer.
The loading and service area by the hotel does not appear to be functional. It will also have a negative impact on the pedestrian walkway. Staff recommends that this area must be re-designed
or re-located. We suggest that consideration be given to locating this area in the parking structure if possible.
Not all parking spaces are designed to front onto a 24 foot wide parking aisle as required by the Zoning Code. This includes the covered parking within the time-share building. Staff
recommends that this parking area be deleted and the retail space be expanded.
The circulation in the surface lot by the employee housing units could be improved. The aisle in front of the building dead ends. Anyone not finding a parking space will have to back
out of the aisle.
In addition, please refer to the Town Engineer’s comments, which are attached to this report.
The Planning and Zoning Commission recommended that the sidewalks be detached from the street. This would require that they be located within the project property. The walks are still
shown in the street rights-of-way.
Functional and aesthetic landscaping and open space in order to optimize and preserve natural features, recreation, views and function.
The landscaping appears functional for an urban development.
The plans need to address how solar access and views will be preserved.
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.
More detail needs to be provided including building elevations, and landscaping for each phase. The attached letter from OZ dated November 11th includes a commitment for a more detailed
phasing plan.
Adequacy of public services such as sewer, water, schools, transportation systems, roads, parks, and police and fire protection.
All proposed storm water detention and pollution control facilities appear to be located off the property on Lot B. This would only be acceptable with the submission of appropriate documents
executed by the Owners of Lot B agreeing to the construction and future maintenance of these facilities on their property.
The engineering plans need to be updated to match the revised site plan.
Plans need to be submitted that document that adequate storm water and pollution control facilities are available to accommodate existing and future drainage conditions.
The plans need to include the street and streetscape improvements to West Beaver Creek Boulevard in general conformance with the plan developed by the Town.
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.
Please refer to the comments under transportation addressing street capacity issues.
Development Standards
The development standards were established by the PUD approved in October of 1998 by Town Council.
Setbacks: This PUD proposes some reduced setbacks from the original PUD as follows:
North (Benchmark Road): 20 feet original, 10 feet proposed.
East (West Beaver Creek Road: 10 feet-unchanged
South (Sun Road): 10 feet-unchanged
West (Benchmark Road) 10 feet original, 5 feet proposed
Underground parking garage- requesting 8 feet setback.
Other encroachments: The original PUD approved the encroachment of non-habitable structures including Porte cocheres, low level roof structures covering open air pedestrian ways and
awnings relating to commercial uses could encroach up to a 10 feet setback. The current PUD has expanded this to include roof overhangs and balconies. Staff does not object to the
additional items encroaching. The PUD must specify that these elements are limited to non-habitable encroachments.
Height: The plans state that the 100 foot height limit imposed by the original PUD, (the height of the Lodge at Avon Center) will be met. The applicants are working on providing all
significant ridgeline elevations to document compliance with the height limitation.
Density: The project conforms to the 210 dwelling density established by the original PUD. It must be noted that the two-bedroom timeshare units are configured as one bedroom lock-offs
including a living room and a bedroom for each side. We have enclosed a letter from Brett Miller of OZ Architecture dated November 3rd stating that these units meet the Town’s definition
of a dwelling unit, which allows up to two lock-offs. The cooking facilities have been removed from the lock-off side to meet this definition.
In staff’s opinion, the subdivision of the time shares into one bedroom units must be prohibited, otherwise the lock-offs function as separate units and must be classified as such. The
applicants should further clarify how these units will function, including whether they will allow separate rentals and “space banking” of the lock-offs.
Site Coverage: 70 percent -unchanged
Landscaping: The applicant will provide the area and percentage of area to be l landscaped.
Parking:
Hotel: 1 parking space per room
Timeshare interval ownership: .6 spaces per bedroom, proposed 1.2 spaces per unit (assumes 2 bedrooms per timeshare unit and two living areas)
Employee housing: .5 spaces per unit-unchanged.
Compact spaces: the plans are being revised to comprise no more than 30 percent of the structured parking. Otherwise, an adequate number of parking spaces have been provided.
The applicant is still considering whether employee parking spaces can be reserved.
The exits from the parking garage are not consistent between the different plan sheets and the landscaping plan.
Snow shedding and storage: The applicant will provide the square footage of the snow storage area and percentage of paved area designated as a temporary collection area. The applicant
intends to haul the snow off site. The plans need to be refined at the Final Design Review stage to address snow shedding concerns.
Summary and Recommendations
Because of the anticipated plan revisions staff is recommending that the project be tabled. While the applicant and staff have worked diligently on resolving all of the issues presented
during this review process, a number of significant issues remain unresolved. Staff recommends that the public hearing be held, and that P and Z review the project plans and provide
direction to the applicants. Following is a summary of the most significant issues that should be addressed prior to Planning and Zoning Commission making a recommendation to Town
Council:
Improved vehicle access and circulation (particularly Sun Road)
Sufficient maneuvering area for bus, emergency, delivery and trash hauling vehicles.
The function and location of the loading and service area for the hotel.
The need for additional retail space, particularly adjacent to the pedestrian walkway through the project.
Refinement of the architectural theme.
Recommended Motion
I move to table the PUD Zoning application for Lot C, to the December 7th Planning and Zoning Commission meeting based upon the following:
Improved vehicle access and circulation (particularly Sun Road)
Sufficient maneuvering area for bus, emergency, delivery and trash hauling vehicles.
The function and location of the loading and service area for the hotel.
The need for additional retail space, particularly adjacent to the pedestrian walkway through the project.
Refinement of the architectural theme.
If you have any questions regarding this project or anything in this report, please call me at 748-4002, or stop by the Community Development Department.
Respectfully submitted,
Karen Griffith, AICP
Town Planner
Attachments:
November 3rd letter from Brett Miller, OZ Architecture
November 5th letter from Karen Griffith, Town of Avon
November 8th Memo from Norm Wood, Town Engineer
November 11th letter from Brett Miller, OZ Architecture