Lot C ACBC PUD v4Town of Avon
PUD Staff Report
December 21, 1999 Planning & Zoning Commission meeting
Report date
December 16, 1999
Project type
Mixed-Use Planned Unit Development (PUD)
Legal description
Lot C, Avon Center at Beaver Creek Subdivision
Address
160 W. Beaver Creek Boulevard
Current Zoning
Planned Unit Development (PUD)
Introduction
Vistana, Inc. is applying for Final PUD Development Plan approval (and modification of the PUD Development Standards) for a mixed-use development on Lot C, Avon Center at Beaver Creek
Subdivision. The proposed Development plan includes 140 timeshare condominium units, 130 hotel rooms, a restaurant, retail space and 20 employee housing units. Four phases of development
are proposed, the first three of which are almost entirely timeshare condominiums.
Background
Vistana is under contract to purchase Lot C from the current owner, Vail Resorts, Inc. In October 1998, Town Council approved a zone change, from Town Center (TC) to Planned Unit Development
(PUD), and approved the PUD Development Standards for Lot C via Ordinance 98-21. At the applicant’s request (then Vail Resorts, Inc.), that approval did not include a Final Development
Plan.
The application currently before the Town is for Final PUD Development Plan approval, which is governed by Section 17.20.110 of the Avon Municipal Code.
The Planning & Zoning Commission reviewed this application on November 2, November 7 and November 16.
Discussion
The Development Plan attached to this report is the latest revision, and addresses comments by P&Z and staff from the December 7th and November 16th meetings. Also attached for your
reference is Staff’s letter to the applicant dated December 10th summarizing the Commission and staff’s comments.
Modifications in the attached plan include:
The angled parking spaces at the West Beaver Creek Boulevard timeshare building entrance are now 90-degree spaces.
The angle of the driveway and loading area entrance to the parking garage next to Benchmark Road.
The elevator for the employee housing building has is now within the employee lounge area and the fireplaces are deleted. The stairwells are also relocated.
Addition of a turn around area in the surface parking lot next to Benchmark Road.
The footprint of the hotel has been clarified.
The measurement of retail space is now Gross Leaseable Floor Area (GLFA) rather than Gross Floor Area (GFA), for consistency with Town of Avon parking requirements.
Notes on the plan clarify that the architectural design is conceptual and that final architectural design will be approved through the Final Design Review process.
The traffic study is updated to reflect the revised circulation and access for the site. Please note that the reference to a traffic signal at Sun Road is a typographical error; the
data and conclusions in the report do not reflect the presence of a traffic signal.
PUD Review Criteria
Conformance with the Town of Avon Comprehensive Plan’s Goals and Objectives.
The Comprehensive Plan, adopted by the Avon Town Council in 1996, includes a number of goals and policies, listed below, which deal directly and indirectly with development in the Town
Center. They are based on principles of economically sustainable development that reflect the practical experience of communities throughout the country.
Urban design is critical to the long-term economic health of a downtown. The design and arrangement of buildings and their surroundings, together with the associated type and mix of
activities (so-called “uses”), has much to do with where people go to shop, dine out, find lodging, or work. Over time, people choose places that are convenient, interesting, safe and
comfortable.
Successful businesses both help create and are attracted to such places. The Town plays a critical role by establishing a framework for development, then evaluating individual development
proposals against that pattern. This framework, articulated through the Comprehensive Plan and Design Guidelines, gives current and potential property and business owners a reasonable
set of expectations upon which they can base investment decisions, and some assurance that development approvals on adjacent properties will be made using the same set of criteria.
Because development in a downtown is so interdependent with surrounding development, having and adhering to this framework is especially important.
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 hotel, freestanding office/retail building and minor portions of the timeshare buildings constitute vertically mixed use as described in the Comprehensive Plan (see above). At buildout,
the project incorporates structured parking, pedestrian access and a functional connection with the Town Center Mall. Apart from the proposed phasing and some minor modifications, the
development as a whole generally conforms to the language and intent of the Comprehensive Plan and the Design Guidelines.
However, the project is proposed to occur in four phases: Phases 1A, 1B and 1C, and Phase 2. Under this scenario, the development will begin with timeshare and employee housing at the
corner of Benchmark Road and Beaver Creek Boulevard, and proceed toward the Town Center Mall. The first three phases are almost entirely timeshare condominiums and employee housing.
The majority of ground-level retail and the hotel would occur in the last phase (Phase 2).
One likely outcome of this phasing plan is a freestanding timeshare building separated from the Town Center Mall. The small amount of retail included with the timeshare building is focused
mainly on Beaver Creek Boulevard, and does not interact with storefronts adjacent to the Town Center Mall. Functioning more as a standalone project, the timeshare seems likely to generate
more automobile traffic and transit usage than would the more dense, integrated development shown at the end of Phase 2. Without the proximity and density of additional retail space
along the Mall in conjunction with the timeshare and hotel, retail business development on the Mall seems less likely.
In short, this phasing plan represents a significant departure from the framework expressed by the Comprehensive Plan. Rather than complementing existing and proposed development in
the Town Center, the phasing plan could fragment the Town Center and the Town Center Mall. With the continuing business growth of Edwards and the impending start of development in the
Village at Avon, this seems to be a step backwards in the overall development of the Town Center.
The phasing plan therefore does not conform to the goals and policies of the Comprehensive Plan. A recommended condition of approval is that the project starts with the hotel and retail,
or is constructed as a single phase.
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).
At buildout, the proposed development generally conforms to the overall design theme and sub-area design recommendations. The phasing as proposed, however, does not. The following comments
are based upon the buildout.
The two story retail building steps back from the Town Center 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 both through the interior of the project and on the perimeter.
The design of the sidewalks, pedestrian ways and streetscape will be refined through the design review process.
Design compatibility with the immediate environment, neighborhood, and adjacent properties relative to architectural design, scale, bulk, building height, buffer zones, character, and
orientation.
Staff’s understanding of the architectural design is that it is presented to illustrate a variety of concepts. Consequently, the architectural theme is not consistent throughout the
project. A note has been placed on the plans that states that the architectural plans are conceptual only and that the final architectural design, including the architectural theme,
will be approved separately through the design review process.
Uses, activity, and density provide a compatible, efficient, and workable relationship with surrounding uses and activity.
At buildout, the uses, density and activity level will achieve conformance with the Comprehensive Plan and Downtown Design Guidelines when Phase 2, the final phase of the development,
has been completed with the attendant retail space and pedestrian facilities.
The circulation system now works in conjunction with the Lot B project, with some refinement at the Design Review stage.
As proposed, Phases 1A, 1B and 1C do not meet this criterion.
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.
As discussed above, the building design will be refined at the Design Review process. This will include that building elevations are consistent with the floor plans.
The provision of the interior pedestrian ways and adjacent retail, and the connection to the mall will contribute to the functionality of Avon’s Town Center. The interior corridor may
help to preserve mountain views from Beaver Creek Boulevard.
A circulation system designed for both vehicles and pedestrians addressing on and off site traffic circulation that is compatible with the town transportation plan.
A functional circulation system can be created with further refinement of the access to the project and the design of the loading and trash areas. We have included recommended conditions
of approval to address these concerns.
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. Any phasing will be approved in conjunction with the final design review process.
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.
Please see comments regarding phasing under criteria number 1, 2, 4 and 7. The phasing plan as proposed is not, in staff’s opinion, acceptable under this criterion.
Adequacy of public services such as sewer, water, schools, transportation systems, roads, parks, and police and fire protection.
Proposed storm water detention and pollution control facilities are located on Town of Avon property, Tract G. This will require execution of an agreement with the Town prior to final
approval to address issues related to this use of the property, construction and maintenance of the facilities and their relocation if required for future development of the area.
The plans generally conform to the street and streetscape improvement plans developed by the Town, subject to more detailed reviews in conjunction with the Final Design Review process
and Building permit review.
Proposed grades at south end of site appear to be significantly lower than existing grades of adjacent Town Center Mall. The grading plan will require refinement at the Final Design
review and building permit stages.
No concerns regarding sewer, water, or school capacity have been expressed.
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 provision of the left turn lane for traffic exiting Sun Road helps to reduce the impacts from traffic turning onto West Beaver Creek Boulevard. The updated traffic report is included
in your packet.
Development Standards
The PUD approved in October of 1998 by Town Council established the development standards.
Setbacks: This PUD proposes reduced setbacks from the original PUD as follows:
North (Benchmark Road): unchanged
East (West Beaver Creek Road: 20 feet original, 10 feet proposed
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 foot 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 conform to the 100-foot height limit imposed by the original PUD. This will be verified with the final design review and building permit plans.
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 timeshares into one-bedroom units must be prohibited; otherwise the lock-off units 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 20 percent-conforms to Town Center standards.
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: proposed 20 percent of structured parking, which is more restrictive than the Town Zoning Code requirements
Staff was able to verify 384 of 388 proposed parking spaces. The plans will be required to provide 388 spaces.
Snow shedding and storage: A temporary collection area has been provided. The plans indicate that snow will be hauled off- site. The plans need to be refined at the Final Design Review
stage to address snow- shedding concerns.
Recommendation
Staff recommends approval of the PUD Final Development Plan, subject to the following conditions:
General requirements and limitations:
The phasing plan as proposed does not comply with the Comprehensive Plan. The hotel and retail phase should be constructed with the first phase of development.
The two-bedroom time-share units constitute one dwelling unit and may not be further subdivided, sold, transferred, conveyed, leased, or sub-leased separately.
A complete landscaping plan and construction laydown plan will be required prior to issuance of a building permit for each phase of the project.
A common area with a fireplace is required on each floor of the employee Housing Project.
The parking structure will be designed for future access to the Sunroad ramp and Lot B.
All parking aisles are required to comply with the 24’0” width.
All of the encroachments proposed in the setbacks are non-habitable. The non-habitable encroachments are limited to balconies, porte-cochere, roof overhangs, awnings, and lower level
roof structures.
Streets and Streetscape:
All perimeter sidewalks throughout the project shall be a minimum of 8’0” width.
No columns or structural supports may either impede the 8’0” wide sidewalk clearance requirements or encroach into driveways or entrances.
All curbs along streets and entrances must include 2’0’ gutter pans in addition to the driving lanes.
All streetscape improvements will include furniture, fixtures and lights per town standards.
All street and streetscape improvements along West Beaver Creek Boulevard and Benchmark Road must be completed at the time of issuance of the first TCO for the project.
The final design and specifications for the bus stop will be required at design review.
All surface entries and loading entrances shall have a minimum vertical clearance of 13’6’.
All parking entrances from public roads shall have a 28’0” access width, which will include a 2’0” gutter pan on each side.
The fountain/seating area adjacent to the Town Center Mall must be complete at the time of issuance of the first TCO for the project.
The grading plan adjacent to the Town Center Mall is not approved and must be resolved at design review contemporaneous with the streetscape improvement plan with the first phase of
development.
Required Agreements:
A Reciprocal Access Easement Agreement between Lot B and Lot C shall be executed prior to issuance of a building permit and approved by the Town of Avon. The Agreement must contain
the following terms and conditions:
A 39’0 access easement at Sunroad i.e, 19’5” on each property.
Reciprocity for access and storage during construction.
This Agreement will also set forth authorization for construction and management of the storm drainage facilities from Lot B.
An Agreement will be required prior to issuance of a building permit for the management, design and construction of the storm water detention and pollution control facilities proposed
on Town property known as “Tract G, Benchmark at Beaver Creek Subdivision”. The PUD Development Plan in not an approval for the proposed use of Tract G for storm water and pollution
control facilities.
Amendments to the PUD Development Plan
The PUD Development Plan may be modified by reducing the number of time-share units to accommodate the required parking, additional retail space, employee housing, or hotel units without
requiring a PUD Amendment.
Final Design Review:
The accessibility and function of the trash and delivery areas is not approved. All aspects of the trash and delivery areas will be resolved and clarified at Design Review.
The architecture, construction details, final grading and drainage plans depicted in the PUD Development Plan are conceptual only. A separate process is required for refining and resolving
the details for the project.
Recommended Motion
“I move to adopt Planning & Zoning Commission Resolution 99-18 recommending approval of the Lot C PUD Development plan with conditions.”
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:
P&Z Resolution 99-18
Revised Development Plan received December 15.
December 10, 1999 letter from Mike Matzko to Oz Architecture