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L22 B2 BMBC RezoningTown of Avon Rezoning and PUD Development Plan Staff Report -Avon Market Place November19, 1996 Planning & Zoning Commission meeting Report date November 1S, 1996 Legal description Lot 22, Block 2, Benchmark at Beaver Creek Subdivision Current zoning SC -Shopping Center Commercial Proposed zoning PUD Address 200 Benchmark Introduction Leo Palmos of Palmos Development has applied to rezone Lot 22, and Tracts A and B, Block 2 of Benchmark at Beaver Creek Subdivision to PUD, for a mixed use development. Rezoning to PUD includes approval of a PUD Development Plan. The proposed mixed use PUD incorporates 95,882 square feet of new retail and office space, 78 residential condominiums, plus a 2,000 square foot Greek Orthodox chapel. Total square footage of the shopping center, including the Wal-Mart and existing retail building is 158,262 square feet of commercial and office space. Review considerations for change of zoning According to the Town of Avon Municipal Code, Section 17.28.080, the following evaluations shall be made in reviewing rezone applications: 1. Is the proposed rezoning justified by changed or changing conditions in the character of the area proposed to be rezoned? The proposed rezoning to PUD will facilitate new mixed use development in Avon's commercial area. The changing condition is that there is limited land available for development in Avon's commercial area. The development is justified, and encouraged in contributing toward a growing and revitalized commercial area. 2. Is the proposed rezoning consistent with the town's comprehensive plan? The site is designated as Mixed Use Commercial by the Town's newly adopted Comprehensive Plan. It is located in sub -areas 14 and 16. • Subarea 14 recommends one to three story buildings with sloped roofs, sheltered entrances, pedestrian connections to existing development, and equal architectural treatment of all exposed faces. Town of Avon Community Development c:\server\p&z\1996\111996\22bmbc2.doc (970) 949-4280Fax modem (970) 949-5749 Lot 22, Tracts A and B, Block 2, Benchmark at Beaver Creek Subdivision, Review, page 2 November 19, 1996 Planning & Zoning Commission meeting • Subarea 16 promotes mixed commercial uses, with residential uses on the top floors. • The proposed mixed use development is consistent with this recommendation. Building A, attached to the east end of the Wal-Mart building, is two stories; the proposed addition to the west end of Wal-Mart is one story. These buildings are located in Subarea 14 and are consistent with the recommendations. • Buildings B and C are essentially three story buildings with the four story tower elements. The recommendations for Subarea 16 do not address building heights. Staff believes the proposed rezoning is consistent with the Town's Comprehensive Plan. 3. Is the proposed use(s) compatible with the surrounding area or uses? The proposed mixed use development is compatible with the surrounding area and uses. The area to the south is residential. The buildings have been designed with "finished elevations" facing the high density residential to the south of the property, and towards the currently undeveloped Stolport property to the east, anticipated for mixed-use development. The residential area to the south is separated from the project by a railroad corridor. This corridor may eventually be converted to a trail or light rail corridor. Fencing and landscape berming has been incorporated into the design to reduce impacts of this development on the adjacent residential areas. The area to the west and north is existing commercial. 4. Are adequate facilities available to serve development for the type and scope suggested by the proposed zone? Facilities are available to serve the proposed development. With the installation of round abouts on Avon Road, buildout of this project does not preclude maintaining a level of service C. Minor improvements to Benchmark Road are recommended. Design criteria for review of a PUD Development Plan (Section 17.20.110.H) 1. Conformity with the Avon Comprehensive Plan goals and objectives. (This analysis is based on the newly adopted Comprehensive Plan) • Goal 1 is to " 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. This project helps to balance the land use by providing mixed use development which includes residential. • Policy Al.1 states that development and redevelopment will be of a scale and intensity appropriate fort the neighborhood. The development is compatible with the existing commercial neighborhood as well as the residential area to the south. The two and three story buildings, with towers are a similar mass and bulk as the surrounding commercial. The mixed use development will be compatible with the surrounding one and two story commercial development. • Policy A1.3 states that flexible zoning such as PUDs will be encouraged where it results in a more effective use of the land, provides a benefit to the community, and is compatible with the surrounding area. The proposed PUD does result in more effective use of the land because of increased densities and the proposed mixed use development. Town of Avon Community Development c:\server\p&z\1996\111996\22bmbc2.doc (970) 949-4280Fax modem (970) 949-5749 Lot 22, Tracts A and B, Block 2, Benchmark at Beaver Creek Subdivision, Review, edge 3 November 19, 1996 Planning & Zoning Commission meeting The residential densities on Lot 22 are based on the entire PUD, which includes Tracts A and B. Standard zoning for Lot 22 allows 40 residential units (7.5 dwelling units per acre X 5.41 acres). The SC zone district allows building heights of up to 48 feet. Proposed main building ridge heights vary from the one story Wal-Mart addition to the three story, 54.5 to 63.8 foot building ridgelines. The tower will be 95 feet tall, from the top of the ridge to the existing grade. The project includes a Greek Orthodox chapel , which can be used for church services, meeting space, and weddings. The project also provides reduced -rent office space for the Chamber of Commerce. The project should substantially enhance the vitality of downtown Avon. As presented, the project appears to have a parking deficit of 31 spaces. • Policy A1.5, "The community will include a wide range of residential uses including... vertically integrated residential (housing on the upper floors of commercial buildings). The project contains such a land use mix. • Policy A3.3 "Commercial, public, and other uses that generate employment and customer traffic should be located to minimize the need for automobile travel. This development is located ideally to implement this policy. It is adjacent to existing commercial areas. Sidewalk systems have been provided on the site. This includes planning for a potential future pedestrian connection from the south (rear) side of the complex to provide a connection from the trail and light rail corridor if the Union Pacific Railroad is abandoned. It is unclear however, if the sidewalk east of City Market is on Lot 22 or City Market Property. If it is to be constructed on City Market property, an access easement will need to be provided. • Policy A3.5 also calls for a vertically integrated mix of commercial and residential uses, and rely primarily on underground structured parking. • Policy A3.6 encourages mixed use development, where compatible with existing neighborhoods, to more efficiently use land. The proposed mixed use PUD will be compatible with the surrounding neighborhood and will certainly be an efficient use of land. Although the project is adjacent to residential areas, it is separated by a rail corridor. The buildings have been designed to provide a finished elevation on both sides. Traffic generated from this development will not travel through residential areas. The "back side of the property includes a screen fence and landscaped area. • Goal B 1 is to "enhance the Town's role as a principal, year-round residential community and regional commercial center. The mixed use development provides a significant amount of commercial, office and residential space to expand the Town's residential and commercial land use base. • Policy B 12 " Commercial areas will be sustained through creation and maintenance of effective vehicle access and parking, transit services, all -season pedestrian and non - motorized vehicle access, and consistent application of design standards." A pedestrian access (sidewalk) system has been provided. It is not clear if the sidewalk system is Town of Avon Community Development c:\server\p&z\1996\111996\22bmbc2.doc (970) 949-4280Fax modem (970) 949-5749 Lot 22, Tracts A and B, Block 2, Benchmark at Beaver Creek Subdivision, Review, page 4 November 19, 1996 Planning & Zoning Commission meeting extended on the north side of Building B and south side of Building C. A sidewalk system is need in this area to provide connections between this property and the Stolport property adjacent to this site. • Goal B3 is to maintain a balanced, diverse economic base that provides employment opportunities for residents and a sustainable tax base for the Town. Policy B3.1 is to promote development that strengthen the Town's year round tourism base. The development will provide more retail shopping and services for tourists, and likely some of the units may be used as second home or weekly rentals. • Goal C1 is to provide for diverse, quality housing, and Goal C2 is to provide for affordable housing for permanent and seasonal residents that is attractive, safe, and integrated with the community. This includes Policy C2.1 that new development, annexations, and major redevelopment shall include or otherwise provide for affordable housing. Policy C2.2 states that the affordable housing be integrated with the community, and Policy C2.3 stipulates that affordable housing required by the Town will include provisions for maintaining affordablility. The applicants have agreed to provide 5 housing units priced to be affordable to households at the median family income for the County. The units would be deed restricted. Staff appreciates the willingness of the applicant to contribute to the affordable housing supply. We recommend that a minimum of 10 percent of the units be affordable. This would be eight housing units. • Policy D1.2 states that new development should only occur where it can be adequately served by public facilities and services. The development is in a location where services can be extended reasonably. • Goal E1" Create an integrated transportation system that minimizes dependence on automobile travel within the Town by making it easier to use transit, walk or use bicycles and other non -motorized vehicles. The site plan includes pedestrian connections and a sidewalk system to enhance the Town's sidewalk system. A pedestrian connection does need to be provided to the Stolport property to the east. • Policy H1 "Establish and maintain a high quality visual image of the Town. and Policy H1.4, enhance the image of the Town as viewed from Interstate 70, and Policy 1-11.5, to maintain a sense of openness through preserving significant view from the highway, and landscaping, all relate to the proposed PUD. The architecture introduces a new architectural style to the Town. The architecture is of high quality and therefore is in conformance with these policies. The Tower elements on Building B, will be highly visible from the freeway. Although it will create more of an urban look of Avon's commercial area, the view from 1-70 should be improved by the upgraded architectural design of the shopping center. 2. Conformity and compliance with the overall design theme of the town, the sub -area design recommendations and design guidelines of the Town. This area is addressed by the Comprehensive Plan, but is not included in the downtown Design Guidelines. The site is designated as Mixed -Use Commercial District by the Town's newly adopted Comprehensive Plan. It is located in sub -area 14 and sub area 16. Subarea 14 recommends one to three story buildings with sloped roofs, sheltered entrances, pedestrian connections to existing development, and equal architectural treatment to all exposed faces. Town of Avon Community Development c:\server\p&z\1996\111996\22bmbc2.doc (970) 949-4280Fax modem (970) 949-5749 Lot 22, Tracts A and B, Block 2, Benchmark at Beaver Creek Subdivision, Review, page 5 November 19, 1996 Planning & Zoning Commission meeting Subarea 16 promotes mixed commercial uses, with residential on the top floors. The proposed mixed use development is generally consistent with these recommendations. Building A is two stories and the proposed addition to Wal-Mart is one story. These buildings are located in Subarea 14 and are consistent with the recommendations. Buildings B and C are essentially three story buildings with the four story tower elements. The recommendations for Subarea 16 do not address building heights. Therefore, the 95 foot Tower is not inconsistent with these recommendations. The Tower will become a dominant landmark within the Town. Staff views this as complementing the existing Town Center, rather than providing a competing feature that could detract from the existing Town Center. The proposed architecture is a departure from the more contemporary architecture currently found within the Town. It does relate well to the recently approved Chateau St. Claire development at the base of Beaver Creek. 3. Design compatibility with the immediate environment, neighborhood, and adjacent properties relative to architectural design, scale, bulk, building height, buffer zones, character, and orientation. The one to four story buildings are within the recommendations of the sub -area plans. The building design is high quality and is compatible with the Chateau St. Claire Architecture as well as Beaver Creek to the south. It is dissimilar from the design of buildings in the immediate area and Avon's town center to the north. The tower on building B is significantly taller than buildings in the immediate vicinity. It will be of a similar scale as the Lodge at Avon Center building located west of Avon Road. The mass and bulk of the buildings is similar to the Eaglebend Apartments and Avon Crossing residential developments to the south. A narrow buffer is provided between this development and these residences. The railroad corridor separates this development from the residential area. It is staff s opinion that an adequate buffer has been provided. Although the architecture is different from other buildings in the existing town center, staff believes the architecture is attractive and will set the tone for new development and redevelopment in the area. An addition is proposed for Wal-Mart in this application. However, no modifications to the existing building are proposed. When this addition is constructed, the facade of Wal-Mart should be upgraded to match the buildings within this PUD. An addition for Wal-Mart was approved this August. The inclusion of Wal -mart in this PUD constitutes a new development proposal. If this application is approved, the previously approved plans will be superseded. 4. Uses, activity, and density provide a compatible, efficient, and workable relationship with surrounding uses and activity. The mixed use development is compatible with surrounding uses. In the immediate vicinity of the site, is retail, office, restaurant and residential uses over commercial. The building coverage of 25.2 % of the site is well within the 50% maximum. The residential density is concentrated on Lot 22 at 14.41 dwelling units per acre (dua). The residential density is within the 7.5 dwelling units allowed per acre when the entire acreage of the PUD is utilized. The overall residential density is 6.6 dua. This is an acceptable residential density for a commercial project. The area will generate a high level of activity. Staff believes this is compatible with the immediate area that is primarily commercial, with some employee housing. although there is an existing residential area to the south, this area is separated from Town of Avon Community Development c:\server\p&z\1996\111996\22bmbc2.doc (970) 949-4280Fax modem (970) 949-5749 Lot 22, Tracts A and B, Block 2, Benchmark at Beaver Creek Subdivision, Review, page 6 November 19, 1996 Planning & Zoning Commission meeting the site by the railroad corridor. the residential area will not experience any traffic impacts because the site is accessed through the existing commercial area. There may be some impact from he traffic circulation aisle for cars and trucks on the perimeter of the site 5. Identification and mitigation or avoidance of natural and/or geologic hazards that affect the property upon which the PUD is proposed. There are no significant natural or geologic hazards within the area proposed for development that have been identified. 6. 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 site is relatively flat and does not have any native, undisturbed vegetation. The project will improve the aesthetic quality of the area. The tower will provide a dominant landmark however, that will be visible from I-70 and create a more urban view from 1-70. 7. 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 pedestrian circulation system has been provided. This includes a sidewalk system that is partially located on the City Market property west of the site. The applicants have worked with the staff in improving the circulation aisle on the western side of the site. The parking tin this area has been converted to angle parking to provide better traffic flow. The on-site circulation system is generally good. Access is provided to the site over the existing Tract A and Tract B. A secondary access is provided behind City Market to Beaver Creek Boulevard. The applicants have agreed to provide an access easement to the Stolport property, with certain restricting, including cost recovery for expenses in providing the connection.; The traffic revised traffic report identifies that off-site improvements to Benchmark Road including controlling access to off-street parking by defining driveways with clearly delineated islands, limiting driveways to specific traffic lanes, and curb and gutter that should be made to improve traffic flow and accommodate increased traffic impacts from this development. The Fire Chief has identified a concern regarding access and maneuverability through the T intersection and through the parking aisles on lot 22. The parking aisles do not all appear to provide a minimum width of 24 feet. Access easements need to be provided. This includes easement between Tract A, and B and Lot 22, as well as easements for the sidewalk on the City Market Property. An access easement should be provided between Lot 22 and City Market. Staff recommends a 40 foot access easement across Tract B and a 50 foot access easement across Lot 22 to provide for a access between this property and the Stolport property. The maneuvering and driveway aisles in the loading areas appear to be too narrow to be functional fro trucks. Some parallel parking spaces (east side of building B) appear to be about 16 feet long. These spaces should be a minimum of 22 feet long, preferably 24 feet long. Town of Avon Community Development c:\server\p&z\1996\111996\22bmbc2.doc (970) 949-4280Fax modem (970) 949-5749 Lot 22, Tracts A and B, Block 2, Benchmark at Beaver Creek Subdivision, Review, page 7 November 19, 1996 Planning & Zoning Commission meeting Traffic flow could be improved by closing at least the first parking aisle to the east west main access into the site. 8. Functional and aesthetic landscaping and open space in order to optimize and preserve natural features, recreation, views and function. The landscape plan provides a more urban treatment with "hardscape" in many areas. It is not clear from the plan what all of the ground treatment is. Final design plans should clearly indicate which areas are decorative pavement and where sod is provided. The provision of more hardscape surfaces seems appropriate for the urban development proposed. The residences are clearly urban in nature, with no specific amenities provided for the residential units. 9. 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. A phasing plan needs to be provided. 10. Adequacy of public services such as sewer, water, schools, transportation systems, roads, parks, and police and fire protection. The site has been planned for urban level development and adequate services can be provided. Although a significant number of residential units are proposed, it is unlikely that many school age children would live on the site because of its urban character and lack of amenities. Therefore, the school impact should be minimal. 11. 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 traffic study indicates that a level of service of C (LOS) or better can be achieved provided that roundabout improvements are made to Avon Road. The revised traffic study also recommends improvements off-site to benchmark road to increase traffic flow. These improvements were discussed above, and include better striping, curb and gutter, controlling access to off-street parking, and clearly delineated islands. The driveway aisle through Track A will be modified for improved traffic flow. This includes straightening the aisle, and providing angle parking. 12. Development Standards including lot area, site dimensions, setbacks, height, density control, site coverage, landscaping and parking shall be determined by the town council as pat of the approved development plan with consideration of the recommendation of the Planning Commission. Lot area: Not being changed. Setbacks: The site plan maintains standard Town setbacks. This is a 25 foot front, 7.5 foot side, and ten foot rear. The standard 10 foot front parking lot setback has also been provided. Building Height: The PUD proposes that the maximum building height of 95 feet for the tower on Building B. The buildings are up to four stories with main ridge heights of 54 to 64 feet. The SC zone district allows heights up to 48 feet in height. Town of Avon Community Development c:\server\p&z\1996\111996\22bmbc2.doc (970) 949-4280Fax modem (970) 949-5749 Lot 22, Tracts A and B, Block 2, Benchmark at Beaver Creek Subdivision, Review, page 8 November 19, 1996 Planning & Zoning Commission meeting Densi : The PUD is in conformance with the residential density of 7.5 units per acre, utilizing a Transfer of Density approach. While 14.5 dwelling units per acre (DUA) are provided on Lot 22, the site plan "uses" density allocations from Tract A and Tract B. Staff believes this is acceptable provided that benefits are provided to the Town to off -set impacts from increased building height, the requested reduction in parking, and the allocation of the residential units to lot 22. The benefits should include an affordable housing component. This is discussed elsewhere in the report. The project conforms to the maximum site coverage of 50%. Landscaping: the minimum landscape requirement of 20 percent landscaping has been met. The landscape plan needs to more clearly indicate the ground cover. Parking: The Zoning Code, (Section 17.24.020 6) specifies parking requirements for mixed use projects. This requires 5.5 spaces per 1000 square feet for the first floor, and 4 spaces per thousand square feet for all other floors. The mixed use formula has been used to calculate parking for buildings A, B, and C. Wal-Mart is solely retail, thus the retail parking requirements were used for Wal-Mart. Based on the square footage provided, a total of 847.3 parking spaces are required. The Planning and Zoning Commission may grant a 15 percent reduction provided certain criteria are met. This brings the requirement down to 720.3 (Code rounds to next whole space -721). The project has a deficit of 20 to 23 parking spaces according to the information provided by the applicants. This does not take into account that some spaces (4 spaces east of building B, do not appear to meet minimum lengths for parallel parking. Staff was only able to verify 690 spaces are provided. The applicants need to verify that all spaces meet minimum size requirements as well as that the minimum aisles of 24 feet wide for two way parking are provided. The loading docks and aisles appear to be very narrow. The aisle south of building B by the loading dock is about 10 feet wide and jogs. This does not appear to be adequate for truck maneuvering. The loading dock east of Building B appears to be 8 feet wide, which would not accommodate a truck. At least two functional loading docks are required. Allowed Uses: The PUD guide proposes uses in accordance with the Zoning Code. PROCESS SUMMARY • Zone district changes are enacted by ordinance adopted by the Town Council. The Planning and Zoning Commission will consider the Rezoning and PUD Development Plan application and hold a public hearing on November 19, 1996. Following Planning and Zoning Commission approval, the project would be scheduled for first and second readings of an ordinance by town council. Staff Recommendation Because of unresolved issues including access widths, parking aisle widths, and a 30 space parking deficit, staff recommends that the Commission review and comment on the project, but be prepared to defer final action if necessary. Staff will work diligently with the applicant to resolve these issues, and will update the Commission at Tuesday's meeting. The plans can then be revised to address the items outlined in the report, and proceed to City Council for review. Town of Avon Community Development c:\server\p&z\1996\111996\22bmbc2.doc (970) 949-4280Fax modem (970) 949-5749 Lot 22, Tracts A and B, Block 2, Benchmark at Beaver Creek Subdivision, Review, page 9 November 19, 1996 Planning & Zoning Commission meeting Recommended conditions 1. Provide eight housing units for which a household with a median income $56, 580 can qualify, assuming a 30 -year, 9% fixed interest rate, and 5% down payment (or equivalent). 2. Mutual access easements be provided for Tracts B and C, and City Market. 3. An access easement be dedicated to the public providing a 40 foot access easement across Tract b, and 50 feet across Tract A. 4. The parking aisles and drives be approved by the Fire Chief for emergency vehicle access. 5. Parking requirements shall be satisfied. 6. Landscape plan clarify sod and hard surface areas. 7. Adequate loading bays be provided. 8. All parking lot aisles and driveways allowing two way traffic be a minimum of 24 feet in width. 9. Town Engineer's comments dated November 13, 1996 be addressed to staff s satisfaction. 10. Off-site improvements outlined in revised traffic report be provided by the applicants. 11. Final design approval (August, 1996) for the 9,000 s.f. expansion of west side of Wal-Mart be superseded by this PUD. 12. Provide a facade on the Wal-Mart building to match Buildings B and C, in conjunction with the western expansion of the existing Wal-Mart building approved as part of this PUD. Recommended Motion Table Lot 22, Tracts A and B, Block 2, Benchmark at Beaver Creek Subdivision with the direction to address the conditions outlined above. If you have any questions regarding this project or any planning matter, please call me at 949-4280 (extension 131), or stop by the Community Development Department. Respectfully submitted, Karen Griffith, AICP Town Planner Town of Avon Community Development c:\server\p&z\1996\111996\22bmbc2.doc (970) 949-4280Fax modem (970) 949-5749 Lot 22. Tracts A and B, Block 2, r -hmark at Beaver Creek Subdivision, Rezonir -w PUD, page 2 December 3. 1996 Planning & Zon«ig Commission meeting Staff is also revisiting the parking requirements of this project. Based on the attached memo from Tom Braun, and conversations with Mr. Ed Delduca of Northwest Colorado Council of Governments, there may well be a reasonable basis for not requiring the applicant to provide parking in excess of that shown on the current plan. Staff will provide further information regarding this matter at the December 3 meeting. PROCESS SUMMARY The Commission will consider the revised Rezoning and PUD Development Plan application. Following Planning and Zoning Commission review and final action, the application and Planning & Zoning Commission's recommendation will be forwarded to the Town Council and scheduled for first reading of an Ordinance. Staff Recommendation Based on resolution of the housing and access issues, plus the information regarding parking requirements provided by the applicant and by NWCCOG, staff recommends approval of this project. Recommended Motion Recommend that Town Council approve rezoning of Lot 22, Tracts A and B, Block 2, Benchmark at Beaver Creek Subdivision from SC to PUD, as described on the PUD Plan dated with the following conditions: 1. Provide eight housing units for which a household with a median income $56, 580 can qualify, assuming a 30 -year, 9% fixed interest rate, and 5% down payment (or equivalent). 2. Dedicate to the Town a public right of way through Tracts A and B, and Lot 22, to the eastern property boundary of Lot 22. 3. Establish an access easement between the PUD and City Market. 4. All parking lot aisles and driveways allowing two way traffic be a minimum of 24 feet in width. If you have any questions regarding this project or any planning matter, please call me at 949-4280 (extension 129), or stop by the Community Development Department. Respectfltlly submitted, Matzko Director of Community Development Town of Avon Community Development c:\server\p&z\1996\120396\22bmbc3.doc (970) 949-4280 Fax (970) 949-5749 Lot 22, Tracts A and B, Block 2, Benchmark at Beaver Creek Subdivision, Kevtew, page 5 November 19, 1996 Planning & Zoning Commission meeting Planning & Zoning Commission Action ❑ Approved as submitted ❑ Denied R( Approved with conditions (noted below) ❑ Tabled ❑ Withdrawn by applicant Conditions of approval, reasons for tabling, or withdrawal of application, or basis for denial (refer to code or guidelines by number): Signed: Date J 2 Jack H nn, Attest: Date 1-3 - f 6 Sue Railton, Secretary Town of Avon Community Development jAp&z\1996\120396\22bmc-,j.coc (970) 949-4280Fax modem (970) 949-5745