L61 B 2 BMBC PUDTown of Avon
PUD Zoning
Staff Report
November 17, 1998 Planning & Zoning Commission meeting
Report date January 15, 1999
Legal description Lot 61, Benchmark at Beaver Creek Subdivision
Current zoning Town Center (TC)
Proposed zoning Planned Unit Development (PUD)
Address 0075 Benchmark Road
Introduction
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 owner, IDG3 LLC, is requesting a
zone change from Town Center (TC) to Planned Unit Development (PUD), because of the limitations of
the existing TC zone district, including height, allowed uses, building setbacks and parking requirements.
Proposed development standards
Most of the uses proposed are already permitted in the TC zone district, either as allowed uses (by right)
or by special review. This table summarizes the differences between the current and proposed standards.
Current (TC) Proposed (PUD)
Timeshare condominiums Special Review Use Allowed Use
Drive-through windows
Medical facilities
Hospitals
Conference/Convention facilities
Maximum building height
Maximum residential density
Parking spaces required
Maximum site coverage
Building setbacks
Special Review Use
Not allowed
Not allowed
Not allowed
80 feet
30 units per acre
5.5 per 1000 s.f. ground floor
4 per 1000 s.f. on upper floors
1 per hotel room
1.5 per 1 -bedroom unit (du), 2 spaces
for 2 bedroom and up.
7 spaces plus 1 space for each 5 units
in excess of 25, up to a maximum of
10 additional spaces
50%
Front: 25 feet
Side: 7.5 feet; Rear: 10 feet
Not allowed
Allowed Use
Special Review Use
Special Review Use
Equal to Avon Center (-100 feet)
110 units per acre
4.75 per 1000 s.f. ground floor
3.5 per 1000 s.f. on upper floors
75 per hotel room
1.5 per 1- or 2 -bedroom du, plus .5
spaces per additional bedroom.
No guest spaces
75%
Front (Benchmark Road): 10 feet
Side: 0 feet; Rear: 0 feet
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Staff Report: Lot 61, Benchmar,\ at Beaver Creek Subdivision, PUD Zoning page 2 of 5
January, 19, 1999, Planning & Zoning Commission meeting
Process Summary
The Zoning Code (Title 17, Avon Municipal Code) regards Zone Change and PUD approval as separate
processes. PUD zoning normally implies Development Plan approval.
The Town's policy has been to combine Zone Change (rezoning) and PUD approval in a single
application and ordinance. Last summer, however, the applications for the Lot C PUD and the Confluence
PUD were reviewed through a new, two-step process:
1. Zone Change and PUD Zoniniz. The zone change is reviewed and approved based upon the proposed
development standards for density, building height and bulk, parking, and allowed uses. Development
Plan approval is not granted at this point.
2. Development Plan Approval. The Development Plan, which defines the locations, size and general
design of the buildings, as well as site layout, access and circulation, is reviewed through a separate
application, presumably at some point in time after PUD zoning.
The applicant, IDG3, originally intended to follow the Town's normal procedure for Development Plan
approval. Citing the change in process allowed with Lot C and the Confluence, however, IDG3 has
elected to pursue a two-step process described above.
Review Criteria
Zone Changes and PUD approval are dealt with in separate sections of the Zoning Code, each with a set
of criteria for approval. Both sets of criteria are listed below, along with relevant staff comments. Where
the two sets essentially ask the same questions, the staff comments are not repeated.
Zone Change
Section 17.28.080 lists the criteria for evaluating zone changes.
1. Is the proposed rezoning justified by changed or changing conditions in the character
of the area proposed to be rezoned?
National trends in recreational tourism, transportation and land use, the maturing of Beaver Creek and
Vail ski areas, the expanded Eagle County Airport, commercial development in areas west of Avon,
and the increasing likelihood of a broader use of the railroad corridor, combine to support
development of a more dense, urban town center.
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 Lot 61 is bordered by an 80 -foot building and a 100 -foot building, staff would suggest
allowing a height of 90 feet, with the potential for increase as part of development plan approval.
And, without more information, evaluating the density proposed is not practical. Staff would suggest
determining significant density increases as part of Development Plan approval.
2. Is the proposed rezoning consistent with the town's Comprehensive plan?
The Comprehensive Plan envisions a Town Center that is a unified, walkable, economically diverse
urban environment. With some modification, the proposed development standards, including height
and building massing, vertical mix of uses, increased bed base, ground -level retail and services,
employee housing, and connection with the Avon Pedestrian Mall, generally support the Town's
goals as expressed in the Comprehensive Plan and the Design Guidelines.
3. Are the proposed uses compatible with the surrounding area or uses?
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. Almost all
of the uses proposed for this PUD are currently listed as uses by right or special review in the Town
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Center zone district. The Development Standards should also reflect that only commercial uses be
allowed on the ground floor, and residential and lodging uses be allowed only above the ground floor.
Such a vertical mix of uses is compatible with these surrounding structures and uses.
4. Are adequate facilities available to serve development for the type and scope
suggested by the proposed zone?
Staff has not evaluated potential impacts of the nearly threefold increase in residential density in
terms of traffic, emergency services, water and sewer service, and other municipal services.
PUD Zoning
The Zoning Code (Section 17.20.110) lists the criteria for evaluating a PUD. For purposes of this
application, these criteria are used to evaluate the proposed development standards, rather than a specific
Development Plan. Since several of these criteria are clearly intended to evaluate specific development
plans, associated staff comments are limited. If and when IDG3 subsequently applies for Development
Plan approval, staff will apply these same review criteria to the proposed Development Plan.
1. 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 Al: 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.
With two possible exceptions, the PUD development standards proposed for Lot 61 are generally
consistent with the density, vertical integration and diversity, and underground and structured parking
contemplated by the Comprehensive Plan. The two areas of possible concern are the amount of
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January, 19, 1999, Planning & Zoning Commission meeting
additional density (a nearly threefold increase) and the absence of side and rear lot setbacks. Staff's
opinion is that these aspects can be more effectively evaluated as part of an actual Development Plan.
2. Conformity and compliance with the overall design theme of the town, the sub -area
design recommendations and design guidelines of the Town.
The proposed standards include zero lot setbacks and increased height. While these are generally
considered desirable in the Town Center, staff is reluctant to recommend their adoption in the absence
of even a site plan.
3. Design compatibility with the immediate environment, neighborhood, and adjacent
properties relative to architectural design, scale, bulk, building height, buffer zones,
character, and orientation.
This criterion is intended for evaluating a Development Plan.
4. Uses, activity, and density provide a compatible, efficient, and workable relationship
with surrounding uses and activity.
Granting the proposed density (I 10 du/acre vs. 30 du/acre) may be appropriate through Development
Plan approval.
5. Identification and mitigation or avoidance of natural and/or geologic hazards that
affect the property upon which the PUD is proposed.
This criterion will be addressed through Development Plan approval.
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.
This criterion will be addressed through Development Plan approval.
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.
This criterion will be of particular importance in evaluating the Development Plan, given the
proposed increase in density, the site's proximity to the Avon Transportation Center, and relationship
to the Confluence and the Mall.
8. Functional and aesthetic landscaping and open space in order to optimize and
preserve natural features, recreation, views and function.
To be addressed through the Development Plan approval process.
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.
If phasing is appropriate for this site, it would be addressed through Development Plan approval.
10. Adequacy of public services such as sewer, water, schools, transportation systems,
roads, parks, and police and fire protection.
Please refer to the comments under Zone Change Criteria, # 4.
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.
Development Plan approval should include a traffic study to determine any improvements to the
streets and roads necessitated by the significantly increased density, combined with proximity to the
Avon Transportation Center.
Town of Avon Community Development j:\p&z\staff reports\1999\020299\lot61 pud.doc
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Staff Report: Lot 61, Benchmark at Beaver Creek Subdivision, PUD Zoning page 5 of 5
January, 19, 1999, Planning & Zoning Commission meeting
Summary
This application is for a change of zoning from TC to PUD, in order to allow more dense development of
the site. This application is the first of a two step process, which is intended to establish new maximum
(and, in some cases, minimum) development standards for the site.
In general, except as noted above, the proposed zone change and PUD zoning meet the relevant criteria in
the Zoning Code. It is through Development Plan approval, based on a separate application and more
detailed review process, that the Town will evaluate a specific development proposal for this site.
Because of the location and size of this site, we suggest that increased density and reduced setbacks
would be more effectively evaluated as part of the Development Plan approval process.
Staff Recommendation
Staff recommends approval with the following conditions:
1. Development may occur on this site only in conformance with a site-specific Development Plan
(referred to as a second step PUD Plan in these recommendations), approved by the Town through a
separate application and review process pursuant to Section 17.20. 110 of the Avon Municipal Code.
2. Increase in density be evaluated as part of the Development Plan approval process, and not granted as
part of this approval.
3. The Development Standards include the provision that the ground floor can only be occupied by
commercial uses including retail, entertainment, office or service commercial, and that residential and
lodging uses be permitted only above the ground level.
4. Deed restricted employee housing units equal to ten percent of the dwelling units designated at
Development Plan approval.
5. Applicant agrees to participate financially in a Downtown Plan.
6. Setbacks shall be as enumerated in the existing Avon Municipal Code. Any modifications can be
reviewed in conjunction with the Development Plan approval PUD process.
Recommended Motion
I move to adopt Resolution 99-3 recommending approval of a zone change from TC to PUD and approval
of Development Standards for Lot 61, Benchmark at Beaver Creek Subdivision.
If you have any questions regarding this project or any community development matter, please call 748-
4030, or stop by the Community Development Department.
Director of Corrm�nity Development
Town of Avon Community Development j:\p&z\staff reports\1999\020299\lot61 pud.doc
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Lot C, Avon Center at Beaver Creek Subdivision, Special Review Use, page 2
January 19, 1999, Planning & Zoning Commission meeting
Planning & Zoning Commission Action
Special Review Use granted as submitted .............................( )
Special Review Use granted with recommended conditions.(z
Special Review Use approved with modified conditions ......( )
Continued...............................................................................( )
Special Review Use Denied ...................................................(`
Withdrawn..............................................................................( )
hris ans, Chair
Date
Sue Railton, Secretary
Date / — /-,-A —,99
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