HomeMy WebLinkAboutRucksackMajorExteriorAlteration011408MEMORANDUM
TO: Planning and Environmental Commission
FROM: Community Development Department
DATE: January 14, 2008
SUBJECT: A request for a final review of an exterior alteration, pursuant to Section 12-7B-7, Exterior Alterations or Modifications, Vail Town Code, to allow for the redevelopment of
the Rucksack Condominium Building and the Scott Building, located at 288 Bridge Street, part of Lot C and Lot D, Block 5A, Vail Village Filing 1. (PEC07-0076)
Applicant: Jeffery B. Selby, represented by Jay Peterson
Planner: Scot Hunn
______________________________________________________________________
SUMMARY
The applicant, Jeffrey B. Selby, represented by Jay Peterson, has requested final review of a major exterior alteration at the Rucksack Condominium Building and the adjacent Scott Building,
located at 288 Bridge Street, part of Lot C and Lot D, Block 5A, Vail Village Filing 1. The request for review is presented in anticipation of the proposed re-development of the Rucksack
Condominium Building, and is now inclusive of the adjacent “Scott Building” (aka the “Burton Store”) within the scope of the re-development project. The re-development project includes:
Expansion of Level One (street level) of the Rucksack Condominium Building and the adjacent Scott Building, resulting in an increase to commercial square footage by approximately 279
sq. ft.
Expansion of Level Two of the Rucksack Condominium Building via the creation of a new second story over the adjacent Scott Building (expansion of Rucksack second floor over the top of
the Scott Building) and the infill of existing storage areas in the Rucksack Condominium Building, by approximately 2,241 sq. ft.
Conversion of existing Level Two office space within the existing Rucksack Condominium Building into a new residential unit
Demolition and renovation of existing exterior stairs on the south (Bridge Street) side of the Rucksack Condominium Building
Renovation/Repair of existing stairs and decks on east (Mill Creek) side of the Rucksack Condominiums Building
Creation of new access and egress to public way, at the east (rear) of the Rucksack Condominium Building through the east (rear) side of the Scott Building
Creation of new trash storage and removal area for the combined Rucksack Condominiums/Scott Buildings at the east (rear) of the Scott Building
Remodel of an existing stairwell and deck on south side of the Rucksack Condominiums Building
Addition of new roof element on west side of the Rucksack Condominiums Building as well as, a new roof over the entire Scott Building
Replacement of existing roof materials and assemblies for entire Rucksack Condominiums Building
Addition of an elevator on the north side of the Rucksack Condominiums Building
Removal and replacement of existing building (tenant) signage for both the Rucksack Condominiums Building and the Scott Building
Final Plan review is requested with regard to master plan recommendations, specific design guidelines and Code requirements applicable to any re-development of this site. To this end,
Staff has prepared a written analysis summarizing the requirements and guidelines outlined in:
The Town of Vail Land Use Plan
The Vail Village Master Plan
The Vail Village Urban Design Guide Plan
The Town of Vail Streetscape Master Plan Addendum, and
The Town’s Zoning Regulations
Requested Outcome
The intended outcome of this meeting is for the Commission to take formal action on the development application, citing certain applicable findings and criteria as the basis for approval,
approval with conditions, or denial of the application.
To this end, Staff’s is recommending approval, with conditions, of the Major Exterior Alteration for the Bridge Street Building, as detailed in Section IX of this memo.
II. DESCRIPTION OF THE REQUEST
Purpose of Review
The purpose of this meeting is to conduct a final plan level of review relative to the Bridge Street Building (aka “the Rucksack Condominium Building and the Scott Building) project’s
conformance with zoning and development regulations prescribed for re-development within the Commercial Core Area 1 (CC1) District. This requested review includes previously approved
alterations to the Rucksack Condominium Building. As well, the requested review has been expanded to include the addition of the adjacent Scott Building within the scope of the re-development
project.
The Planning and Environmental Commission will also be asked to review the proposal for compliance with applicable master plan documents, as well as any site specific design guidelines
outlined in both the Vail Village Master Plan, the Vail Village Urban Design guide Plan and the Town of Vail Streetscape Master Plan Addendum.
Project Overview
The attached plan sets (Attachment B) dated December 17, 2007, submitted by the applicant depict proposed improvements including but not limited to:
Lower Level Unit C1 (Basement – Currently Joe’s Famous Deli)
Code compliance update (sprinkler system) to existing Joe’s Deli space
Level One Unit C2 Rucksack Condominiums Building (street level – currently retail space and the Adjacent Burton Store)
Demolition and remodel to existing interior space and exterior materials
279 sq. ft. expansion/addition of both buildings, inclusive of expanded and reconfigured front entryways for the Rucksack Condominiums Building and the Scott Building (Burton Store)
Addition of elevator and remodeled secondary entry from street level on the North side of the Rucksack Condominiums Building
Removal of an existing steel stair case on the South side of the Rucksack Condominiums Building and replacement with heated stone stairwell
Renovation of existing stairwell at rear (east) side of the Rucksack Condominiums Building and the creation of pedestrian egress pathway from stairs to access easement located behind
the Scott Building
Creation of two (2) stone veneer support columns at or adjacent to public right-of-way (Bridge Street) and integrated into the existing Joe’s Deli stairwell
Level Two Unit C3 Rucksack Condominiums Building (currently real estate office space)
Demolition and remodel to existing interior space and exterior materials, inclusive of: new siding, new roof element on west elevation, roof replacement, as well as new trim, fascia,
soffits, windows, doors and balconies
Raised roof (ridge and eaves) height by approximately 4’ over existing second floor office in the Rucksack Condominiums Building
2,241 sq. ft. residential expansion including conversion of existing office space, as well as, an addition on the north side of the Rucksack Condominiums Building, over the existing
Burton Store retail space
Creation of a balcony facing Bridge Street, over existing stairwell to Joe’s Famous Deli
Creation of an roof top terrace/deck, over the existing Burton Store retail space – as part of the residential unit
Addition of an elevator on the north side of the Rucksack Condominiums Building
Renovation of existing stairwell at rear (east) side of the Rucksack Condominiums Building and the creation of pedestrian egress pathway from stairs to access easement located behind
the Scott Building
Elimination of an exterior staircase and wood balcony structure on the West (Bridge Street) side of the Rucksack Condominiums Building
Level Two/Three Unit R1 Rucksack Condominiums Building (residential condominium unit)
Demolition and remodel to existing exterior materials – repair and replacement of stucco elements, vertical board and batten siding, and windows to match all other exterior alterations
proposed on north, south and west elevations of the Rucksack Condominiums Building
Addition of balcony on West elevation of Unit R1
No change to interior space for residential Unit R1
Level Four Unit R2 (Residential Condominium Unit and Tower of Condominium Unit)
Remodel/Repair to existing exterior materials – repair and replacement of stucco elements and vertical board and batten siding (where needed) to match all other exterior alterations
(colors) proposed on north, south and west elevation
No change to interior space for residential Unit R2
The applicant proposes this re-development in order to gain a more functional commercial/retail floor plan by expanding and reconfiguring floor area on Level One of both the Rucksack
and Scott Buildings, and raising finished floor levels and ceiling heights. With the addition of the Scott Building (to the north of the Rucksack Condominiums Building) within the scope
of the proposed re-development project, the applicant is now proposing expansion of commercial and residential square footage. Therefore, a primary goal of any re-development of this
combined site will be to increase retail floor area on the street level of both buildings, expanding gross residential floor area (GRFA) on the second level, and bringing both structures
into compliance with current building and/or fire codes and generally improving the exterior appearance of the building.
The applicant has provided calculations on the plans relative to gross commercial and residential floor area within the existing and proposed structures. Briefly:
Existing Proposed Increase
Commercial 3,099 sq. ft. 3,378 sq. ft. 279 sq. ft.
Residential 2,220 sq. ft. 4,461 sq. ft. 2,241sq. ft.
Final review of the Bridge Street Building re-development project will address regulations and guidelines provided in the following planning documents:
A major exterior alteration application pursuant to section 12-7B-7 of Title 12, Town of Vail Municipal Code
12-18: Nonconforming Sites, Uses, Structures and Site Improvements
12-22: View Corridors
The Town of Vail Land Use Plan
The Vail Village Master Plan;
The Vail Village Urban Design Guide Plan;
The Town of Vail Streetscape Master Plan Addendum
III. BACKGROUND
Project Overview
The Bridge Street Building re-development project is the comprehensive re-development of the Rucksack Condominiums Building and the Scott Building, located on part of Lots C and D, Block
5A Vail Village, Filing 1. This prominent development site is generally located in the center of the Commercial Core 1 (CC1) District, within the historic Vail Village, at the mid-block
section of Bridge Street, and situated between the “A & D” Building to the north and the Red Lion Condominium Building to the south. This area is further identified within the “Mixed
Use” land use designation of the Vail Village Master Plan, and is more specifically addressed as part of the “Commercial Core 1 Sub-Area #3”. This sub-area is described (in part) as
follows:
“The core area, with it’s predominantly Tyrolean architecture, is the site of the earliest development in Vail. Over time, a need to upgrade and improve infrastructure such as loading
and delivery facilities, drainage, paved surfaces and other landscape features has become apparent. Many improvements to public spaces will be addressed as part of an overall streetscape
improvement project. There is also the potential to initiate a number of these improvements in conjunction with private sector development projects.”
On August 27, 2007, the Town of Vail Planning and Environmental Commission (PEC) voted unanimously to approve a major exterior alteration at the Rucksack Condominiums Building. Since
receiving PEC approval, the Applicant has acquired the adjacent, one-story Burton Store retail space known as the “Scott Building”. The applicant’s intent in presenting a new request
for review of this project is to specifically include the Scott Building within the scope of the project, providing the applicant with needed access and egress from the Rucksack Condominiums
Building. As well, the addition of the Scott Building provides additional development potential by way of increased site coverage and gross residential floor area (GRFA), provides improved
trash storage and removal on-site, and allows for better construction coordination and code compliance within the scope of the re-development of the Rucksack Condominium Building.
Building/Site History
The Rucksack Condominiums building was originally constructed in the early 1960’s, has been remodeled several times starting in 1966 to add or expand commercial and residential square
footage and was further subdivided in 1978 to create the “Rucksack Condominiums”. The Rucksack Condominiums Building is situated within “Parcels 1, 2, 3 and 4”, part of Lot D, Block
5A, Vail Village Filing 1. The combined total area of the site (Lot D) is approximately .0943 acres (4,108.85 sq. ft.) in size according to a survey completed by Peak Land Consultants,
dated November 30, 2007.
The date of original construction of the Scott Building is undetermined. The space has been occupied as either a restaurant or retail establishment, historically. Efforts to remodel
and expand the existing structure have been proposed in the past, although such plans were never pursued. The Scott Building is situated within “Parcel B”, a part of Lots C and D, Block
5A, Vail Village Filing 1. The area of Parcel B totals .033 acres (1,468 sq. ft.), according to a survey completed by Peak Land Consultants, dated November 30, 2007.
View Corridors
The Rucksack Condominiums Building, specifically the tower element of the building, is referenced in Chapter 22, View Corridors, of the Vail Town Code, as a prominent feature identified
in (adopted) View Corridor #1.
Final Plan Submittal
Staff suggests that the level of detail and information provided for this stage of review by the Commission is adequate to review overall issues of building design and siting, as well
as, any specific concerns or opportunities relative to bulk, mass, building height, exterior materials.
Since initial approval of final plans for the Rucksack Condominiums Building on August 27, 2007, the applicant has acquired the adjacent “Scott Building” with the intent to re-develop
that property in conjunction with the Rucksack Condominiums re-development project. The addition of the Scott Building to the overall scope of this re-development project has led to
the following changes to the plans for a major exterior alteration. Changes listed below address, in part, building and/or fire code issues identified by Staff and made part of previous
conditions of approval:
Revised plans to address building and fire code issues related to the provision of legal egress to a public way (access easement behind the A&D Building) from the Rucksack Condominiums
Building, as well as, issues related to zero lot line construction
Revised plans for Rucksack Condominiums Building to remove trash storage from area in front of the Burton Store, and relocate to the east (rear) of the Burton Store
IV. ROLES OF THE REVIEWING BOARDS
The purpose of this section of the memorandum is to clarify the responsibilities of the Planning & Environmental Commission, Design Review Board, Town Council, and Staff with regard
to applications submitted on behalf of the Applicant(s).
A. Exterior Alteration/Modification in the Lionshead Mixed-Use I zone district
Order of Review:
Generally, applications will be reviewed first by the Planning and Environmental Commission for impacts of use/development and then by the Design Review Board for compliance of proposed
buildings and site planning.
Planning and Environmental Commission:
The PEC shall review the proposal for:
Conformance with development standards of zone district
Lot area
Setbacks
Building Height
Density
GRFA (if applicable)
Site coverage
Landscape area
Parking and loading
Compliance with the goals and requirements of the Vail Village Master Plan, the Streetscape Master Plan, and the Vail Comprehensive (Land Use) Plan
Compliance with the Vail Village Urban Design Guide Plan and Vail Village Design Considerations with respect to the following:
Pedestrianization
Vehicular penetration
Streetscape framework
Street enclosure
Street edge
Building height
Views
Service/delivery
Sun/shade analysis
Action/Responsibility:
The Planning and Environmental Commission is responsible for final approval/denial of a Major/Minor Exterior Alteration. The Planning and Environmental Commission shall review the
proposal for compliance with the adopted criteria. The Planning and Environmental Commission’s approval “shall constitute approval of the basic form and location of improvements including
siting, building setbacks, height, building bulk and mass, site improvements and landscaping.”
Design Review Board:
Action: The Design Review Board has no review authority on a Major or Minor Exterior Alteration, but must review any accompanying Design Review Board application.
Staff:
The staff is responsible for ensuring that all submittal requirements are provided and plans conform to the technical requirements of the Zoning Regulations. The staff also advises
the applicant as to compliance with the applicable master plans and site specific design guidelines. Staff provides a staff memo containing background on the property and provides a
staff evaluation of the project with respect to the required criteria and findings, and a recommendation on approval, approval with conditions, or denial. Staff also facilitates the
review process.
Town Council:
Actions of Design Review Board or Planning and Environmental Commission may be appealed to the Town Council or by the Town Council. Town Council evaluates whether or not the Planning
and Environmental Commission or Design Review Board erred with approvals or denials and can uphold, uphold with modifications, or overturn the board’s decision.
V. APPLICABLE PLANNING DOCUMENTS
The following documents and/or specific sections of relevant zoning regulations, ordinances, master plans and design guidelines have (in part) provided Staff with criteria and findings
pertinent to the review of this proposal. In certain instances, Staff has highlighted specific key words, sentences or phrases that are specifically relevant to review of the Bridge
Street Building. This list is provided for reference and use by the Planning and Environmental Commission while reviewing the proposal and shall form the primary basis for any action
by the Commission to either approve, approve with conditions or deny the proposal:
Town of Vail Municipal Code, Title 12 Zoning Regulations
Chapter 7 – Commercial and Business Districts, Article B, Commercial Core 1 (CC1) District (in part)
12-7B-1: PURPOSE:
The Commercial Core 1 District is intended to provide sites and to maintain the unique character of the Vail Village commercial area, with its mixture of lodges and commercial establishments
in a predominantly pedestrian environment. The Commercial Core 1 District is intended to ensure adequate light, air, open space, and other amenities appropriate to the permitted types
of buildings and uses. The District regulations in accordance with the Vail Village Urban Design Guide Plan and Design Considerations prescribe site development standards that are intended
to ensure the maintenance and preservation of the tightly clustered arrangements of buildings fronting on pedestrianways and public greenways, and to ensure continuation of the building
scale and architectural qualities that distinguish the Village.
12-7B-7: EXTERIOR ALTERATIONS OR MODIFICATIONS (in part):
A. Subject To Review: The construction of a new building, the alteration of an existing building which adds or removes any enclosed floor area, the alteration of an existing building
which modifies exterior rooflines, the replacement of an existing building, the addition of a new outdoor dining deck or the modification of an existing outdoor dining deck shall be
subject to review by the Planning and Environmental Commission (PEC) as follows (in part):
1. Application: An application shall be made by the owner of the building or the building owner's authorized agent or representative on a form provided by the Administrator. Any application
for condominiumized buildings shall be authorized by the condominium association in conformity with all pertinent requirements of the condominium association's declarations.
12-7B-20: VAIL VILLAGE URBAN DESIGN PLAN (in part):
Adoption: The Vail Village Urban Design Guide Plan and design considerations are adopted for the purposes of maintaining and preserving the character and vitality of the Vail village
(CC1) and to guide the future alteration, change and improvement in CC1 district.
12-18-5: STRUCTURE AND SITE IMPROVEMENT (in part)
Structures and site improvements lawfully established prior to the effective date hereof which do not conform to the development standards prescribed by this title for the zone district
in which they are situated may be continued.
Lot and Structure Requirements: Structures or site improvements which do not conform to requirements for setbacks, distances between buildings, height, building bulk control, or site
coverage, may be enlarged; provided, that the enlargement does not further increase the discrepancy between the total structure and applicable building bulk control or site coverage
standards; and provided that the addition fully conforms with setbacks, distances between buildings, and height standards applicable the addition
Chapter 22 – View Corridors (in part)
12-22-1: PURPOSE
The town believes that preserving certain vistas is in the interest of the town’s residents and guests. Specifically, the town believes that:
The protection and perpetuation of certain mountain views and other significant views from various pedestrian public ways within the town will foster civic pride and is in the pubic
interest of the town.
It is desirable to designate, preserve and perpetuate certain views for the enjoyment and environmental enrichment for the residents and guests of the town.
The preservation of such views will strengthen and preserve the town’s unique environmental heritage and attributes.
The preservation of such views will enhance the aesthetic and economic vitality and values of the town.
The preservation of such views is intended to promote design which is compatible with the surrounding natural and built environment, and is intended to provide for natural light to buildings
and in public spaces in the vicinity of the view corridors.
The preservation of such views will include certain focal points such as the Clock Tower and Rucksack Tower, which serve as prominent landmarks within Vail village and contribute to
the community’s unique sense of place.
12-22-3: LIMITATIONS ON CONSTRUCTION (in part):
No part of a structure shall be permitted to encroach into any view corridor set forth in this chapter unless an encroachment is approved in accordance with section 12-22-6.
12-22-4: ADOPTION OF VIEW CORRIDORS (in part):
A. View Point #1: A view from the south side of the Vail Transportation Center from the main pedestrian stairway looking toward the Clock Tower, 232 Bridge Street, the Rucksack Tower,
288 Bridge Street, and beyond to the ski slopes. (Please see Attachment D – pg. 19)
12-22-6: ENCROACHMENTS INTO EXISTING VIEW CORRIDORS (in part)
An application for approval to encroach into an existing view corridor may be initiated by the town council on its own motion, by the planning and environmental commission on its own
motion, [or by application of any resident or property owner in the town,] or by the administrator or his/her designee.
12-22-7: NONCONFORMING STRUCTURES (in part)
A. Removal Of Encroachments Encouraged; Exceptions: Any structure which presently encroaches into an existing view corridor which was lawfully authorized by ordinances or regulations
existing prior to the effective date hereof may continue. However, such encroachments will be encouraged to be removed as part of any remodeling or reconstruction of the structure.
In the case of certain focal points, such as the Clock Tower and Rucksack Tower, the town recognizes their importance to the character of Vail Village and to the quality of the urban
design of the Vail Village. Notwithstanding their nonconforming status, the town does not encourage their removal.
12-22-8: HEIGHT LIMITATIONS (in part):
If the maximum height allowed in any zone district within the town differs from the height permitted by a view corridor, the more restrictive height limitation shall apply. (In this
instance, the Applicant should provide additional information relative to maximum heights to be dictated by established view corridors as compared with the building height restrictions
set forth in the Vail Village Urban Design Guide Plan).
Vail Land Use Plan
The Vail Land Use Plan was initiated in 1985 and adopted in 1986 by the Vail Town Council. The main purpose of the Land Use Plan is two-fold:
1. To articulate the land use goals of the Town.
2. To serve as a guide for decision making by the Town.
The Vail Land Use Plan is intended to serve as a basis from which future land use decisions may be made within the Town of Vail. The goals, as articulated within the Land Use Plan,
are meant to be used as adopted policy guidelines in the review process for new development proposals. In conjunction with these goals, land use categories are defined to indicate general
types of land uses which are then used to develop the Vail Land Use Map. The Land Use Plan is not intended to be regulatory in nature, but is intended to provide a general framework
to guide decision making. Where the land use categories and zoning conflict, existing zoning controls development on a site.
Goals and Policies (in part):
1.0 General Growth/Development
1.1 Vail should continue to grow in a controlled environment, maintaining a balance between residential, commercial and recreational uses to serve both the visitor and the permanent
resident.
1.2 The quality of the environment including air, water and other natural resources should be protected as the Town grows.
1.3 The quality of development should be maintained and upgraded whenever possible.
1.4 The original theme of the old Village Core should be carried into new development in the Village Core through continued implementation of the Urban Design Guide Plan.
1.12 Vail should accommodate most of the additional growth in existing developed areas (infill areas).
2.0 Skier/Tourist Concerns
2.1 The community should emphasize its role as a destination resort while accommodating day skiers.
3.0 Commercial
3.4 Commercial growth should be concentrated in existing commercial areas to accommodate both local and visitor needs.
3.5 Entertainment oriented business and cultural activities should be encouraged in the core areas to create diversity. More nighttime businesses, on-going events and sanctioned “street
happenings” should be encouraged.
4.0 Village Core / Lionshead
4.1 Future commercial development should continue to occur primarily in existing commercial areas. Future commercial development in the Core areas needs to be carefully controlled to
facilitate access and delivery.
4.2 Increased density in the Core areas is acceptable so long as the existing character of each area is preserved thorough implementation of the Urban Design Guide Plan.
4.3 The ambiance of Vail Village is important to the identity of Vail and should be preserved. (scale, alpine character, small town feeling, mountains, natural setting, intimate size,
cosmopolitan feeling, environmental quality.)
5.0 Residential
5.1 Additional residential growth should continue to occur primarily in existing, platted areas and as appropriate in new areas where high hazards do not exist.
5.3 Affordable employee housing should be made available through private efforts, assisted by limited incentives, provided by the Town of Vail with appropriate restrictions.
5.5 The existing employee housing base should be preserved and upgraded. Additional employee housing needs should be accommodated at varied sites throughout the community.
Vail Village Master Plan
The Vail Village Master Plan is based on the premise that the Village can be planned and designed as a whole. The Vail Village Master Plan is intended to be consistent with the Vail
Village Urban Design Guide Plan, and along with the Guide Plan, it underscores the importance of the relationship between the built environment and public spaces. Furthermore, the Master
Plan provides a clearly stated set of goals and objectives outlining how the Village will grow in the future.
Goals for Vail Village are summarized in six major goal statements. While there is a certain amount of overlap between these six goals, each focuses on a particular aspect of the Village
and the community as a whole. A series of objectives outline specific steps that can be taken toward achieving each stated goal. Policy statements have been developed to guide the
Town’s decision-making in achieving each of the stated objectives. The Bridge Street Building is located within the Commercial Core 1 Sub-Area #3 of the Master Plan.
A series of objectives outline specific steps toward achieving each stated goal. Policy statements have been developed to guide the Town’s decision-making in achieving each of the stated
objectives, whether it be through the review of private sector development proposals, or in implementing capital improvement projects. (Listed in part):
Goal #1 Encourage high quality redevelopment while preserving the unique architectural scale of the Village in order to sustain its sense of community and identity.
1.2 Objective: Encourage the upgrading and redevelopment of residential and commercial facilities.
1.3 Objective: Enhance new development and redevelopment through public improvements done by private developers working in cooperation with the Town.
1.3.1 Policy: Public improvements shall be developed with the participation of the private sector working with the Town.
Goal #2 To foster a strong tourist industry and promote year-round economic health and viability for the Village and for the community as a whole.
2.1 Objective: Recognize the variety of land uses found in the 10 sub-areas throughout the Village and allow for development that is compatible with these established land use patterns.
2.2 Objective: Recognize the “historic” commercial core as the main activity center of the Village.
2.2.1 Policy: The design criteria in the Vail Village Design Guide Plan shall be the primary guiding document to preserve the existing architectural scale and character of the core area
of Vail Village.
2.4 Objective: Encourage the development of a variety of new commercial activity where compatible with existing land uses.
2.4.1 Policy: Commercial infill development, consistent with established horizontal zoning regulations shall be encouraged to provide activity generators, accessible green spaces, public
plazas, and streetscape improvements to the pedestrian network throughout the Village.
2.5 Objective: Encourage the continued upgrading, renovation and maintenance of existing lodging and commercial facilities to better serve the needs of our guests.
2.5.2 Policy: The Town will use the maximum flexibility possible in the interpretation of building and fire codes in order to facilitate building renovations without compromising life,
health and safety considerations.
2.6 Objective: Encourage the development of affordable housing units through the efforts of the private sector.
2.6.1 Policy: Employee Housing; units may be required as part of any new or redeveloped project requesting density over that allowed by existing zoning.
Goal #3 To recognize as a top priority the enhancement of the walking experience throughout the Village.
3.1 Objective: Physically improve the existing pedestrian ways by landscaping and other improvements.
3.1.1 Policy: Private development projects shall incorporate streetscape improvements (such as paver treatments, landscaping, lighting and seating areas), along adjacent pedestrian
ways.
3.1.3 Policy: Flowers, trees, water features and other landscaping shall be encouraged throughout the Town in locations adjacent to, or visible from, public areas.
Goal #4 To preserve existing open space areas and expand greeenspace opportunities
4.1 Objective: Improve existing open space areas and create new plazas with greenspace and pocket parks. Recognize the different roles of each type of open space in forming the overall
fabric of the Village.
4.1.2 Policy: The development of new public plazas, and improvements to existing plazas (public art, streetscape features, seating areas, etc.) shall be strongly encouraged to reinforce
their roles as attractive people places.
Goal #6 To insure the continued improvement of the vital operational elements of the Village.
6.2 Objective: Provide for the safe and efficient functions of fire, police and public utilities within the context of an aesthetically pleasing resort setting.
6.2.2 Policy: Minor improvements (landscaping, decorative paving, open dining decks, etc.), may be permitted on Town of Vail land or right-of-way (with review and approval by the Town
Council and Planning and Environmental Commission when applicable) provided that Town operations such as snow removal, street maintenance and fire department access and operation are
able to be maintained at current levels. Special design (i.e. heated pavement), maintenance fees, or other considerations may be required to offset impacts on Town services.
Vail Village Urban Design Guide Plan
This Guide Plan represents collective ideas about functional and aesthetic objectives for Vail Village. Diagrammatic in nature, the Guide Plan is intended to suggest the nature of improvements
desired. It is based on a number of urban design criteria determined to be appropriate for guiding change in the Vail Village. The Guide plan is intended to be a guide for current
planning in both the public and private sectors. The Guide Plan establishes the Clock Tower building within the Gore Creek Drive/Bridge Street Sub-Area.
Town of Vail Streetscape Master Plan -Addendum
The Vail Village and Meadow Drive Streetscape projects represent the strategic steps of a 20 year planning effort to upgrade and enhance the physical character and pedestrian experience
in Vail. These projects develop the concepts originating from previous planning efforts (1991 Town of Vail Streetscape Master Plan) into a comprehensive and complete streetscape design.
VI. ZONING ANALYSIS
Staff has completed a zoning analysis of proposal in relation to the land use requirements outlined in Title 12, Zoning Regulations of the Vail Town Code. This analysis includes existing
and proposed development standards for the combined lot area of Lots C and D, Block 5A, Vail Village Filing 1:
Street Address: 288 Bridge Street
Parcel Numbers: 210108244003
210108244004
210108244005
210108241002
Zoning: Commercial Core 1 (CC1) zone district
Lot Area (combined): 5,577 square feet (.12 acres)
Land Use Plan Designation: Mixed Use
Current Land Use: Mixed Use Development
Development Standard Allowed/Required Existing Proposed
Buildable Lot Area: 5,000 sq. ft. (min.) 5,577 sq.ft. No Change
Setbacks: None Required (or unless specified
otherwise in the VVMP) *
Building Height: 60% at 33 ft. or less 56% No Change
40% at 33 ft. to 43 ft. 37% No Change
Density: DU’s- 25 D.U.s/acre (3 units) 2 3 dwelling units AU’s- 50 A.U./acre (6 units) None None
GRFA: 80% or 2,220 sq. ft. 4,461 sq. ft.
4,462 sq. ft.
Site Coverage: 80% (max.) or
4,462 sq. ft. 4,153 sq. ft. 4,458 sq. ft.
Landscape Area: Per the Vail Village
Urban Design Guide Plan
Parking: Pay-in-Lieu (12-7B-17)** 0 on-site No Change
Loading: 1 berth 0 on-site Off-site
Notes:
* Setbacks vary around the development site depending on the location of the “build-to-line” specified in the Vail Village Master Plan; Section 12-14-17, Setbacks to Watercourses, Vail
Town Code, stipulate a 30’ setback to the centerline of Mill Creek.
** Pay-in-lieu fee not applicable – development proposal reduces parking requirement for site.
VII. SURROUNDING LAND USES
Land Use Zoning
North: Mixed Use Development* Commercial Core 1 (CC1)
South: Mixed Use Development* Commercial Core 1 (CC1)
East: Mill Creek (T.O.V. Parcel) Outdoor Recreation (OR)
West: Mixed Use Development Commercial Core 1 (CC1)
Note:
* Adjacent buildings located to the north and south of this site (zero lot line) will be impacted by this proposed redevelopment; Applicant will be required to meet all code requirements
relative to zero lot line development and the Applicant is advised that coordination with adjacent property owners will be critical to the successful re-development of this site.
VIII. REVIEW CRITERIA AND FINDINGS
12-7B-7: EXTERIOR ALTERATION OR MODIFICATIONS
6. COMPLIANCE WITH COMPREHENSIVE APPLICABLE PLANS:
Compliance with Comprehensive Applicable Plans: It shall be the burden of the applicant to prove by a preponderance of the evidence before the planning and environmental commission
that:
1. The proposed exterior alteration is in compliance with the purposes of the CC1 district as specified in section 12-7B-1 of this article;
Staff response:
Staff believes the proposed exterior alteration is in compliance with the purposes of the CC1 zone district.
Specifically, the purpose of the Commercial Core 1 (CC1) District is:
“… to provide sites and to maintain the unique character of the Vail Village commercial area, with its mixture of lodges and commercial establishments in a predominantly pedestrian
environment. The Commercial Core 1 District is intended to ensure adequate light, air, open space, and other amenities appropriate to the permitted types of buildings and uses. The District
regulations in accordance with the Vail Village Urban Design Guide Plan and Design Considerations prescribe site development standards that are intended to ensure the maintenance and
preservation of the tightly clustered arrangements of buildings fronting on pedestrianways and public greenways, and to ensure continuation of the building scale and architectural qualities
that distinguish the Village.”
Staff believes this major exterior alteration will:
Maintain the unique character of the Vail Village commercial area, and;
Ensure the maintenance and preservation of the tightly clustered arrangements of buildings fronting on pedestrian ways and greenways, and;
Ensure continuation of the building scale and architectural qualities that distinguish the Village.
2. The proposal is consistent with applicable elements of the Vail Village Master Plan, the Town of Vail Streetscape Master Plan, and the Vail Comprehensive Plan;
Staff response:
Staff believes the proposed exterior alteration is consistent with all applicable elements of the Vail Village Master Plan, the Town of Vail Streetscape Master Plan, and the Vail Comprehensive
Plan.
Specifically, the design represents a “high quality” of re-development while preserving, in general, the unique architectural scale of the Village. This aspect of the project enhances
the sense of community and identity apparent in the Village Core. Staff believes the inclusion of the Scott Building in the re-development of the Rucksack Condominiums Building enhances
the project and presents the opportunity to improve access, egress and trash storage and removal, as well as, enhance building massing and scale relative to surrounding structures.
Further, the Vail Village Master Plan calls for variation in roof heights within a range of allowed building heights; the current proposal meets this intent (to create variation in roof
heights) by providing a new open gable roof form on the West (Bridge Street) elevation, and introducing a new two-story element above the Scott Building. Lastly, the proposal preserves
existing “activity pockets” along Bridge Street as identified in the Town of Vail Streetscape Master Plan.
3. The proposal does not otherwise negatively alter the character of the neighborhood;
Staff response:
Staff believes the proposed exterior alteration does not otherwise negatively alter the character of the neighborhood. The project, when viewed in context with surrounding structures,
is consistent with and will improve the quality and design characteristics of the surrounding neighborhood. Specifically, the forms, materials and detailing of the proposed improvements
are consistent with the historic nature of the surrounding built environment and will reinforce specific design characteristics apparent in the Village Core. Further, view corridors
will not adversely be impacted, and a sun/shade analysis has been provided demonstrating that the additions will not significantly increase shadow patterns within adjacent public spaces.
However, Staff recommends the following issues remain outstanding and must be addressed by the applicant prior to or concurrent with the DRB review.
Integration of exterior remodel design and materials
The applicant only proposes to change exterior materials on the front portion of the Rucksack Condominiums Building (south, west and north elevations). All other portions of the building
(excluding the roof elements which will receive new DaVinci composite shakes) are to be updated via paint, new light fixtures and refurbished and or replaced decks and railings. Staff
suggests that, overall, the proposed exterior materials and detailing are appropriate and will greatly enhance the appearance of the structures.
However, Staff suggests that the Design Review Board review all proposed exterior materials, textures, sizes, colors and detailing relative to the entire building to ensure that all
new materials blend or compliment those materials not being replaced and that any portions of the building that need repair and/or replacement are included in the scope of this project.
Exterior Signage
The applicant will be required to submit plans for a comprehensive exterior sign program pursuant to Section 11-8-2, Vail Town Code, prior to installation of any new signs on the building.
Exterior Lighting
Although the plans submitted generally call out proposed locations for new light fixtures, staff suggests that the applicant be required to submit a detailed and final lighting plan,
showing all existing light fixtures to be removed, as well as all new fixture locations, fixture types and lumens/output. Such plan should be submitted with any DRB application for
review and shall be accompanied by cut sheets for each proposed fixture.
4. The proposal substantially complies with the Vail Village Urban Design Guide Plan and the Vail Village Design Considerations, to include but not be limited to, the following urban
design considerations: pedestrianization, vehicular penetration, streetscape framework, street enclosure, street edge, building height, views, service/delivery and sun/shade analysis;
and,
Staff response:
Staff believes the proposed exterior alteration, in general, substantially complies with the Vail Village Urban Design Guide Plan and the Vail Village Design Considerations, specifically
with the following applicable Design Considerations:
Streetscape Framework
The Guide Plan states the following (in part):
“To improve the quality of the walking experience and give continuity to the pedestrian ways…two general types of improvements adjacent to the walkways are considered:
2. Infill commercial storefronts expansion of existing buildings, or new infill development to create new commercial activity generators to give street life and visual interest, as
attractions at key locations along pedestrian routes.”
Staff believes the proposed design meets the specific intent of these Design Considerations - of creating new commercial activity generators, and creating visual interest at a key location
along a prominent pedestrian route.
Street Enclosure
The Guide Plan states the following (in part):
“While building façade heights should not be uniform from building to building, they should provide a “comfortable” enclosure for the street.”
Further, that:
“Pedestrian streets are outdoor rooms whose walls are formed by the buildings. The shape and feel of these ‘rooms’ are created by the variety of heights and massing (three-dimensional
variations) which give much of the visual interest and pedestrian scale unique to Vail.”
Staff believes the proposed design, specifically the massing, bulk and forms meet the intent of these Design Considerations. Specifically, the forms, façade heights and setbacks reinforce,
or generally enhance, the three-dimensional variations apparent in the built form along Bridge Street. In addition, Staff has analyzed the ratio of increased façade height to the width
of Bridge Street (as an ‘outdoor room’) and has found that the design continues to provide a comfortable enclosure, on average (i.e. façade is generally ½ as high as the width of the
space enclosed).
Street Edge
The Guide Plan states the following (in part):
“Buildings in the Village Core should form a strong but irregular edge to the street.”
Further, that:
“Consistent with the desire for intimate pedestrian scale, placement of portions of a building at or near the property line is allowed and encouraged to give strong definition to the
pedestrian streets.”
Staff believes the proposed design meets the intent of these Design Considerations by introducing additional mass in the form of a second story addition at or near the property line
between Lot D and the Town of Vail Right-of-Way (Bridge Street). Also, the proposed design reinforces the existing “strong but irregular edge to the street” by stepping forms both
laterally and vertically as viewed from the pedestrian level of Bridge Street.
Building Height
The Guide Plan states the following (in part):
“Basically, the Village Core is perceived as a mix of two and three story facades, although there are also four and five story buildings. The mix of building heights gives variety to
the street, which is desirable. The height criteria are intended to encourage height and massing variety and to discourage uniform building heights along the street.”
Further, that:
“1. Up to 60% of the building…may be built to a height of 33 feet or less.
2. No more than 40% of the building…may be built to a height of 33 feet, but not higher than 43 feet.”
Staff believes the proposed design meets the intent of these Design Considerations. Specifically, the Applicant proposes to add building height, bulk and mass to two existing, adjacent
structures in a manner that is respectful to the existing structures, as well as, adjacent structures. The design furthers the intent to “to encourage height and massing variety and
to discourage uniform building heights along the street”, and the design specifically adheres to the recommended height guidelines prescribed as percentages of overall building heights.
Views
The Guide Plan states the following (in part):
“Vail’s mountain/valley setting is a fundamental part of its identity. Views of the mountains, ski slopes, creeks and other natural features are reminders of the mountain environment
and, by repeated visibility, are orientation reference points. “Certain building features also provide important orientation references and visual focal points. The most significant
view corridors have been adopted as part of Chapter 12-22 of the Vail Municipal Code.”
Further, that:
“Views that should be preserved originate from either major pedestrian areas or public spaces, and include views of the ski mountain, the Gore Range, the Clock Tower, the Rucksack Tower
and other important man-made and natural elements that contribute to the sense of place associated with Vail.”
Staff believes the proposed design will not adversely affect any identified view corridors. Specifically, although the applicant proposes to re-roof the tower element of the existing
Rucksack Condominiums Building, no substantive changes are proposed that will affect the design or height of the tower or present any other impediment (new/raised roof structures on
the Rucksack Condominiums Building and Scott Building) within mapped/surveyed View Corridor No. 1.
Service and Delivery
The Guide Plan states the following (in part):
“Any building expansion should preserve the functions of existing service alleys.”
Further, that:
“In all new and remodeled construction, delivery which avoids or reduces impacts on pedestrian ways should be explored and adopted whenever practical for immediate and future usage.
Rear access, basement and below-ground delivery corridors reduce congestion.”
Staff believes the proposed design meets the intent of this Design Consideration. Specifically, with the addition of the Scott Building to this re-development project, the applicant
is now able to provide enhanced trash storage and removal service at the rear (east) side of the combined property, via an access way and easement leading to Gore Creek Drive to the
north. This removes trash storage and removal from the front (west) side of the Burton Store.
Sun/Shade
The Guide Plan states the following (in part):
“All new or expanded building should not substantially increase the spring and fall shadow pattern (March 21 through September 23) on adjacent properties or the public ROW. In all new
building construction, shade shall be considered in massing and overall height considerations. Notwithstanding, sun/shade consideration are not intended to restrict building height allowances,
but rather to influence the massing of buildings.”
Further, that:
“Additions to existing buildings may be created in several ways to avoid extending shadow patterns.”
Staff believes the proposed design, although increasing the spring and fall shadow pattern slightly, meets the intent of this Design Consideration.
5. The proposal substantially complies with all other elements of the Vail Comprehensive Plan.
Staff response:
Staff believes the proposed design complies with all other elements of the Vail Comprehensive Plan.
However, Staff recommends that the following issues remain outstanding and must be addressed by the Applicant prior to or concurrent with any building permit submittal:
Building and Fire Code Analysis
The Applicant should be required to resolve any and all issues related to building code and fire code compliance, including egress issues and zero lot line construction, as part of a
comprehensive building and fire code analysis submitted to the Town.
Employee Housing Provision
In February of 2007, the Town Council passed Ordinances No. 7 and No. 8, Series of 2007, which enacted regulations for the provision of employee housing units through several possible
mitigation methods for all projects in the Commercial Core 1 (CC1) District. Within these ordinances a nexus was established between commercial and residential development and the generation
of employees was established. In adopting these ordinances a methodology was established to determine the impact of a commercial and residential development on the need for employee
housing at a goal of providing 30% of the housing generated by a project.
Furthermore, the following provisions have been made for meeting the requirement for providing employee housing through several different options or combination of options. The options
include:
Provision of on-site units;
Conveyance of property on-site;
Provision of off-site units;
Payment of fees-in-lieu; and
Conveyance of property off-site
A proposed development or redevelopment may choose to propose any of the above options or combination of options. Within the two Ordinances, the Planning and Environmental Commission
was given the authority to review an applicant’s proposal for mitigating the employee generation of a project and grant approval of the proposal. There are some specific instances were
the Town Council must also accept the proposal for mitigating the employee requirement generated by a project.
The Staff has reviewed the proposal for compliance with Ordinance No.(s) 7 and 8, Series of 2007, and calculates the mitigation requirement for the proposed Bridge Street Building project,
as follows:
Residential Mitigation Calculation:
2,241 sq. ft. (new/additional) GRFA x 10% = 224.1 sq. ft. mitigation required
224.1 sq. ft. x $236.65/sq. ft. = $53,033.30 payment-in-lieu required
Commercial Mitigation Calculation:
279 sq. ft. (new/additional) commercial space
279 sq. ft. x 2.4 employees/1000 sq. ft. of new net floor area = .66
.66 employee mitigation requirement x $131,385.00 = $86,714.10
Total Mitigation Required:
Residential Mitigation: $53,033.30
Commercial Mitigation: $86,714.10
Total: $139,747.40
Currently the Town has no plan for the funds that may be collected from the payment-in-lieu option for mitigating housing requirements. Funds collected from this option could be used
to construct units or to purchase units and then resell them after placing a deed restriction upon the property and selling them for a more affordable price.
Parking Mitigation (pay-in-lieu)
Staff has calculated the following changes to the parking requirement for the Rucksack Condominiums and Scott Buildings, based on the proposed plans to convert existing office space
to residential uses, and to expand existing commercial uses and according to “Schedule A” Vail Town Code:
New/Current Parking Requirement
New Residential Unit: 1.4 spaces per (new) unit
New Commercial Sq. Ft. 279 sq. ft. (new)
x 2.3 spaces/1000 sq. ft (net floor area)
= .7 spaces
Total New Parking: 1.4 spaces
+ .7 spaces
= 2.1 spaces
Existing Parking Requirement (Credit)
Office Area Removed: 1,405 sq. ft.
x 2.7 spaces/1000 sq. ft. (net floor area)
= 3.8 spaces (eliminated)
Credit: 3.8 spaces eliminated
- 2.1 spaces required
= 1.7 spaces credited
Based on the above calculations, Staff believes that the applicant is not required to pay-in-lieu for any additional required parking.
IX. STAFF RECOMMENDATION
The Community Development Department recommends that the Planning and Environmental Commission approves, with conditions a major exterior alteration, pursuant to Section 12-7B-7, Exterior
Alterations or Modifications, Vail Town Code, to allow for the redevelopment of the Rucksack Condominium Building and the Scott Building, located at 288 Bridge Street, part of Lot C
and Lot D, Block 5A, Vail Village Filing 1. Staff’s recommendation is based upon the review of the criteria found in Section VIII of this memorandum and the evidence and testimony presented.
Should the Planning and Environmental Commission choose to approve this major exterior alteration, the Department of Community Development recommends the Commission pass the following
motion:
“The Planning and Environmental Commission approves, with conditions, the Applicant’s request for a major exterior alteration, pursuant to Section 12-7B-7, Exterior Alterations or Modifications,
Vail Town Code, to allow for the redevelopment of the Rucksack Condominium Building and the Scott Building, located at 288 Bridge Street, part of Lot C and Lot D, Block 5A, Vail Village
Filing 1, and setting forth details in regard thereto.”
Should the Planning and Environmental Commission choose to approve this major exterior alteration, the Community Development Department suggests the following conditions:
1. The Developer shall be required to provide a building code and fire code analysis with any submittal for building permit,
2. The Developer shall address any and all issues and provide all necessary details related to trash storage and access located on the east side of the Bridge Street Building (a.k.a.
The Rucksack Condominiums Building and Scott Building), in conjunction with any Design Review application.
3. The Developer shall resolve all issues regarding drainage from the existing and proposed building(s) on to adjacent properties; the provision of gutters, downspouts and other drainage
methods tied into existing Town of Vail storm sewer improvements may be required as revisions to building permit set of drawings with any building permit application.
4. The Developer shall submit final details in conjunction with any Design Review application for final review, depicting any and all necessary hardscape, grading and drainage improvements
at the rear (east) side of the combined properties, for the specific purpose of providing adequate and code compliant egress from the Rucksack Condominiums Building to a public way.
5. The Developer shall ensure that all new materials, sizes, textures, detailing and colors blend or compliment those materials not being replaced and that any portions of the building
that need repair and/or replacement are included in the scope of this project in conjunction with any Design Review application.
6. The Developer shall submit a Design Review application for any and all new exterior signage for the property; a sign program pursuant to Section 11-8-2, Vail Town Code will be required.
7. The Developer shall be required to submit a detailed and final lighting plan, showing all existing light fixtures to be removed, as well as all new fixture locations, fixture types
and lumens/output; such plan should be accompanied by cut sheets for each proposed fixture in conjunction with any Design Review application.
8. That the Developer pays in full, the employee housing mitigation fee of $139,747.40 prior to the issuance of the building permit for The Bridge Street Building project.
9. The Developer shall, within 24 hours following any action by the Planning and Environmental Commission to approve File No. PEC070076, present to the Town of Vail Community Development
Department a plan to mitigate and otherwise rectify the existing conditions of the Rucksack commercial space. Such plan shall be implemented within forty-eight (48) hours of any such
final approval by the Planning and Environmental Commission and shall specify the means of providing screening or other window covering, treatment or concealment on all windows with
visibility from, and/or frontage on Bridge Street for the purpose of concealing any and all unsightly construction activity occurring within the commercial space located at 288 Bridge
Street.
X. ATTACHMENTS
Vicinity Map
View Corridor Image – View No. 1
Site Development Calculations by Fritzlen Pierce Architects
Reduced Plan Set dated December 17, 2007
Attachment A
Attachment B
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