HomeMy WebLinkAboutEver Vail Land Use Plan Amendment 07_14_08 MEMORANDUM
TO: Planning and Environmental Commission
FROM: Community Development Department
DATE: July 14, 2008
SUBJECT: A request for a recommendation to the Vail Town Council
to review the Vail Land Use Plan map, pursuant to Section 8-3, Vail Land Use Plan to allow for a change in the land use designation from Community Office to Lionshead Redevelopment Master
Plan for properties known as “Cascade Crossing” and “Vail Professional Building” (Future “Ever Vail”), located at 953 and 1031 South Frontage Road West/unplatted (A complete legal description
is available for inspection at the Town of Vail Community Development Department), and setting forth details in regard thereto. (PEC080036)
Applicant: Town of Vail
Planner: Nicole
Peterson
______________________________________________________________________
DESCRIPTION OF THE REQUEST
The applicant, Town of Vail, is requesting a recommendation from the Planning
and Environmental Commission to the Vail Town Council regarding an amendment to the Vail Land Use Plan map that would change the designation from Community Office to Lionshead Redevelopment
Master Plan for the properties known as “Cascade Crossing” and “Vail Professional Building” (Future “Ever Vail”), located at 953 and 1031 South Frontage Road West (See Attachment A:
Subject Property Existing Land Use Map and Attachment B: Subject Property Proposed Land Use Map).
Staff recommends the Commission forward a recommendation of approval to the Town Council
on the proposed map amendment.
II. BACKGROUND
On December 11, 2006, the Planning and Environmental Commission forwarded a recommendation of approval to the Vail Town Council for
a proposed amendment to the Lionshead Redevelopment Master Plan to amend the Lionshead Study Area Boundaries to include the subject properties located at 953 and 1031 South Frontage
Road West (Attachment C: PEC minutes of December 11, 2006).
On February 6, 2007, the Vail Town Council adopted Resolution 4, Series of 2007 (Attachment D: Resolution 4, Series of 2007),
amending the Lionshead Study Area Boundaries to include the subject properties located at 953 and 1031 South Frontage Road West (Attachment E: Council minutes of February 6, 2007).
III. ROLES OF THE REVIEWING BOARDS
Vail Land Use Plan Amendments
Planning and Environmental Commission:
Action: The Planning and Environmental Commission is advisory to the
Town Council. The Planning and Environmental Commission shall review the proposal and make a recommendation to the Town Council on the consistency of the proposed amendment with applicable
review criteria and the policies, goals and objectives outlined in the Vail Land Use Plan and other applicable master plan documents.
Design Review Board:
Action: The Design Review
Board has no review authority on Land Use Plan amendments.
Town Council:
Action: The Town Council is responsible for final approval/denial of a Vail Land Use Plan amendment.
The Town Council shall review and approve the proposal based on the consistency of the proposed amendment with applicable review criteria and the policies, goals and objectives outlined
in the Vail Land Use Plan and other applicable master plan documents.
IV. APPLICABLE PLANNING DOCUMENTS
Vail Land Use Plan (in part)
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.
The Vail Land Use Plan contains the
following goals:
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.
1.5 Commercial strip development of the Valley should be avoided.
1.6 Development proposals on
the hillsides should be evaluated on a case by case basis. Limited development may be permitted for some low intensity uses in areas that are not highly visible from the Valley floor.
New projects should be carefully controlled and developed with sensitivity to the environment.
1.7 New subdivisions should not be permitted in high geologic hazard areas.
1.8 Recreational
and public facility development on National Forest lands may be permitted where no high hazards exist if:
a) Community objectives are met as articulated in the Comprehensive Plan.
b) The
parcel is adjacent to the Town boundaries, with good access.
c) The affected neighborhood can be involved in the decision-making process.
1.9 National Forest land which is exchanged,
sold or otherwise falls into private ownership should remain as open space and not be zoned for private development.
1.10 Development of Town owned lands by the Town of Vail (other
than parks and open space) may be permitted where no high hazards exist, if such development is for public use.
1.11 Town owned lands shall not be sold to a private entity, long term
leased to a private entity or converted to a private use without a public hearing process.
1.12 Vail should accommodate most of the additional growth in existing developed areas (infill
areas).
1.13 Vail recognizes its stream tract as being a desirable land feature as well as its potential for public use.
2.0 Skier/Tourist Concerns
2.1 The community should emphasize its role
as a destination resort while accommodating day skiers.
2.2 The ski area owner, the business community and the Town leaders should work together closely to make existing facilities
and the Town function more efficiently.
2.3 The ski area owner, the business community and the Town leaders should work together to improve facilities for day skiers.
2.4 The community
should improve summer recreational and cultural opportunities to encourage summer tourism.
2.5 The community should improve non-skier recreational options to improve year-round tourism.
2.6 An
additional golf course is needed. The Town should work with the down valley communities to develop a public golf course as well as other sports facilities to serve the regional demand
for recreational facilities.
2.7 The Town of Vail should improve the existing park and open space lands while continuing to purchase open space.
2.8 Day skiers need for parking and
access should be accommodated through creative solutions such as:
a) Increased busing from out of town.
b) Expanded points of access to the mountain by adding additional base portals.
c) Continuin
g to provide temporary surface parking.
d) Addition of structured parking.
3.0 Commercial
3.1 The hotel bed base should be preserved and used more efficiently.
3.2 The Village and
Lionshead areas are the best location for hotels to serve the future needs of the destination skiers.
3.3 Hotels are important to the continued success of the Town of Vail, therefore
conversion to condominiums should be discouraged.
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.)
4.4 The connection between the Village Core and Lionshead
should be enhanced through:
a) Installation of a new type of people mover.
b) Improving the pedestrian system with a creatively designed connection, oriented toward a nature walk, alpine
garden, and/or sculpture plaza.
c) New development should be controlled to limit commercial uses.
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.
5.2 Quality time-share units should be accommodated to help keep occupancy rates up.
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.
5.4 Residential growth
should keep pace with the marketplace demands for a full range of housing types.
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.
Sub-section 6.4 of the Vail Land Use Plan outlines the definitions of Land Use Categories referenced on the Land Use map:
CO – Community Office
This area is to include primarily
office uses of all types. Some limited commercial uses, such as retail businesses; including general merchandise, apparel and accessories and auto service facilities would also be permitted.
LRMP
- Lionshead Redevelopment Master Plan
Included in this category are those properties which are identified as being included in the Lionshead Redevelopment Master Plan boundaries. Properties
located within this land use category shall be encouraged to redevelop, per the Master Plan recommendations, as it has been found that it is necessary in order for Vail to remain a competitive
four-season resort. Uses and activities for these areas are intended to encourage a safe, convenient and an aesthetically-pleasing guest experience. The range of uses and activities
appropriate in the Lionshead Redevelopment Master Plan (LRMP) land use category may include skier and resort services, ski lifts, ski trails, base facilities, public restrooms, ticket
sales, clubs, public plazas, open spaces, parking and loading/delivery facilities/structures, public utilities, residential, lodges, accommodation units, deed restricted employee housing,
retail businesses, professional and business offices, personal services, and restaurant uses.
Sub-section 8.3.C of the Vail Land Use Plan outlines the amendments procedures for proposed
changes to the Plan. The amendment process is one which is intended to assure the Plan’s effectiveness with periodic updates to reflect current thinking and changing market conditions.
The process includes amendments which may be initiated in any of the following three ways:
By the Community Development Department
By the Planning and Environmental Commission or Town
Council
By the Private Sector
Pursuant to Sub-section 8.3.A, in part, (an application initiated by the Community Development Department),
“The Community Development Department should
update and revise the Plan every three to five years, whenever possible. However, if the plan is not updated within such time frame, this shall not jeopardize the validity of the plan.
This should include analysis of the goals and policies; update of the forecasting model and review and revision of the Land Use Plan map. The Community Development Department would
then make recommendation for proposed changes to the Planning and Environmental Commission where these changes would then be considered in a public hearing format. The Planning and
Environmental Commission would then make recommendations to the Town Council,
which would also hold a public hearing on the proposed changes. If adopted, the changes would then become a part of the Plan.”
An amendment to the Vail Land Use Plan shall be approved
by the Vail Town Council upon passage of a resolution.
V. REVIEW CRITERIA
Staff is proposing the Land Use Plan map amendments, pursuant to Section 8.3.A Community Development Department
Amendments, Vail Land Use Plan, for the purpose of maintaining consistency between the Lionshead Redevelopment Master Plan (LRMP) and the Vail Land use Plan map. The two parcels that
are to be amended, from Community Office to LionsHead Redevelopment Master Plan designation, are currently within the Lionshead Redevelopment Master Plan Area (Attachment F: Map A Study
Area).
The two subject properties are also referenced in the LRMP, through the adoption of Resolution 4, Series of 2007 (Attachment D) and are slated for re-development under the
Lionshead Redevelopment Master Plan. Therefore, Staff is proposing the amendments to the Vail Land Use Plan map in order to bring the Plan up to date with the currently adopted Lionshead
Redevelopment Master Plan.
VI. STAFF RECOMMENDATION
The Community Development Department recommends the Planning and Environmental Commission forwards a recommendation of approval
of the proposed Land Use Plan map amendments to the Vail Town Council. Staff’s recommendation is based upon review of criteria outlined in Section V of this memorandum.
Should the
Planning and Environmental choose to forward a recommendation of approval to the Vail Town Council, Staff recommends the Commission makes the following motion:
“The Planning and Environmental
Commission recommends approval to the Vail Town Council to review the Vail Land Use Plan map, pursuant to Section 8-3, Vail Land Use Plan to allow for a change in the land use designation
from Community Office to Lionshead Redevelopment Master Plan for properties known as “Cascade Crossing” and “Vail Professional Building” (Future “Ever Vail”), located at 953 and 1031
South Frontage Road West.”
VII. ATTACHMENTS
Subject Property Existing Land Use Map
Subject Property Proposed Land Use Map
PEC minutes of December 11, 2006
Resolution 4, Series of
2007
Council minutes of February 6, 2007
Map A Study Area (Lionshead Redevelopment Master Plan Area)
ATTACHMENT A
ATTACHMENT B
ATTACHMENT C:
PEC minutes of December 11, 2006 and
All sequential, previous meeting discussions regarding the request
PLANNING AND ENVIRONMENTAL COMMISSION
PUBLIC MEETING
December
11, 2006
1:00pm
TOWN COUNCIL CHAMBERS / PUBLIC WELCOME
MEMBERS PRESENT MEMBERS ABSENT
Doug Cahill Chas Bernhardt
Dick Cleveland Anne Gunion
Bill Jewitt
Rollie Kjesbo
Bill
Pierce
Site Visits:
None
Public Hearing – Town Council Chambers
2. A request for a final recommendation of a proposed amendment to the Lionshead Redevelopment Master Plan, pursuant
to Section 2.8, Adoption and Amendment of the Master Plan, Lionshead Redevelopment Master Plan, to amend the Lionshead Study Area Boundaries, and Chapter 5, Detailed Plan Recommendations,
to include the study “West Lionshead” area, generally located at 646, 862, 890, 923, 934, 953, 1000, and 1031 South Frontage Road West/Lot 54 and Tract K of Glen Lyon Subdivision, Tracts
C and D, Vail Village Filing 2, and several unplatted parcels (a more complete legal description is available at the Community Development Department), and setting forth details in regard
thereto. (PEC06-0008)
Applicant: Vail Resorts Development Company, Town of Vail, and Glen Lyon Office Building General Partnership
Planner: Warren Campbell
ACTION: Recommendation
of Approval
MOTION: Kjesbo SECOND: Cleveland VOTE: 4-1-0
Warren Campbell presented an overview of the application and the staff memorandum.
Jay Peterson, representing Vail Resorts,
made a presentation on behalf of the applicant. Mr. Peterson gave a brief presentation on the history of the application and the revisions made to the proposed amendment in response
to the input received to date.
There was no public comment.
Dick Cleveland inquired about the appropriateness of the information illustrated on Figure 5-25 and the ability of the Commission to enforce the height
differences shown on a proposed project. He believed that the height of any future buildings needed to be responsive to the site.
Warren Campbell stated that he believed Figure 5-25
would be adequate for the Master Plan in allowing the Commission and architects flexibility in interpreting the stepping of a proposed building in height as it went west.
Bill Jewitt
expressed concerns about tall buildings on the west side of Red Sandstone Creek. He believes that the proposed amendment fails to meet the criteria in the Lionshead Redevelopment Master.
Mr. Jewitt would rather see an SDD for this area of Town rather that a master planned approach to development.
Bill Pierce expressed concerns that the lines on the figures crossed
the South Frontage Road and thus affected the Glen Lyon Office Building site. The lines on the plans will be amended.
Doug Cahill asked to see that the tapering down of the buildings
taper down to four stories maximum on the west end of the master plan area.
Warren Campbell referenced the proposed figures and maps and recommended that the illustrations be amended
to reflect the concerns of the Commission with regard to building height.
ATTACHMENT D: Resolution 4, Series of 2007
RESOLUTION NO. 4
Series of 2007
RESOLUTION 4, SERIES OF 2007, A RESOLUTION TO AMEND CHAPTER 4, RECOMMENDATIONS - OVERALL STUDY AREA AND
CHAPTER 5, DETAILED PLAN RECOMMENDATIONS, LIONSHEAD REDEVELOPMENT AMSTER PLAN, PUSUANT TO SECTION 2.8, ADOPTION AND AMENDMENT OF THE MASTER PLAN, LIONSHEAD REDEVELOPMENT MASTER PLAN,
TO INCLUDE TWO NEW PARCELS AND AMEND THE TEXT OF THE MASTER PLAN FOR THE AREA IDENTIFIED AS “WEST LIONSHEAD”, AND SETTING FORTH DETAILS IN REGARD THERETO.
WHEREAS, on December 15, 1998,
the Vail Town Council adopted the Lionshead Redevelopment Master Plan; and
WHEREAS, on April 6, 1999, the Vail Town Council adopted Ordinance 3, Series of 1999, which amended the Zoning
Regulations and created Lionshead Mixed Use 1 and Lionshead Mixed Use 2 Districts; and
WHEREAS, Section 2.8 of Master Plan outlines a procedure for amending the Master Plan; and
WHEREAS,
the Town of Vail Planning and Environmental Commission has held a public hearing on the proposed amendment on December 11, 2006, and has forwarded a recommendation of approval, with
modifications, of the amendment to the Town Council by a vote of 4-1-0 (Jewitt opposed); and
WHEREAS, the purpose of this amendment is to include two new parcels and amend the text
of the Master Plan for the area identified as “West Lionshead” to facilitate the redevelopment of the area and creation of a new portal to the mountain; and
WHEREAS, the Town Council
finds that the proposed amendment improves and enhances the effectiveness of the Master Plan without negatively affecting the goals, objectives, and policies prescribed by the Master
Plan.
NOW, THEREFORE, BE IT RESOLVED BY THE TOWN COUNCIL OF THE TOWN OF VAIL, COLORADO:
The Town Council of the Town of Vail hereby amends the Lionshead Redevelopment Master Plan as
follows:
(in part)
CHAPTER 4
Recommendations – Overall Study Area
This section of the master plan addresses issues that affect Lionshead as a whole. These issues – and recommendations to
address them - should be considered in all planning and policy decisions as Lionshead redevelops.
4.1 Underlying Physical Framework of Lionshead
The Lionshead resort area (that portion
of the study area north of Gore Creek) is a mixed-use urban environment with several discernible land-use sub-areas, or “hubs” (see Map N). Although the hubs overlap somewhat, there
is no consistent and comprehensive pedestrian connection between them. The primary goal of the master plan is to create a visually interesting and functionally efficient pedestrian environment
that connects the hubs to create a cohesive and memorable resort environment.
4.1.5 West Lionshead – Residential/Mixed-Use Hub
The western end of Lionshead, currently undeveloped, is
home to parking lots, the Vail Associates service yard, the Vail sanitation plant, the old town shops, a former gas station, the Vail Professional Building, and Cascade Crossing. This
area of Lionshead is generally under utilized and from an aesthetic standpoint is not in keeping with what the Town would like to see Lionshead become as it redevelops in the coming
years. The Town of Vail does place a high value on maintaining the office and retail areas in West Lionshead and any redevelopment should reasonably increase the square footage of existing
office and have “no net loss” of retail square footage in West Lionshead.
With their recent acquisition of additional properties in this area, Vail Resorts has the opportunity to bring
lift service to this part of Lionshead. Lift service brings with it great potential for the re-development of this area and in doing so expand all of Lionshead to the west with improved
pedestrian connections, new retail and office activity and other improvements. While lift access will certainly energize this area during the winter months, attention should be given
to creating a year-round attraction within this area of Lionshead (see detailed plan recommendations in Chapter 5)
The master plan recommends that this hub become a residential/ mixed
use area with an emphasis on meeting the needs of both the local community and our guests. Appropriate uses could include high density residential development, lodging, community and
visitor based office and retail space, employee housing and parking, bus or transit functions and a ski lift connection to Vail
Mountain. The catalyst for this mixed use hub is ski lift access to Vail Mountain. Consideration should be given to integrating employee housing into the redevelopment of West Lionshead
in accordance with the Town’s employee housing policies and regulations. To the extent possible development patterns in this area should reflect north-south orientation of buildings,
visual penetrations to the mountain, and a pedestrian oriented environment. The degree of north-south building orientation may be difficult given the relatively narrow east-west orientation
of this area. In addition, the introduction of ski lift access in this location creates a catalyst for an structured public parking facility. All service and delivery demands created
by development in this area shall be accommodated on-site.
The site will continue to accommodate the existing and potentially expanded functions of the Vail sanitation plant. The mountain
service yard could be reduced in size, as some functions can be moved to less central locations. It may also be possible to relocate the entire mountain service yard to a new location
in the West Lionshead area which would allow for greater flexibility in the redevelopment of this site. However as the area develops it is critical that new uses be connected to the
primary pedestrian corridors and that they be served by the Town of Vail in-town transit system.
4.5 Public Transportation
An efficient transit system is critical to the character and
environmental quality of any pedestrian-oriented resort. Goals identified by the master plan regarding transit include:
4.5.1 Connection to West Lionshead
West Lionshead consists of
the West Day Lot, the Vail Associates service center, the sanitation plant, the Holy Cross lot, the former gas station site, the Vail Professional Building, and Cascade Crossing. Because
it is an area of potentially significant growth, it is important that it be fully integrated into the Town of Vail transit system. The West Lionshead properties are at the outside edge
of the acceptable walking distance to the ski yard (1200 feet). With a mixed use development in the area which integrates a ski portal, retail space, office space and residential development,
transit service to this area and interconnections to other portals will be critical to develop in the future. In addition, the update of the Vail Transportation Master Plan shall provide
direction on the ultimate location of a Lionshead Transit Facility along with needed interconnections between ski portals, regional transit stops, and other transportation modes. The
addition of a ski lift in this area would make this area more viable to redevelopment as it would be within the acceptable walking distance of a lift (1,200 feet).
4.5.2 Maximum Efficiency
and Utilization
The following recommendations are made to enhance the efficiency and
functionality of the Lionshead transit connections in anticipation of future redevelopment in the area:
4.5.2.1 Relocate the Regional Transit Stop
It is recommended that the Lionshead
regional transit stop, currently located at the Lionshead Place cul-de-sac, be relocated to the proposed north day lot transportation center. This will provide a Lionshead connection
between the regional transit system and the Town of Vail transit system. In addition, visitors and employees coming to Lionshead by regional bus will arrive at a defined portal instead
of the current “back door” on Lionshead Place. Finally, this will remove the large regional buses from West Lionshead Circle and Lionshead Place. It may be possible to locate elements
of a regional transit stop in the West Lionshead area in conjunction with a new ski lift and parking facility. However, given its location on the periphery of Lionshead, this area may
not be the most viable location for a regional transit stop. Notwithstanding the above, facilities for skier drop-off, private shuttle vans and Town of Vail in-town buses should be
included in the design of the ski lift and parking facility. In 2006, the Town of Vail initiated an update of the Vail Transportation Master Plan. In addition, the Town initiated
a development competition for the Lionshead Parking Structure redevelopment, which would include a transit facility. It is anticipated that the Transportation Master Plan update along
with the conclusion of the Lionshead Parking Structure redevelopment process will provide direction on the ultimate location for a Lionshead Transit Facility and/or the type of transit
facilities that may be necessary in West Lionshead.
4.6 Vehicular and Pedestrian Circulation
4.6.1 Interstate Highway 70
I-70 is the primary vehicular circulation corridor for the
Vail Valley and is critically important to the economic health of the Vail community. It does, however, create both a visual and physical division between the south and north sides
of Vail, as well as consuming a significant amount of land. As Vail continues to grow over time it is strongly recommended that the ideas of potentially burying or bridging I-70 through
the Town of Vail be studied and the potential benefits and impacts considered. Specifically, consideration should be given to securing the air-rights over I-70 so that future development
and circulation scenarios are not precluded.
4.6.2 South Frontage Road
Recommendations outlined below address potential re-alignment of portions of the frontage road, ingress and egress
improvements, bicycle/ pedestrian improvements, and visual improvements. For
a detailed discussion of capacity and the impacts of future development on the frontage road, see the traffic impact study contained in appendix A. Figure 4-9 depicts potential redevelopment
without the realignment of the Frontage Road while Figure 4-9a depicts redevelopment with a partial realignment of the Frontage Road.
4.6.2.1 Potential Realignment
The concept of realigning
the South Frontage Road at the western end of the study area grew out of public discussions about land development and traffic flow in West Lionshead. Relative to traffic flow, realignment
will remove the conflict that now exists between through-traffic and mountain service vehicles (snow-cats and snowmobiles) entering and exiting the Vail Associates service yard. Realignment
will position the road to the north of most new development, thus reducing the potential for conflicting turning movements.
Regarding future land use, the realignment of South Frontage
Road will allow the west day lot and the service yard to be combined into a contiguous development parcel. This is an important consideration for the development conceptually depicted
in figure 4-9a, and it would be necessary if the service yard property is used for a secondary public parking facility or other uses. Any existing parking on the West Day Lot must be
replaced within the Lionshead study area. Through the Transportation Master Plan update it is anticipated that a significant traffic control device will need to be installed in the West
Lionshead area. Such a device may include a round about.
Specific considerations regarding realignment are.
a. Proposed Alignment
The proposed realignment of the South Frontage
Road is depicted in figure 4-9a. Critical design issues include the width of the road and the radius of the curves. Both of these factors will be important in reducing the speed of
vehicles entering the Lionshead area and the amount of land consumed by the two curved road sections. Cooperation between property owners, developers, the Town of Vail, and the Colorado
Department of Transportation will be necessary to implement the realignment of the Frontage Road.
b. West Lionshead Circle Connection
It is proposed that West Lionshead Circle connect
back to the frontage road at the west side of the Vail Spa. The alignment depicted in figure 4-9a terminates perpendicular to the frontage road and does not
require the acquisition of private property. A new parcel of developable land, suitable for offices or non-resort retail, would be created on the southeast corner of this intersection.
c.
Forest Road Connection
Forest Road could be realigned to cross through the newly created development parcel, providing access to that site and connecting at right angles to the frontage
road. Another alternative that should be considered is to connect Forest Road to West Lionshead Circle via the existing Frontage Road right-of-way.
d. Transit and Emergency Vehicle
Corridor
A transit and emergency vehicle corridor should remain in the existing alignment of the frontage road. This connection is necessary to provide a through-transit route to the
west end of Lionshead and also keeps in place the existing utility corridor.
e. Feasibility of Realignment
The ability to realign the frontage road will be heavily influenced by costs,
CDOT (Colorado Department of Transportation), and the Federal highway administration. Future west Lionshead developments will require significant upgrades and widening of South Frontage
Road, potentially including the widening or reconstruction of the bridge over Red Sandstone Creek. The cost of realigning the frontage road is in addition to the mandatory costs of improving
the road.
Future Frontage Road Re-alignment
The opportunity may exist to re-locate the Frontage Road the full length of the West Lionshead planning area. The benefit of this alternative
would be to eliminate the “Frontage Road barrier” between the Holy Cross site and the Vail Professional Building. While this alternative would require coordination with other surrounding
land owners, it could warrant further study and evaluation in the future.
Simba Run Underpass
Currently the Town of Vail has only two north/south access points between the North Frontage
Road and South Frontage Road between Main Vail and West Vail. It has been contemplated that an additional north/south connection be established west of Cascade Crossing. The need for
this underpass will be accelerated as a result of the Town’s redevelopment plans for Timber Ridge, West Vail and West Lionshead. The redevelopment of the West Lionshead area should
be done in a
manner that encourages this new connection to be established in the future. It is recommended that the proposed amendments to the Vail Transportation Master Plan provide direction on
when public improvements on the Frontage Road need to occur and how they are paid for between public and private funds. The current boundaries of the Lionshead Urban Renewal Authority
should be amended to include the location of the Simba Run underpass.
Parking
Public Parking
Potential New Parking Sites
To respond to the projected parking demand increase discussed
in the traffic study, it is strongly recommended that all town-wide parking opportunities be examined or re-examined prior to any final planning or parking construction. Specific public
parking opportunities in Lionshead include:
a. Lionshead Parking Structure
The existing Lionshead parking structure is a logical location for expanded public parking because it is already
owned by the Town of Vail. Also, the structure is conveniently located between the proposed civic center on the east and the main portal to the Lionshead pedestrian mall on the west.
No other location offers visitors such ease of access.
A self-ventilating split deck structure, the garage has six half decks, each holding approximately 200 vehicles (1,200 spaces
in total). The addition of one complete level would increase the structure by 400 spaces, two complete new levels by 800 spaces.
Snow removal is an issue in the addition of new decks.
The top deck of the structure is cleared manually with front-end loaders. Additional decks will make it impossible to continue this method, as the internal dimensions of the structure
will not accommodate front-end loaders. In addition, the construction of a new delivery staging area on the west end of the structure will remove the snow storage area presently used.
Alternatives include heating the upper deck, providing for an alternate snow removal access road to the upper deck, and construction of a roof over the entire structure.
Public input
during the master plan process has indicated the importance of the eastward view, across the top of the parking structure, toward the Vail Village as motorists
travel east along the South Frontage Road and I-70. Future expansion plans of the Lionshead parking structure should consider the potential impacts expansion could have on this view
plane.
Also an issue is the necessary structural reinforcement of the existing facility to support the weight of additional decks.
b. West Lionshead
The construction of a new public
parking facility at the west end of Lionshead has been a planning consideration since the completion of the Vail Transportation Master plan in 1991. This site is currently undeveloped
(except for the Vail Associates maintenance yard) and is large enough to meet projected parking demand. It is well located in relation to the potential new eastbound I-70 access ramps.
The viability of a new public parking facility in this location would be enhanced by bringing lift service to this area. The construction of a new public parking facility would address
the existing deficiency of off-street parking on peak days and the shifting demand of parking created by the introduction of a new ski lift in West Lionshead. It is anticipated that
the new public parking structure would contain a approximately 400 public parking spaces, which would be in excess of any parking requirements generated by proposed development. The
update of the Vail Transportation Plan should provide final direction on the location and quantity of additional public parking spaces in the Town of Vail. The location of additional
public parking should consider where parking is most optimal for both guests and employees, year round utilization, mountain operations, and overall traffic circulation.
Given the
location for this parking facility, it had been assumed that regular transit or shuttle service would be necessary because of its distance from the retail core area and the ski yard
(greater than a 1200-foot walking radius). However, the location of the parking structure would be proximate to the new lift and as such the need for regular shuttle service would be
minimized. However, some provisions for bus stops and/or a transit facility should be considered for the parking structure.
4.9 Housing
4.9.4 Potential Housing Sites
Following are
specific sites that have been identified as suitable for locals
and employee housing (see Map W).
Vail Associates Service Yard Holy Cross Site, Vail Professional Building, Cascade Crossing, North Day Lot, and the former gas station site
All redevelopment
in West Lionshead will need to conform to the Town’s housing policies and requirements. In order to create activity and vibrancy in West Lionshead it is appropriate to include some dispersed
employee housing opportunities for permanent local residents in proposed developments in the area consistent with these policies.
Perhaps the most promising locations to replace the
Sunbird affordable housing project and to conform to the Town’s housing policies and requirements for new employee housing generation in Lionshead are the North Day Lot, Vail Associates
service yard, and Holy Cross site. However, housing is not the only use these three properties will need to support. The North Day lot is considered to be the preferred location for
a significant housing project in Lionshead to replace the Sunbird affordable housing project and provide housing for new employee generation. The North Day Lot may also need to accommodate
a transit center on the ground level of the development site. Additionally, it may be necessary to develop a higher revenue-generating product on a portion of the Vail Associates service
yard, Holy Cross, Vail Professional Building, and Cascade Crossing sites in order to defray the cost of road and infrastructure improvements. In planning the site, the following issues
need to be considered:
a. Density
The site offers a unique opportunity to achieve significant density. While it is important that buildings here be visually consistent with the overall
character of Lionshead, the desire to maximize the housing potential may make appropriate the following deviations from standard development parameters. First, it may be appropriate
to allow for a greater overall building height than is otherwise allowed under the Lionshead Architectural Design Guidelines. Any increase in building height will need to be reviewed
on a case by case basis by the Town of Vail, and any eventual building height will still need to be visually appropriate for this location. Second, it is recommended that the standards
for density (units per acre) be increased at this location to allow for a greater number of employee housing units. Third, it may be appropriate to reduce the parking requirements for
employee housing at this location.
Red Sandstone Parking Area
The parking lot and Town of Vail transit stop at the base of the Red Sandstone Elementary school were identified as a potential site for employee or locals housing because of its proximity
to the elementary school, the I-70 pedestrian overpass and the transit stop. However, the access (vehicular and pedestrian), safety and functional programming needs of the elementary
school must take priority in any potential housing development scenario.
Old Town Shops
The Old Town Shops, located just west of the Vail sanitation plant, were identified as potential
employee housing locations during the master planning process. There are, however, other significant demands on this site, including potential expansion of the sanitation plant and
the need for a new snowcat mountain access route from the Vail Associates service yard. In addition, the presence of the sanitation plant on one side and the existing gas station on
the other reduces the desirability of this location for employee or locals housing.
(in part)
CHAPTER 5
Detailed Plan Recommendations
This section of the Lionshead Master plan examines
individual parcels and groups of parcels within the Lionshead study area, excluding the residential properties on the south side of Gore Creek. The intent of this chapter – and the Master
plan as a whole - is to identify important functional relationships and visual objectives within the district and to propose a framework for the long-term redevelopment of Lionshead.
The document does not intend to limit or eliminate ideas relating to specific parcels; any proposals consistent with this framework should be considered even if they are not anticipated
in this document. The parcels addressed here are organized generally from east to west, starting with the civic hub on the eastern end of the parking structure.
5.9 North Day Lot
The
north day lot should be developed as a community transportation center to consolidate skier drop-off, local and regional transit, local and regional private shuttles, and charter bus
drop-off and pick-up (see figure 5-13). A below-grade service and delivery facility could be constructed underneath the transit facility. By relocating these functions from their existing
locations to one easily accessible location, this would improve the quality of vehicular and pedestrian circulation in Lionshead and create a significant new pedestrian portal into the
center of the Lionshead retail
mall. Based upon the results of the traffic study (see appendix A), the conceptual program for this facility is as follows:
Skier drop-off: Nine spaces are recommended at a minimum,
but more should be built if possible to accommodate other program elements.
Town of Vail transit: Two bus spaces are recommended to accommodate the West Vail transit loop and the possibility
for an eastbound in-town shuttle stop.
Regional transit: One bus space is recommended
Charter buses: Three to four bus spaces are recommended.
Local and regional shuttles: Four shuttle
van spaces are recommended at a minimum.
A critical consideration in the planning and design of this facility will be its impact on the adjacent Landmark Tower and Townhomes and the
Westwind. Depicted in figure 5-13a, a linear building is recommended at the southern edge of the site to screen the lower levels of the Landmark Tower from the transit center. This
facility could house a bus shelter and waiting area, an information center, public restrooms, a small food and beverage operation, and an elevator core to the pedestrian mall level for
ADA access needs. To the east, earthwork, landscaping, and/ or other screening measures should be considered to buffer the Westwind. A more comprehensive solution is to cover the facility
with another level or two of development – perhaps for offices or employee housing - or with a roof. (Memorable European antecedents exist for grand, covered transportation centers.)
Specifically, the design of the transportation center should address all impacts: visual, security, sound, and smell that may affect adjacent properties. Both the Westwind and the
Landmark should be closely involved in the transit center planning and design process.
Since the adoption of the Lionshead Master Redevelopment Plan, plans were developed to locate
a Transit Center at the North Day Lot. Integrating the number of uses mentioned above and addressing the neighborhood concerns regarding a transit center prompted the Town of Vail to
evaluate alternative locations for a transit center. Alternative locations include:
West Lionshead
Lionshead Parking Structure
North Day Lot
In 2006, the Town of Vail initiated an
update of the Vail Transportation Master Plan. In addition, the Town initiated a development competition for the Lionshead Parking Structure which would include a transit facility.
It is recommended that the Transportation Master Plan update along with the conclusion of the Lionshead Parking Structure RFP process provide direction on the ultimate location for
a Lionshead Transit Facility.
5.17 West Day Lot/ Vail Associates Service Yard/ Holy Cross Site/Gas Station Site /Vail Professional Building/ Cascade Crossing
Planning for the western end of Lionshead must consider
two different scenarios: the realignment of South Frontage Road and its retention in the existing alignment.
While the introduction of lift service is viable in either of these Frontage
Road alternatives, site design will vary depending upon what happens to the Frontage Road alignment. See Figures 4-9a, and 4-9b for the Frontage Road realignment alternatives. Notwithstanding
these different Frontage Road scenarios there should be an increase of existing office square footage and “no net loss” of retail square footage as a result of the redevelopment of these
parcels. Higher densities and building heights may be appropriate in this area, particularly to encourage the development of employee housing. However, any development must meet the
overall character and visual intent of the master plan and be compatible with the adjacent existing development of the Marriott and the Vail Spa.
As compared to a separate, free-standing
portal, West Lionshead is considered a part of the greater Lionshead area. In order for this area to be successful, it is important to have a strong pedestrian connection with the rest
of Lionshead. A strong connection along the Gore Creek corridor already exists. Streetscape improvements along West Lionshead Circle between Concert Hall Plaza (currently the western
end of Lionshead retail influence) and the Ritz-Carlton Residences will strengthen existing conditions, and in doing so, improve the viability of mixed uses in West Lionshead. Improvements
to street lighting, walking surfaces, seating areas and public art are just some examples of what could strengthen this corridor and in doing so further integrate this area with the
rest of Lionshead.
The development of a strong pedestrian connection between the Lionshead Core area and the western side of Lionshead will encourage pedestrian activity in this area
and in doing so will energize all of West Lionshead. During the winter months the ski lift and associated parking will generate significant pedestrian traffic and activity. However,
consideration should be given to how West Lionshead can be an active and vibrant place year-round. This could be accomplished in any number of ways. For example, quality architecture
and the creation of appealing outdoor spaces in and of itself will encourage people to visit this area. This could be reinforced by a well-crafted program of specialty retailers, offices,
and restaurants. An active program of public art, residential units that are used for “artists in residence”, a culinary school, improved access to and utilization of Gore Creek or
Red Sandstone Creek for fishing or other purposes or specific recreation features such as a climbing wall are just some examples of design elements or land uses that could create a catalyst
for activity. In conjunction with any application to development a new ski lift, a retail/commercial market study which analyzes the area for
the appropriate amount of square footage of retail/commercial that should be included in the redevelopment of West Lionshead shall be provided.
It is assumed that the development
standards of Lionshead Mixed Use 1 or 2 will guide the design of redevelopment in this area. Notwithstanding the height allowances of these zone districts, building height and massing
shall be responsive to the Gore Creek corridor, the Interstate, and how building massing transitions at the western end of Lionshead. Buildings at the westernmost end of West Lionshead
shall gradually “step down” from the maximum allowable height limits of the Lionshead Mixed Use zone districts. Figure 5-25 provides a general depiction of how building height shall
gradually lower at the western end of this study area. The intent of these height standards is that building height reduces by entire floor levels in the locations as generally depicted
on Figure 5-25. Notwithstanding the height allowances depicted on Figure 5-25, buildings fronting directly along Gore Creek and the western end of Lionshead shall express no more than
three to four levels before “stepping back” to taller building mass. On the Interstate side of this area building design shall be articulated to avoid large expanses of shear/unbroken
wall planes.
a. Retention of Existing Frontage Road Alignment
If the Frontage Road remains in its current location the Maintenance Yard/Holy Cross parcels, the Vail Professional Building
and /Cascade Crossing all remain viable development sites. The most viable site for a public parking facility would be the Maintenance Yard/Holy Cross parcels. While other lift locations
are feasible, the old gas station site is a viable location for a base terminal. This location would require a grade separated pedestrian crossing over the Frontage Road to the Maintenance
Yard/Holy Cross parcels. A strong east-west oriented pedestrian corridor with ground floor retail uses would be necessary to create a strong connection between this area and the rest
of Lionshead. Under this Frontage Road scenario the Vail Professional Building and Cascade Crossing could be developed as a contiguous parcel. It is assumed that these parcels would
be re-zoned to Lionshead Mixed Use I. The Holy Cross site and the Vail Professional Building both abut Red Sandstone Creek. Any redevelopment of these parcels should consider how the
Creek can be enhanced and made an asset or amenity of this redevelopment area.
b. Frontage Road Realignment behind the Maintenance Yard and Holy Cross site
The greatest benefit of this
realignment alternative is that it results in one very large and contiguous development parcel and in doing so integrates the Maintenance Yard/Holy Cross site with the West Day Lot by
removal of the barrier created by the existing Frontage Road alignment. It also creates the best pedestrian environment in creating an extension of the Lionshead Retail area in that
it provides the potential to establish a convenient and desirable pedestrian connection to the rest of Lionshead. With this
alternative the most viable site for a public parking facility would still be the Maintenance Yard/Holy Cross parcels. With the re-location of the Frontage Road lift access out of the
old gas station site would not require a grade separated pedestrian crossing to the Maintenance Yard/Holy Cross parcels. However, a grade separated crossing over the re-located Frontage
Road would be needed to link the Holy Cross site with the Vail Professional Building. This alternative would also present the opportunity for relocating and/or enhancing Red Sandstone
Creek to make it more accessible to the community and an aesthetically pleasing water feature. One possibility may be to pond the creek just south of the I-70 corridor and diverting
all or a portion of the flow underneath the new Frontage Road in order to bring “live water” through the western end of the Holy Cross site. Any modification or enhancement to the creek
corridor would be subject to U.S. Army Corp of Engineers approval. A strong east-west oriented pedestrian corridor with ground floor retail uses would be necessary to create a strong
connection between this area and the rest of Lionshead.
5.18 Old Town Shops
The old town shops site had been targeted for a variety of uses throughout the master planning process,
including employee housing, expansion of the Vail sanitation plant, and Vail Associates mountain services. These uses were thought to be appropriate for the site, but it was recognized
they were all not compatible. In 2003 the Eagle River Water and Sanitation District purchased the old town shops site. The site was redeveloped with a surface parking lot. Additionally,
in 2004 Vail Resorts constructed a bridge across the Gore Creek from this site to provide possible future mountain operations access to Vail Mountain.
5.20 Eagle River Water and Sanitation
District
While this parcel would certainly be a viable development site, the costs to relocate uses at this site, particularly the treatment facilities, are very significant. For
this reason it is assumed that the treatment facilities will remain in their existing location. A viable alternative to relocating the entire building would be to relocate the District’s
offices and construct “air-rights” development above and around the treatment facility. _________ ____
ATTACHMENT E: Council minutes of February 6, 2007
Vail Town Council Evening Meeting Minutes
Tuesday, February 6, 2007
6:00 P.M.
Vail Town Council Chambers
The regular meeting of the
Vail Town Council was called to order at approximately
6:00 P.M. by Mayor Rod Slifer.
Members present: Rod Slifer, Mayor
Kent Logan
Greg Moffet
Kim Newbury
Mark Gordon
Kevin Foley
Not
present: Farrow Hitt, Mayor Pro-Tem
Staff Members: Stan Zemler, Town Manager
Matt Mire, Town Attorney
Pam Brandmeyer, Assistant Town Manager
The eleventh item on the agenda was Resolution
4, Series of 2007, a resolution to
amend Chapter 4, Recommendations - Overall Study Area and Chapter 5, Detailed Plan
Recommendations, LionsHead Redevelopment Master Plan, pursuant to
Section 2.8,
Adoption and Amendment of the Master Plan, LionsHead Redevelopment Master Plan,
to include two new parcels and amend the text of the Master Plan for the area identified
as
“West LionsHead.”
Senior Planner Warren Campbell explained that on December 11, 2006, the PEC forwarded a recommendation of approval by a vote of 4-1-0 (Jewitt opposed), to Council
for amendments outlined in Resolution 4, Series of 2007.
The purpose of the amendment would establish the basis by which West LionsHead could be redeveloped with a skier gondola in
the location of the former gas station site and the development of mixed use areas, including housing, retail, and office spaces, to create a new portal to the mountain with all the
typical skier services. Another aspect of the proposed redevelopment includes the possible relocation of the South Frontage Road.
At the January 2, 2007, hearing Council directed staff
to remove Tract K and the other
parcels proposed for inclusion within the LionHead Redevelopment Master Plan by the
town from the proposed text amendments. Staff made those changes to
the proposed
amendment leaving only two parcels proposed for addition into West LionsHead.
Campbell gave a presentation regarding the concerns expressed by Council at the
afternoon
work session regarding employee housing, building height, and transit.
Gordon asked for wording making additional office space a requirement. The resolution
included the wording, “no
net loss”, however, he wished that the Master Plan encourage
additional office space.
Representing Vail Resorts, Keith Fernandez, said he would be amicable to considering a reasonable
increase in office space. Foley clarified the proposed additional lift would not
increase actual skier numbers, just adjust where Vail Mountain is accessed by skiers. Foley said he did not believe the proposal could continue without a Simba Run underpass and desired
stronger language regarding the need for Simba Run in conjunction with any redevelopment in West LionsHead.
Representing Vail Resorts Development Company, Jack Hunn reported LionsHead
was
used for 45% of all skier mountain access. He said development of West LionsHead
could possibly result in more skier days as there would be an increase in the overall bed
base in
the town.
Gordon encouraged including children’s services in the project as it may help to eliminate congestion at Golden Peak. Moffet expressed concern the housing
requirement for
the parcel was being moved elsewhere.
Representing the applicant, Tom Braun said Vail Resorts remained committed to providing employee housing.
Foley moved to table the resolution
with Newbury seconding. The motion failed, 4-2, with
Logan and Foley voting in favor.
Gordon moved to approve the resolution with amendments to the text. Logan seconded.
The proposed
amendments to the text included changes to Sections 4.1.5, West LionsHead - Residential/Mixed Use Hub and 5.17, West Day Lot/Vail Associates Service Yard/Holy Cross Site/Gas Station
Site/Vail Professional Building/Cascade Crossing to have the language state there should be "no net loss" of retail but an increase in office space.
Amendments to Section 4.6.7, Simba
Run, strengthened the language to identify the need for the Simba Run underpass with any redevelopment in West LionsHead.
The final amendment to the text occurred in Section 4.9.4.3,
Vail Associates Service Yard, Holy Cross Site, Vail Professional Building, Cascade Crossing, North Day Lot, and the former filling station site, which changes the text to encourage the
dispersal of employee housing throughout the redevelopment.
Representing the Vail Village Homeowners Association Jim Lamont clarified TIF from the proposal could be used for a Simba
Run underpass.
The motion passed 5-1, Foley opposed.
ATTACHMENT F:
Map A Study Area (Lionshead Redevelopment Master Plan Area)