HomeMy WebLinkAboutEver Vail Land Use Plan Amendment 1
MEMORANDUM
TO: Planning and Environmental Commission
FROM: Community Development Department
DATE: August 11, 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”, “Vail Professional Building” (Future “Ever Vail”), and
“Glen Lyon Office Building” located at 953, 1031 and 1000 South
Frontage Road West/ Lot 54 Glen Lyon Subdivision and unplatted
property (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
______________________________________________________________________
I. 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 properties
known as “Cascade Crossing”, “Vail Professional Building” (Future “Ever Vail”),
and “Glen Lyon Office Building” located at 953, 1031 and 1000 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 for the proposed land use map amendment, based on the
reasons stated in Section V of the memorandum.
II. BACKGROUND
On July 14, 2008 the Planning and Environmental Commission tabled this
application in response to testimony by Attorney Jay Peterson, representing the
Glen Lyon Office Building, General Partnership. Mr. Peterson requested that the
Commission consider including the Glen Lyon Office Building property in the
Land Use Plan amendment. After careful consideration, Staff recommends the
Glen Lyon Office Building property (1000 South Frontage Road) be included in
this application to amend the land use map designation from Community Office
to Lionshead Redevelopment Master Plan for reasons outlined in Section V,
Review Criteria. Please also see attached a letter of support from Vail Resorts
Development Company (Attachment F).
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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, amending the Lionshead Study Area Boundaries to include the subject
properties located at 953 and 1031 South Frontage Road West (Attachment D:
Council minutes of February 6, 2007). Staff has included the relevant sections of
Resolution 4, Series of 2007, in Section IV Applicable Planning Documents.
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
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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.
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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) Continuing to provide temporary surface parking.
d) Addition of structured parking.
3.0 Commercial
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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.
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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:
A. By the Community Development Department
B. By the Planning and Environmental Commission or Town Council
C. By the Private Sector
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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.
Lionshead Redevelopment Master Plan (in part)
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
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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
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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
4.6.2 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
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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
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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.
f. 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.
4.8.3 Public Parking
4.8.3.3 Potential New Parking Sites
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.
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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).
4.9.4.3 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
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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.
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.
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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.
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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.
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 reasons listed below, corresponding to each of the three subject
properties:
1031 South Frontage Road West - “Cascade Crossing” (Future “Ever Vail”)
· Consistency with the Lionshead Redevelopment Master Plan
On February 6, 2007, the Vail Town Council adopted Resolution 4, Series
of 2007, amending the Lionshead Study Area Boundaries to include 1031
South Frontage Road West (See Attachment E: Map A Study Area). In
doing so, the property at 1031 South Frontage Road became regulated
by the Lionshead Redevelopment Master Plan, in particular Sections
listed above (Section IV of this memorandum). Therefore, this land use
amendment provides consistency between the Land Use Map and the
Lionshead Redevelopment Master Plan document.
953 South Frontage Road West - “Vail Professional Building” (Future “Ever Vail”)
16
· Consistency with the Lionshead Redevelopment Master Plan
On February 6, 2007, the Vail Town Council adopted Resolution 4, Series
of 2007, amending the Lionshead Study Area Boundaries to include 953
South Frontage Road West (See Attachment E: Map A Study Area). In
doing so, the property at 953 South Frontage Road became regulated by
the Lionshead Redevelopment Master Plan, in particular Sections listed
above (Section IV of this memorandum). Therefore, this land use
amendment provides consistency between the Land Use Map and the
Lionshead Redevelopment Master Plan document.
1000 South Frontage Road West - “Glen Lyon Office Building”
· Land Use Planning
The current land use designation of the Glen Lyon Office Building
property, Community Office, is simply defined in the Vail Land Use Plan
as follows:
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.
The current designation does not provide site-specific guidance or
recommendations for development or redevelopment of the property
beyond the above definition. Therefore, Staff believes that the proposed
land use amendment of the Glen Lyon Office Building to Lionshead
Redevelopment Master Plan, consistent with the adjacent properties, will
create a consistent framework for redevelopment of this neighborhood by
bringing all three properties under the standards and recommendations
set forth in the Lionshead Redevelopment Master Plan.
· Connectivity
Staff believes the proposed land use amendment of the Glen Lyon Office
Building to Lionshead Redevelopment Master Plan, consistent with the
adjacent properties, will guide development in a pattern of harmony that
will facilitate visual and physical connectivity between the properties. By
creating a consistent pattern of land use in the neighborhood, the Town
will have more latitude to encourage and facilitate connectivity in site
design through the following recommendations set forth in the Lionshead
Redevelopment Master Plan:
o 4.3.1 Visual Connections – As development and redevelopment
occur in Lionshead, it will be vital to protect visual connections to
the ski mountain. These visual relationships strengthen the
identity of Lionshead as an alpine resort and provide a visual
reference that helps Lionshead visitors to find their way throught
the core. Visual connection to the natural environment should be
established utilizing the following techniques: 4.3.1.1 View
Corridors and 4.3.1.2 North-South Orientation of Buildings.
17
o 4.3.2 Physical Connections – Physical connections to the natural
environment are essential to the experiential quality of a mountain
resort. There are several ways to achieve a physical connection
in addition to creating north-south oriented streets [such as]:
4.3.2.1 Landscape and Green belt Corridors, 4.3.2.2 Skier Bridge,
and 4.3.2.3 Access to the South Side of Gore Creek.
o 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 (in part) The West
Lionshead properties are at the outside edge of the acceptable
walking distance to the ski yard. 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 the other portals will be critical to develop in
the future.
· Proximity to adjacent re-development / site design
The Lionshead Redevelopment Master Plan calls for the re-alignment of
the south frontage road from the current location to a configuration
parallel to I-70, along the north property lines of the properties located at
1031 South Frontage Road “Vail Professional Building” and 953 South
Frontage Road, “Vail Professional Building.” The proposed re-alignment
will facilitate a land swap between CDOT and the property owners of
1031 and 953 South Frontage Road. The land swap will place the Glen
Lyon Office building property (1000 South Frontage Road) directly
abutting 1031 and 953 South Frontage Road, where the properties are
today separated by the South Frontage Road Right-of-way.
With the proposed development of “EverVail” abutting the Glen Lyon
Office Building property, as a result of the road re-alignment, Staff
believes the change in land use designation for all three properties will
facilitate consistent design and fluid development in the new planned
neighborhood.
VI. STAFF RECOMMENDATION
The Community Development Department recommends the Planning and
Environmental Commission forwards a recommendation of approval for 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
18
designation from Community Office to Lionshead Redevelopment Master
Plan for properties known as “Cascade Crossing”, “Vail Professional
Building” (Future “Ever Vail”), and “Glen Lyon Office Building” located at
953, 1031 and 1000 South Frontage Road West, for reasons stated in
Section V of Staff memorandum dated August 11, 2008.”
Should the Planning and Environmental choose to forward a recommendation of
approval to the Vail Town Council, based on the reasons stated in Section V of
Staff memorandum dated August 11, 2008 and testimony, Staff recommends the
Commission makes the following findings:
(1) That the amendment is consistent with the adopted goals, objectives
and policies outlined in the Vail comprehensive plan and compatible with
the development objectives of the town; and
(2) That the amendment is compatible with and suitable to adjacent uses
and appropriate for the surrounding areas; and
(3) That the amendment promotes the health, safety, morals, and general
welfare of the town and promotes the coordinated and harmonious
development of the town in a manner that conserves and enhances its
natural environment and its established character as a resort and
residential community of the highest quality (Section 12-3-7 Vail Town
Code -in part).
VII. ATTACHMENTS
A. Subject Property Existing Land Use Map
B. Subject Property Proposed Land Use Map
C. PEC minutes of December 11, 2006
D. Council minutes of February 6, 2007
E. Map A Study Area (Lionshead Redevelopment Master Plan Area)
F. Letter from Vail Resorts Development Company
19
ATTACHMENT A
20
ATTACHMENT B
21
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.
22
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.
23
ATTACHMENT D: 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
24
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.
25
ATTACHMENT E:
Map A Study Area (Lionshead Redevelopment Master Plan Area)
26
ATTACHMENT F: LETTER FROM VAIL RESORTS DEVELOPMENT COMPANY
August 6, 2008
Planning and Environmental Commission
c/o Warren Campbell, AICP
Chief of Planning
Town of Vail
75 South Frontage Road
Vail, Colorado 812620
Re: Glen Lyon Office Building
Dear Commissioners:
I am writing on behalf of Vail Resorts Development Company to offer our support to the
amendments to the Vail Land Use Plan with regard to the Glen Lyon Office Building
(GLOB) property. We believe it makes sense to include the GLOB property in the
Lionshead Redevelopment Master Plan area as the logical extension of the planning area.
Additionally, we support owners of the GLOB property in their pursuit of an amendment
to the Lionshead Redevelopment Master Plan for the GLOB properties inclusion in the
master plan area and any future application to rezone the property to Lionshead Mixed
Use 2. We believe the eventual rezoning of the GLOB property to Lionshead Mixed Use
2 will allow Vail Resorts and the GLOB ownership to redevelop and plan our properties
more creatively and efficiently and in the best interest of both parties.
If you have any questions or comments, please feel free to contact me anytime.
Thank you,
Tom
Thomas MillerThomas MillerThomas MillerThomas Miller
Director of DevelopmentDirector of DevelopmentDirector of DevelopmentDirector of Development
Vail Resorts Development Company
137 Benchmark Road
Avon, CO 81620
(o) 970-754-2544
(m) 970-470-1062
Tmiller1@vailresorts.com
www.evervail.comwww.evervail.comwww.evervail.comwww.evervail.com
www.snow.comwww.snow.comwww.snow.comwww.snow.com