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HomeMy WebLinkAboutTC 031709 draft 030309MEMORANDUM TO: Planning and Environmental Commission FROM: Community Development Department DATE: March 17, 2009 SUBJECT: Final review of Resolution No. 6, Series of 2009, a resolution amending the Vail Village Master Plan, pursuant to Section VIII-C, Adoption, Extensions, and Amendments, Vail Village Master Plan, to allow for mixed-use development on the Vail Village Transportation Center site, located at 241 East Meadow Drive/Parts of Tracts B and C, Vail Village Filing 1 (a complete description is available at the Community Development Department upon request), and setting forth details in regard thereto. (PEC080015) Applicant: Triumph Development, LLC, represented by Rick Pylman Planner: Nicole Peterson ________________________________ ____________________________________________ I. DESCRIPTION OF THE REQUEST The applicant is requesting to amend the Vail Village Master Plan, to allow for mixed-use development on the Vail Village Transportation Center site, through the attached Resolution No. 6, Series of 2009, which includes the following: Revised Section VI. Illustrative Plans – Additional language under the Land Use Plan, Public Facility/ Parking category that allows for mixed use development on the Vail Village Transportation Center site. Revised Section VII. Vail Village Sub-Areas – Updated description of sub-area and addition of development goals under Sub-Area #4, Transportation Center. Revised Exhibits that illustrate the Transportation Center site as one consistent development site that allows mixed use development. Exhibits include: A. Land Use Plan, Vail Village Plan (Include planted buffer in overall site) B. Open Space Plan, Vail Village Plan (Remove portions of the planted buffer) C. Conceptual Building Height Plan, Vail Village Plan (Change height from 3 to 3-4) D. Building Height Profile, Vail Village Plan (Add buildings to profile) II. BACKGROUND On February 5, 2008 the Vail Town Council discussed the development opportunities on the Vail Village Transportation Center Site. The Council unanimously voted (7-0) to direct Staff to provide a Vail Village Master Plan amendment as it refers to the Vail Village Transportation Center. On December 8, 2008, the Planning and Environmental Commission held a work session to discuss the proposed Vail Village Master Plan amendments. The PEC requested more information about the potential, future infill development with regards to building bulk and mass along East Meadow Drive. On February 23, 2009, the Planning and Environmental Commission voted 3-2-1 (Kurz and Viele opposed, Pierce recused) to forward a recommendation of approval of Resolution No. 6, Series of 2009. At the hearing, Winston Associates presented a 3D digital model that illustrated the possible bulk and mass of development on the Transportation Center site, which will be presented at the TC meeting on March 17, 2009. III. VAIL VILLAGE TRANSPORTATION CENTER SITE ANALYSIS Site Description The Transportation Center site is approximately 5 acres (GIS) with approximately 900 linear feet (0.17 mile) of frontage on East Meadow Drive. Currently, the site consists of the Vail Village Transportation Center, Vail Ski Museum, parking structure including ______ parking spaces, ancillary retail and office uses and a planted buffer that provides visual screening and structural support to the south side of the parking structure. The site is across the street from the Tyrolean, Vail Mountain Lodge, Mountain Haus, Slifer Plaza, Austria Haus, Village Center and Solaris (See attachment A, Vicinity Map). Site History 1974-75 - Vail Village Transportation Center built. 1975 – Concrete strength report conducted by Thomas E. Summerlee, Soil and Foundation Engineering. 1976 – Hertz car rental tenant finish. Vail Resorts office tenant finish. Various improvements including sprinkler system, ventilation, paint, signs, lights, outdoor ski rack, planters, benches, TV’s and information kiosk. 1984 – Office finish on top level. 1990 – Report of construction, reinforcing steel and concrete test cylinder conducted by Chen Northern, Inc. Approved conditional use permit for major expansion and renovation including: 420 new parking spaces Reconfigure bus parking and loading Repair structural problems Construct 1,000 square foot visitors center on level 4 Construct 5,000 square foot space for Colorado Ski Museum Right and left turn lanes and 6 foot wide bike lanes Side walks on north, south and west sides Public restroom on west side Three new stairways with landings on south side Increased landscaping Brick paver cross walks on E. Meadow Drive and Vail Valley Drive 1991 – Inspections conducted by Building and Fire to identify safety and structural issues (over 50 issues sited). DRB conditions of 1990 approvals discussed and delegated including paint, stone veneer, stucco over concrete at stairways, hanging baskets, strong recommendation to cut down stair building in front of Vail Information Center and snow storage issue on northeast side. 1993 – Outdoor seating area approved west of the Ski Museum entrance for tenant, ‘Cinnamon Buns’ and outdoor planters and benches approved at all exits. 1996 – Addition of 200 square feet to the existing Transportation Center Building on level 4, to allow for a Greyhound office and conversion of 510 square feet (3 parking spaces) to public lockers and food storage on level 3. Temporary service for Greyhound approved. Containment area in boiler room for spill. 1997 – La Cantina remodel. Conditional use permit (All Mountain Sports) approved for ski storage on level 1. D’Coffee Beanery tenant finish. 1998 – Installation of steel supports for concrete tee’s. Air conditioning installed to all buildings. Installation of snowmelt system decks on the stairs. Enclose Eagle County Transit booth. 1999 – Vail information center remodel. Customer phone service center. 2000 – Vail Chamber and Business Association office remodel. Conditional use permit approved for video game arcade on level 4. 2001 – Janitor closet remodel. Installation of snowmelt to driveway. Change to flag pole color and number (6 to 4). Repair support tee’s. 2003 – La Cantina signs 2004 – Repaint handrails and entrances to match existing 2007 – Paint exterior of Colorado Ski Museum, red river clay (originally proposed façade improvements included skier images, lighting and paint – Withdrawn). Solar panel installation on Transportation Center building, level 4. 2009 – Current DRB application to improve Ski Museum façade, in review. Zoning and Land Use Zoning: General Use (GU) District Land Use Designation: Village Master Plan Development Standards: Prescribed by Planning and Environmental Commission (Includes setbacks, height, density, site coverage, landscaping and parking standards). Future Site Development Considerations The applicant and Staff have identified the following development considerations and drafted the proposed amendments with the following issues in mind. Planted Buffers Currently, the planted buffer provides visual screening and structural support to the south side of the parking structure. If infill development is proposed, the following proposed language is crafted to protect the structural integrity of the parking structure: “Any infill development on the southern portion of the site shall replace and address the structural support that the planted buffer provides.” Future Transportation Needs The following future transportation needs were considered in the proposed amendment, further described below: 1) Additional bus lanes, 2) train station, 3) parking and 4) loading and delivery. In anticipation of the future expansion or reconfiguration of the Vail Village Transportation Center, the following language is proposed in the amendment: “The primary purpose of the Transportation Center site is to provide public parking and to serve as a primary multi-modal transportation center for the community. Any infill development on the site shall not interfere, restrict, hinder or alter operations of the transportation center/ parking structure and/ or the redevelopment of said structure.” Additional Bus Lanes: The Vail Transportation Master Plan Update, presented to the Council on March 3, 2009, included results that the existing Vail Village Transportation Center is over capacity and that the demand for additional bus berths will require the expansion or reconfiguration of the Vail Village Transportation Center. Train Station: The Vail Transportation Master Plan Update also included reports of CDOT/ I-70 Coilition plans for future train station locations, including the Vail Village Transportation Center. Parking: The Vail Transportation Master Plan Update also included forecasted parking needs for Vail. It states that an estimated 1,000 additional parking spaces are needed in the future. The Plan also states that those future parking needs will be best accommodated in the following 3 locations: 400 spaces in West Lionshead (Ever Vail) 300 spaces in the Lionshead Parking Structure 300 spaces at Ford Park The Plan does not designate the Vail Village Transportation Center as a priority location for additional parking spaces, because the Vail Village Transportation Center access lanes are currently at or above capacity for the amount of parking existing today. Loading and Delivery: If future mixed use development occurs on the site, it is anticipated to produce the need for additional loading and delivery. IV. CRITERIA AND FINDINGS Staff believes the proposed Vail Village Master Plan amendments are consistent with the Town’s goals, policies and objectives for the reasons listed below. Furthermore, Staff believes the proposed amendments provide comprehensive guidelines for the review of future development on the Vail Village Transportation Center site. Consistency with other elements of the Vail Comprehensive Plan Lionshead Redevelopment Master Plan For comparison purposes, the Lionshead Redevelopment Master Plan, adopted in 1998, updated in 2006 and 2007, includes detailed plan recommendations (Section 5.2) that encourage mixed use on the Lionshead Parking Structure site for the following reasons: 1) To energize and visually upgrade the area by enhancing pedestrian activity; 2) Create potential for a stimulating retail environment; and 3) Presents the opportunity for employee housing conveniently located adjacent to the Lionshead pedestrian core. Staff has used the language from the Lionshead Redevelopment Master Plan as a source for the proposed amendments to the Vail Village Master Plan due to the similarity in the sites, and thus the relevance for future long-range planning strategy. Vail Village Urban Design Guide Plan The Vail Village Urban Design Guide Plan calls for the street edge to be designed to create an intimate pedestrian scale, where buildings jog to create activity pockets with planters, arcades, raised decks, etc (Street Edge). Furthermore, the Vail Village Urban Design Guide Plan states that the East Meadow Drive streetscape shall feature public plazas, planters, kiosks, benches and lighting (East Meadow Drive sub-area). The Vail Village Urban Design Guide Plan also addresses the street enclosure (building height to street width ratio) and calls for buildings to provide a comfortable enclosure for the street, with a suggested ratio of 1 to ½ , meaning that the building walls are approximately ½ as high as the width of the street (Street Enclosure). Streetscape Master Plan The Streetscape Master Plan states that the site shall include street enhancements, providing space for public nodes and seasonal vending opportunities to generate points of interest and pedestrian activity to the west of the parking structure’s central access (Pg. 39, East Meadow Drive). Conditions have changed Vail Village Improvements Since the Plan’s adoption in 1990, and amendments in 1995 and 2005, there have been both private and public improvements to Vail Village. Specifically, improvements have been made to the Austria Haus (which replaced the Wedel Haus, a small 2-story lodge) and streetscape, the current construction of Solaris, and the Village wide upgrades to the streetscape and public plazas, which now exhibit the need to improve the pedestrian experience in this area. The existing East Meadow Drive streetscape from Village Center Road to Vail Valley Drive is a weak link and a poor edge to the Vail Village streetscape and ultimately is a deterrent to the pedestrian shopping and walking experience in Vail Village. The existing planted buffer is an in-active open space that deters from the active, vibrant character found on the south side of East Meadow Drive and throughout Vail Village. To facilitate improved pedestrian shopping and walking experience and to encourage activity and interest on East Meadow Drive, Staff believes this site is appropriate for mixed-use development including residential and commercial uses. Employee Housing Employee housing has become a more critical issue since the adoption of the Plan. The Transportation Center site is large enough to accommodate a significant amount of employee housing that could include a variety of home sizes and price points. The amendment will allow residential uses on site and foster the opportunity to bring local working citizens back into Vail Village, which would bring much desired vitality into the Village in the shoulder seasons. The plan is in error: While the current Vail Village Master Plan is not in error, Staff believes the plan would be more comprehensive with the proposed amendment. Currently the Vail Village Master Plan does not address future mixed-use development on the site nor does it address the potential redevelopment of the Transportation Center, which Staff believes should include a mixture of uses to encourage employee housing and commercial uses along East Meadow Drive to effectively extend the vibrant, active character of the Vail Village. The amendment is in concert with the Vail Village Master Plan: The addition of mixed uses to the site including residential and commercial, will add activity and interest to the East Meadow Drive streetscape. Future infill development or redevelopment incorporating mixed uses will provide a sense of arrival as guests exit the parking structure. Today, upon exit from the parking structure main exit, guests tend to walk straight across the covered bridge instead of exploring East Meadow Drive, because there is no sense of arrival upon exit. Staff believes the proposed amendments will provide clear and specific guidance for any future infill development or redevelopment of the site. The proposed amendments will adopt recommendations that are in concert with the plan. The applicant has submitted a narrative that addresses each of the six major Vail Village Master Plan goals in context with the proposed amendment (Attachment C) for the Commission’s review. IV. PLANNING AND ENVIRONMENTAL COMMISSION RECOMMENDATION The Planning and Environmental Commission recommends that the Vail Town Council approve Resolution No. 26, Series of 2008, based on the criteria and findings in Section III of this memorandum. Should the Vail Town Council choose to approve Resolution No. 26, Series of 2008, the Planning and Environmental Commission recommends the Council pass the following motion: “The Town Council approves, Resolution No. 26, Series of 2008, including amendments to the Lionshead Redevelopment Master Plan to incorporate the property known as Glen Lyon Office Building into the Lionshead Redevelopment Master Plan Study Area and create site specific recommendations, located at 1000 S Frontage Rd/ Lot 54, Cascade Subdivision” Should the Vail Town Council choose to approve Resolution No. 26, Series of 2008, the Planning and Environmental Commission recommends the Council make the following findings: “(1) The Glen Lyon Office Building site is situated in a location that lends itself to inclusion into the Lionshead Redevelopment Master Plan (LRMP) Study Area because it is a natural extension of the West Lionshead sub-area, as designated in the LRMP; and (2) That the inclusion of the Glen Lyon Office Building site into the LRMP, consistent with the adjacent properties, will guide development in a pattern of harmony that will facilitate visual and physical connectivity between the properties in the West Lionshead neighborhood; and (3) That conditions have changed since the Lionshead Redevelopment Master Plan was adopted to facilitate the inclusion of the Glen Lyon Office Building site into the LRMP; and (4) That the addition of the Glen Lyon Office Building into the Lionshead Redevelopment Master Plan Area is in concert with the Town of Vail Land Use Plan.” IX. ATTACHMENTS Vicinity Map Draft Resolution No. 6, Series of 2009 Applicant narrative ATTACHMENT A: VICINITY MAP  DRAFT RESOLUTION NO. 6 Series 2009 A RESOLUTION APPROVING AN AMENDMENT TO THE VAIL VILLAGE MASTER PLAN, PURSUANT TO SECTION VIII-C, ADOPTION, EXTENSIONS, AND AMENDMENTS, VAIL VILLAGE MASTER PLAN, TO ALLOW FOR MIXED-USE DEVELOPMENT ON THE VAIL VILLAGE TRANSPORTATION CENTER SITE, LOCATED AT 241 EAST MEADOW DRIVE/PARTS OF TRACTS B AND C, VAIL VILLAGE FILING 1, AND SETTING FORTH DETAILS IN REGARD THERETO. WHEREAS, on January 5, 2005 the Vail Town Council adopted the updated Vail Village Master Plan; and WHEREAS, Section VIII-C of the Vail Village Master Plan outlines a procedure for amending the Plan; and WHEREAS, on February 23, 2009 the Planning and Environmental Commission forwarded a recommendation of _______ to the Vail Town Council on Resolution No. 6, Series of 2009; and WHEREAS, the Vail Town Council finds that the Vail Village Master Plan amendment is in keeping with the goals, objectives, and policies prescribed by the Plan; and WHEREAS, the Vail Town Council finds that the Vail Village Master Plan amendment is in the best interest of the Town as it promotes the coordinated and harmonious development of the Town; and WHEREAS, the Vail Town Council finds that the Vail Village Master Plan amendment to allow for mixed-use development on the Vail Village Transportation Center site will improve the success and vitality of Vail Village by visually upgrading the area; enhancing pedestrian activity; creating potential for a stimulating retail environment; and presenting the opportunity for employee housing conveniently located in Vail Village. WHEREAS, the Vail Town Council finds that the amendment to allow for mixed-use development on the Vail Village Transportation Center site, facilitates the orderly and comprehensive development of the Vail Village. NOW, THEREFORE, BE IT ORDAINED BY THE TOWN COUNCIL OF THE TOWN OF VAIL, COLORADO, THAT: Section I. Text Additions and Deletions The Vail Town Council hereby approves the Vail Village Master Plan amendments, as illustrated by text additions stated in bold italics and deletions in strikethrough. Section II. Exhibits The Vail Town Council hereby approves the Vail Village Master Plan amendments, as illustrated by the following maps and figures attached to this resolution as exhibits: A. Land Use Plan, Vail Village Plan B. Open Space Plan, Vail Village Plan C. Conceptual Building Height Plan, Vail Village Plan D. Building Height Profile, Vail Village Plan Section III. Chapter VI, Illustrative Plans shall be amended to read as follows: Public Facility/Parkinq: The only property in this category is the Town-owned Transportation Center. parking structure and adjacent surface parking lot. Existing uses include: public and charter bus parking, transportation facilities and a limited amount of office and retail activity. Potential changes to the character of these uses would be the introduction of other public purpose activities such as a visitor center, performing arts center, etc. The primary purpose of the Transportation Center site is to provide public parking and to serve as a primary multi-modal transportation center for the community. Mixed use development, including residential, commercial and office uses shall be appropriate in accordance with the goals, objectives and action steps set forth in this Master Plan. Section IV. Chapter VII, Vail Village Sub-Areas shall be amended to read as follows: TRANSPORTATION CENTER (#4) The only existing facility within this sub-area is the Vail Village Transportation Center (TRC). The TRC serves as the transportation hub of the Village and the entire community. There is potential for future expansion of the parking structure eastward along with other ancillary development potential. Foremost among these is development over the expansion of the parking structure. The primary purpose of this sub-area is to provide public parking and to serve as a primary multi-modal transportation center for the community. entire Village area. The priority of any expansion to this facility should be to maximize the amount of additional public parking available at this site. An important consideration in future expansion of the TRC is the view corridors as depicted in the Building Height Profile. The existing improvements on site include the Vail Village Transportation Center, parking structure and a planted buffer that provides visual screening and structural support to the south side of the parking structure. Any infill development on the southern portion of the site shall replace and address the structural support that the planted buffer provides. Any infill development on the site shall not interfere, restrict, hinder or alter operations of the transportation center/ parking structure and/ or the redevelopment of said structure. Any infill development shall seamlessly integrate with the Vail Village Transportation Center. The goals for development in this sub-area are as follows: Provide for a year-round, world-class guest experience at the vehicular entryway and transportation hub of the community Improve the existing pedestrian ways with public spaces that add activity, interest and vitality Encourage a wide variety of activities, events, and street life Meet public parking demands and screen parking and transit from public view Concentrate transit activity at the periphery of the Village to minimize vehicular traffic in pedestrian areas Improve streetscape circulation corridors Enhance new development and redevelopment through public improvements by private developers working in cooperation with the Town Encourage a variety of new commercial activity Encourage development of employee housing units INTRODUCED, READ, APPROVED AND ADOPTED this _____day of ___________, 2009. __________________________________ Richard D. Cleveland, Mayor ATTEST: __________________________________ Lorele i Donaldson, Town Clerk EXHIBIT A: Land Use Plan, Vail Village Plan  EXHIBIT B: Open Space Plan, Vail Village Plan  EXHIBIT C: Conceptual Building Height Plan, Vail Village Plan  EXHIBIT D: Building Height Profile, Vail Village Plan  ATTACHMENT C: Applicant Narrative VAIL VILLAGE MASTER PLAN GOALS This section of this application narrative addresses each of the six major VVMP Goals in context with the proposed amendment to the Vail Village Master Plan. Goal #1: To encourage high quality development while preserving unique architectural scale of the village in order to sustain its sense of community and identity. An infill development in this location will re-invigorate a tired parking structure and potentially provide a vibrant new landmark portal to Vail Village. The specific project architecture could and should celebrate and enhance the established character that is embodied by Vail Village and solidify the architectural and pedestrian connection between the Village Parking Structure and Bridge Street. Creating an active edge on East Meadow Drive will provide much needed and requested vibrancy and act as a link from Village Center Drive to Bridge Street and the core, reinforcing and extending the Village. It will upgrade the appearance of an existing facility and provide much needed additional housing, office and retail uses. This will be a public improvement with the participation of a private sector catalyst. Goal #2: To foster a strong tourist industry and promote year-around economic health and viability for the Village and for the community as a whole. A design with a mix-use philosophy that will infuse vital employee housing, residential, retail and office space into the heart of Vail certainly meets the spirit and intent of this goal. A well designed and executed building here will enhance a visitor’s experience of the overall Vail Village area. This infill site will re-invent the arrival and departure experience at Bridge Street, one of the most important and memorable experiences in Vail. This plan will also establish an everyday population with its attainable residential and office components that will provide an economic boost to the existing and future businesses. Goal #3: To recognize as a top priority the enhancement of the walking experience throughout the Village. By encouraging a variety of retail and office activities, new street life along East Meadow Drive will be generated. A worn down berm and exposed concrete structure would be transformed with a family of streetscape elements, including storefronts, signage, lighting, stoops, sidewalks, landscaping, furniture, urban gardens and intimate plazas. In scale, massing, form, height and architectural design, the new commercial construction would take major design cues from traditional architecture: long, continuous streetscapes of side-by-side glass storefronts placed in a common setback; a lively variety of facade design with a wide range of architectural elements; separation of facades into discrete "storefront" units that read as pedestrian-scale multiple facades; and building heights that support the perception of the district as an intimate pedestrian environment which is friendly and inviting. A primary goal of the building design would be to avoid the "blank walls" make a streetscape considerably less attractive as a pedestrian environment. In addition, the design responds directly to the multi-level nature of the structure by providing retail and office on multiple levels with simple and easy connections throughout. The conceptual design proposal envisioned for the site employs a traditional approach to design in its residential components. The placement of residential units on upper floors or in ‘brownstone’ scaled buildings is a standard tradition in urban areas large and small to create rows of modestly scaled attached residential units. Goal #4: To preserve existing open space areas and expand green space opportunities. The Southeast, West and North sides of the parking structure would be maintained and enhanced with organic landscaping elements to transition smoothly into the Vail Village core area. Open plazas should be maintained as urban gardens, entertainment squares, and outdoor dining patios. This area is currently designated as a “planted buffer area” in the current version of the Vail Village Master Plan and is not recognized by the document as an important open space. Goal #5: Increase and improve the capacity, efficiency, and aesthetics of the transportation and circulation system throughout the village. An infill development in this area should be accomplished without major closures of the parking structure and may in actuality fix many of the existing structural problems currently existing. Any infill building here should remain independent of the parking structure, which would allow for future expansion of the parking structure. Locating mixed use program elements in the core of town and adjacent to public transportation encourages maximum pedestrian circulation and minimal vehicular traffic. The expansion of private parking for the project can potentially occur via access through the existing parking structure and underground of the new buildings. Goal #6: To ensure the continued improvement of the vital operational elements of the Village. This amendment would allow for a project that will address important community needs and Master Plan considerations without precluding future options for the Village Parking Structure. It will allow for the continued operation of the existing facility and allow for future development with the potential of additional service and delivery facilities. In addition, the gateway created will enhance and improve the guest experience and circulation.