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HomeMy WebLinkAboutPEC080045 Emplyee Housing Strategic Plan_0825081 MEMORANDUM TO: Planning and Environmental Commission FROM: Community Development Department DATE: August 25, 2008 SUBJECT: A request for a final recommendation to the Vail Town Council for the adoption of the Town of Vail Employee Housing Strategic Plan, and setting forth details in regard thereto. (PEC080045) Applicant: Town of Vail, represented by Nina Timm, Housing Coordinator Planner: Nicole Peterson I. SUMMARY The applicant, Town of Vail, is requesting the Planning and Environmental Commission forwards a recommendation to the Vail Town Council, for the adoption of the Town of Vail Employee Housing Strategic Plan, and setting forth details in regard thereto. Based upon Staff’s review of the criteria outlined in Section V of this memorandum and the evidence and testimony presented, the Community Development Department recommends the Planning and Environmental Commission forwards a recommendation of approval to the Vail Town Council for the adoption of the Town of Vail Employee Housing Strategic Plan subject to the findings noted in Section VI of this memorandum. II. DESCRIPTION OF THE REQUEST The Planning and Environmental Commission is delegated the authority to review and provide recommendations to the Council for Comprehensive Plan and Zoning Ordinance amendments. The Employee Housing Strategic Plan (EHSP) is a Planning document much like the Comprehensive Plan or the Zoning Ordinance, therefore Staff is requesting that the Planning and Environmental Commission review and provide a recommendation to the Council. It shall be noted that the EHSP is not meant to be a comprehensive housing plan for the Town, but rather an appendix or supplement document to the Vail Comprehensive Plan, that provides more detail on the specific issue of employee or workforce housing. The EHSP addresses employee housing only, as defined below (Section 12-2-2 Definitions, Vail Town Code). EMPLOYEE HOUSING UNIT (EHU): A dwelling unit which shall not be leased or rented for any period less than thirty (30) consecutive days, and shall be occupied by at least one person who is an employee. For the purposes of this definition “employee” shall mean a person who works an average of thirty 2 (30) hours per week or more on a year round basis in Eagle County, Colorado. III. BACKGROUND At the January 22, 2008, Town Council retreat the Town Council identified the completion and adoption of a Housing Strategic Plan by September, 2008, as an immediate goal. In response to the Council’s objective, the Vail Local Housing Authority (VLHA) has created a draft Employee Housing Strategic Plan (Attachment A). The Housing Authority has held two work sessions per month, over six months, to facilitate the timely completion of the draft Employee Housing Strategic Plan (EHSP). Additionally, the Vail Economic Advisory Committee has discussed the goals for the EHSP at both its May and June meetings. A detailed timeline of the drafting process is included in the EHSP Appendix. IV. APPLICABLE PLANNING DOCUMENTS The following four planning documents provide goals and objectives regarding employee housing. Staff has provided excerpts, below, from each of the four documents, for the Commission’s consideration. o Vail 20/20, adopted November 6, 2007; o Vail Land Use Plan, updated March 23, 2006, o Vail Village Master Plan, updated January 5, 2005, and o Lionshead Redevelopment Master Plan, updated February 6, 2007 VAIL 20/20 (In part) HOUSING 20/20 Vision The number of employees living within the town has steadily increased, thanks to the town’s commitment to ensure affordability and availability of housing. The number of deed-restricted rental and for-sale units required of both private and public projects has increased. The diversity of deed- restricted units can accommodate the seasonal worker, as well as all levels of year-round employees, including those with families. Housing in general has been transformed to include green building standards. 20/20 Implementation Based on input from the community during the 20/20 process, town staff with the Vail Local Housing Authority, developed the following goals and action strategies to support the housing vision. Goal: The Town of Vail recognizes the need for housing as infrastructure that promotes community, reduces transit needs and keeps more employees living in the town, and will provide for enough deed-restricted housing for at least 30 percent of the workforce through policies, regulations and publicly initiated development. 3 Actions/Strategies · Research and propose next steps for strengthening the town’s inclusionary zoning and commercial linkage policies, including requirements for more zone districts. · Research parking requirements for employee housing and consider reducing requirements for employee housing developments. · Ensure pay-in-lieu funds generate as many workforce housing units as possible. · Establish protocol for disbursement of dedicated housing fund resources. · Research and secure potential alternative (besides pay-in-lieu) funding sources for employee housing. · Work with the County and other regional entities to ensure housing is addressed on a regional level. · Preserve existing affordable/workforce housing within the town. o Expand “buy down” program that gives cash for deed restrictions of units. o Evaluate impact and explore options for replacement of EHUs from Timber Ridge during redevelopment. · Expand the number of employee beds in the Town of Vail. o Redevelop Timber Ridge to increase affordable/workforce housing and maximize redevelopment potential with high density zoning. o Update Chamonix/Wendy’s Master Plan to increase employee housing development potential. o Redevelop Chamonix parcel per the master plan. o Redevelop the A-Frame lot for employee housing. o Conduct inventory of all sites with development potential and pursue opportunities for acquiring undeveloped or underdeveloped properties. o Consider increasing incentives in performance zoning for property owners who build EHUs. o Continue to purchase properties for TOV employee rentals. o Amend development standards to allow for development of EHUs on properties. o Evaluate opportunities for potential land swaps with the Forest Service. o Evaluate opportunities for annexation of land from other jurisdictions. o Update the Vail Land Use Plan and identify more areas for employee housing. o Enumerate the effects of housing employees within the Town of Vail, including a cost-benefit analysis of employee housing. 4 VAIL LAND USE PLAN (In part) 5. Residential 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 market place 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. VAIL VILLAGE MASTER PLAN (In part) 2.6 Objective: Encourage the development of affordable housing units through the efforts of the private sector. 2.6.1 Policy: Employee housing; units may be required as part of any new or redevelopment project requesting density over that allowed by existing zoning. 2.6.2 Policy: Employee housing, shall be developed with appropriate restrictions so as to insure their availability and affordability to the local work force. 2.6.3 Policy: The Town of Vail may facilitate in the development of affordable housing by providing limited assistance. LIONSHEAD REDEVELOPMENT MASTER PLAN (In part) 4.1.5 West Lionshead - Residential/ Mixed-Use Hub 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. 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. 4.9 Housing Recent community surveys and grass-roots planning efforts such as Vail Tomorrow have identified the lack of locals housing as the most critical issue facing the Vail community. Early in the 5 Lionshead master planning process, west Lionshead was identified as an opportunity area to implement some of the community’s housing goals, particularly relating to employee housing. These opportunities and associated issues are outlined below. 4.9.1 No Net Loss of Employee Housing Ground rule number five of the master plan states that there shall be no net loss of employee housing in Lionshead as redevelopment occurs. 4.9.3 Policy Based Housing Opportunities The first means of implementing housing goals in Lionshead is through policy based requirements such as the employee generation ordinance currently being pursued by the Vail Town Council. As required by a future ordinance, all development and redevelopment projects, as a prerequisite to project approval, should provide housing for employees generated and to the extent possible this housing should be located in the Lionshead area. 4.9.4 Potential Housing Sites Following are specific sites that have been identified as suitable for locals and employee housing (in part). 4.9.4.1 South Face of the Lionshead Parking Structure The south face of the Lionshead parking structure was identified by the Lionshead master planning team, the public input “wish list” process, and the Vail Tomorrow process as a potential location for housing. Depending on building height, this location could support two to three levels of housing located above a ground floor level of retail and commercial space. 4.9.4.2 Top Deck of the Lionshead Parking Structure The upper deck of the Lionshead parking structure has also been identified as a potential location for housing. Although the parking structure does offer a large area, several critical planning considerations must be taken into account. 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. 4.9.4.3 Red Sandstone Parking Area 6 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. 4.9.4.4 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. 7.5 Density (Dwelling Units Per Acre): Further, because it is a community goal to increase the number of permanent residents in Lionshead, employee housing units that are deed restricted for local employees should not count toward density. 9.1 Project Prioritization 9.1.2 Private Improvements 9.1.2.5 West Lionshead Local/ Employee Housing The development of a significant housing supply in west Lionshead should be a component of any plans to tear down the Sunbird Lodge and redevelop the Vail Associates core site. Housing is linked to the realignment of South Frontage Road, the possible construction of a new west Lionshead parking structure, and additional development on the west day lot and the Vail Associates service yard. To the greatest extent possible, all of these projects should be planned concurrently, and the sequence in which they are implemented should not preclude other future projects. It should be considered a priority by the Town of Vail to determine how much, if any, public parking should occur in this area. 9.5 Next Steps The following critical actions will set the stage for the implementation of the master plan recommendations. 9.5.5 Employee Generation In accordance with ongoing efforts to provide both locals and employee housing in the Town of Vail, an employee generation ordinance is currently being pursued by the Vail Town Council. 7 V. REVIEW CRITERIA Staff believes the criteria and findings for Zoning Amendments, as set forth in Section 12-3-7-C, Vail Town Code, provide relative and diligent standards to review the draft Employee Housing Strategic Plan. Staff has provided responses to each criterion with regard to the Employee Housing Strategic Plan (EHSP) below, and included the findings in the Staff recommendation in Section VI of this memorandum. (1) The extent to which the EHSP is consistent with all the applicable elements of the adopted goals, objectives and policies outlined in the Vail comprehensive plan and is compatible with the development objectives of the town. Staff believes the proposed EHSP is consistent with the Town’s adopted goals, objectives and policies regarding employee housing, as set forth in the planning documents quoted in Section IV Applicable Planning Documents, of this memorandum. The EHSP furthers the goals, objectives and policies by providing implementation methods and action steps for the continued growth and development of the community’s employee housing stock. (2) The extent to which the EHSP presents a harmonious, convenient, workable relationship among land uses consistent with municipal development objectives. Staff believes the proposed EHSP is necessary to facilitate and provide a harmonious, convenient, workable relationship among land use regulations consistent with the Town of Vail master plans and development objectives. The EHSP is in response to the Town’s continued need for employee housing units. The EHSP provides a foundation for future actions and decision making regarding development and funding of employee housing in Vail. (3) The extent to which the EHSP provides for the growth of an orderly viable community and serves the best interests of the community as a whole. The gap between available employee housing and Vail’s premier service employment opportunities, is a well known and broadly discussed topic. The EHSP provides action steps to decrease the distance between housing and jobs which, Staff believes, provides for the growth of an orderly, viable community by potentially increasing the year-round population and economic activity in Vail. Staff believes the adoption of the EHSP serves the best interests of the community as a whole by responding to the community’s goal of providing employee housing in Vail. (4) The extent to which the EHSP results in adverse or beneficial impacts on the natural environment, including, but not limited to, water quality, air quality, noise, vegetation, riparian corridors, hillsides and other desirable natural features. 8 As mentioned above, the EHSP provides action steps to decrease the distance between housing and jobs in Vail which, Staff believes, is highly beneficial to the natural environment, most notably Vail’s air quality and noise. By decreasing the distance between housing and jobs, the demand on the transportation system (i.e. roads, bus traffic and automobile traffic) is decreased, resulting in the reduction of air and noise pollution. Reduction in the amount of traffic also helps protect riparian corridors, hillsides and native vegetation in Vail and along the I-70 corridor. VI. STAFF RECOMMENDATION The Community Development Department recommends the Planning and Environmental Commission forwards a recommendation of approval to the Vail Town Council, for the adoption of the Town of Vail Employee Housing Strategic Plan, and setting forth details in regard thereto. Should the Planning and Environmental Commission choose to recommend approval of the Employee Housing Strategic Plan, Staff recommends the Commission pass the following motion: “The Planning and Environmental Commission forwards a recommendation of approval to the Vail Town Council for the adoption of the Town of Vail Employee Housing Strategic Plan, and setting forth details in regard thereto.” Should the Planning and Environmental Commission choose to recommend approval of the Employee Housing Strategic Plan, the Department of Community Development recommends the Commission makes the following findings: “Based upon the review of the criteria outlined in Section V of this Staff memorandum dated August 25, 2008, and the evidence and testimony presented, the Planning and Environmental Commission finds: 1. That the Employee Housing Strategic Plan is consistent with the applicable elements of the adopted goals, objectives and policies outlined in the Vail Comprehensive Plan and is compatible with the development objectives of the Town; and, 2. That the Employee Housing Strategic Plan furthers the general and specific purposes of Zoning Regulations; and, 3. That the Employee Housing Strategic Plan promotes the health, safety, morals, and general welfare of the Town and promote 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.” VII. ATTACHMENTS A. Draft Town of Vail Employee Housing Strategic Plan