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HomeMy WebLinkAboutPEC120036 REVISED NARRATIVE_received 100212Vail Golf Course Clubhouse Re-Development Re-zoning Request Text Amendment to Outdoor Rec Zone District Amendment to Conditional Use Permit Prepared for: Town of Vail 75 South Frontage Road Vail, CO 81657 September 24, 2012, revised October 2, 2012 Vail Golf Course Clubhouse Re-development 1 Re-zoning/Code Amendment/CUP Vail Golf Course Clubhouse Re-Development Introduction The purpose of this report is to provide background information and rationale for development applications pertaining to the proposed re-development of the Vail Golf Course Clubhouse. The following information is provided below: • Summary of proposed Clubhouse improvements, • Purpose of submittal, • Background on the Clubhouse and this proposal, and • Development applications. This application is submitted on behalf of the Public Works Department of the Town of Vail in conjunction with participation of the Vail Recreation District. In 2011 the Vail Town Council took steps to seek voter approval to re-allocate Conference Center funds to other Town projects. The underlying goal of this effort was to utilize the approximately $9.4 million on projects that would “increase overall economic vitality” throughout the Town and among other things have the potential to increase occupancy, have the potential to increase sales tax growth as a result of the investment and enhance the experience for those who live, work and play in Vail. In the Fall of 2011 voters approved the use of Conference Center funds for three projects – Golf Course Clubhouse improvements, a Vail Village Visitor’s Center and Ford Park improvements. Specific improvements for each of these projects were defined in response to the underlying goals articulated in the 2011 ballot language: Without increasing taxes, shall the Town of Vail use the remainder of the one and one-half percent lodging tax revenues and one-half percent sales tax revenues collected from January 1, 2003 through December 31, 2005 to fund the following projects that will promote recreation, promote tourism and support the economy in the Town of Vail: Expansion and improvement of the clubhouse at the Vail Golf Course and Nordic Center, including multi-use community space; Field expansion and restroom renovation at the Ford Park Sports Complex; and Ford Amphitheater improvements, including outdoor seating and restroom improvements? Vail Golf Course Clubhouse Re-development 2 Re-zoning/Code Amendment/CUP The primary improvements envisioned for the Clubhouse included a new, dedicated banquet room and a number of other improvements to the facility that would significantly improve nordic and golf course operations and the overall experience of the guests and users of the building. At a very general level, the following vision statement for the project has played a major role in design decisions over the past months: “… to design a facility that broadens the appeal of golf and nordic facilities while expanding the opportunities for year around use, by creating a unique and special sense of place that is aligned with guest expectations for a world class destination resort . . .” This broad vision statement has influenced the overall direction of the project design. However, many other factors including but not limited to the development program, operations, existing improvements and overall site features and characteristics have directly influenced the team’s approach to project design. A plan set of proposed improvements has been submitted under separate cover. Specific parameters used in the project design included: • Dedicated banquet room with a capacity for 200 people • Pre-convene space sufficient to support the banquet room • The common areas, restrooms, elevator and stairs will be shared throughout the building, however there will be separate entrances for the banquet room and the recreation uses • A grill/bar is sized for +/-40 people plus outdoor/deck space • A kitchen is sized to serve the grill and a separate “warming kitchen” space for the banquet space. • Arrival to Golf/ pro shop and Nordic space should be placed at the parking lot level • Project design that provides for both a winter operation plan and a summer operation plan and any use of the cart barn in the winter should present a finished quality expected for Vail guests • The separation of uses and enhancement of circulation throughout site and within the building • Locate golf course finish area on the east side of the building in order to encourage golfers to exit through the grill/pro shop and to clarify circulation on the front side of the building • Maintain approximate existing square footages while increasing the efficiency and functionality of the building • Two-story tall (4 level) building • Reuse of as much of the existing building structure is critical to maintain the original project budget. Vail Golf Course Clubhouse Re-development 3 Re-zoning/Code Amendment/CUP Purpose of this Submittal Three related development applications are proposed in order to facilitate the re-development of the Clubhouse. These include: 1. Re-zoning a portion of the Clubhouse area from General Use (GU) to Outdoor Recreation (OR), 2. A text amendment to the OR District to increase allowable building height from 21’ (flat roof) and 24’ (sloping roof) to 30’ (flat roof) and 33’ (sloping roof), and 3. Amendment to existing Conditional Use Permit to allow for modifications to the Clubhouse. The first step in the PEC’s review of this project will be a series of work sessions, the purpose of which will be to introduce the project, address the PEC and community’s initial questions and comments, scope potential issues and get other input on the project. PEC action on these applications will then be held after final plans have been re-fined. Background on the Clubhouse and this Proposal Following voter approval in the fall of 2011 to reallocate a portion of Conference Center Funds to the Clubhouse project the Town assembled a project team and design work on project began earlier this year. Since that time the team has held numerous meetings with the Town Council and the Recreation Sub-Committee to define the scope of the project and to review progress on the design of the project. In August a neighborhood meeting was held at the Clubhouse to gather input from the community regarding their issues and concerns with the project. The project team is currently involved in a series of public work sessions with the Town Council. The focus of these work sessions has been to discuss all aspects of the project, specifically dealing with neighborhood issues/concerns and potential alternatives for how the zoning, project design and operation of the new facility can address neighborhood concerns. In 1986 a Conditional Use Permit for the expansion of the Clubhouse was approved by the PEC. Main elements of the ’86 expansion was new golf cart storage, expansion of the bar/dining area, a new meeting room and an expanded kitchen. Today the facility reflects the plans approved by this 1986 approval. Historically the facility has been used as the clubhouse for the golf course, for nordic skiing, and for banquets and other special events. The Vail Golf Course is located on portions of Vail Village Filing 7 and Filing 8 and on a number of unplatted parcels. The existing Clubhouse is located on an unplatted parcel that is zoned Outdoor Recreation (OR). An area generally encompassing the Clubhouse parking lot is located on Lot 3, Sunburst Filing 3 and is currently zoned General Use Vail Golf Course Clubhouse Re-development 4 Re-zoning/Code Amendment/CUP (GU). In both districts “golf courses” are a permitted use and “accessory buildings” (i.e. the Clubhouse) are a conditional use. As such, an amendment to the current CUP is necessary in order to allow for the planned re-development of this facility. Development Applications The following summarizes the three development applications proposed for the Vail Golf Course Clubhouse re-development project. Re-Zoning of Parking Lot from General Use (GU) to Outdoor Recreation (OR) Currently the Clubhouse area is zoned two different zone districts. The parking lot is zoned GU while the Clubhouse building and immediate area is zoned OR. Having what is essentially one development site zoned two different zone districts creates an awkward situation and this re-zoning request is proposed in large part to remedy this existing situation. Either the OR or GU district could provide a suitable and workable zoning for the golf course clubhouse area. Based in large part on input from the community, the GU portion of the Clubhouse area is proposed to be re-zoned to OR. Many residents in the golf course neighborhood expressed concern with the board range of potential land uses under GU zoning and to address this concern the proposed re-zoning would designate the entire Clubhouse area as OR. The OR zone district, while allowing for the golf course and clubhouse use (as a CUP), does have a very restrictive building height limit. A code amendment to the OR zone district is proposed to remedy this situation (see below). Criteria to be used in evaluation of a proposed change to zone district are as follows: 1. How the proposed change in district boundaries is consistent with the adopted goals, objectives and policies outlined in the Vail Comprehensive Plan and compatible with the Town of Vail’s development objectives. 2. How the proposed change in district boundaries is compatible with and suitable to adjacent uses and appropriate for the area. 3. How the proposed change in district boundaries is in the best interest of the public health, welfare and safety. A response to how the proposed rezoning conforms to these review criteria will be provided in updates to this application prior to formal PEC hearings. Vail Golf Course Clubhouse Re-development 5 Re-zoning/Code Amendment/CUP Building Height Code Amendment to Outdoor Recreation The OR district currently limits building height to 21’ (flat roof) and 24’ (sloping roof). This limitation creates significant design constraints and is also the most restrictive height limitation of any zone district within the Town. In order to establish a building height that will allow for the design of an appropriate, quality building a code amendment to allow for building height of 30’ (flat roof) and 33” (sloping roof) is proposed. Building height of 30’/33’ in the Clubhouse area is consistent with the building height of surrounding properties and is thought to be reasonable given the context of this location and the role the Clubhouse plays in the operation of the golf course. However, building heights of 30’/33’ may not be appropriate elsewhere on the golf course or on other OR zoned properties. For this reason a narrowly defined code amendment will be proposed to limit the locations and/or circumstances where building height of 30’/33’ may be permissible. Alternatives for how to amend building height in the OR District include: 1. Limiting the building height increase to specific types of buildings or to specific locations, Vail Golf Course Clubhouse Re-development 6 Re-zoning/Code Amendment/CUP 2. Establishing specific criteria that must be met in order to allow for buildings up to 30’/33’, or 3. Utilizing the CUP process to review the appropriateness of building height up to 30’/33’. These alternatives will be presented for discussion with the PEC at upcoming work sessions. Criteria to be used in evaluation of a proposed amendment to the zoning code are as follows: 1. How the proposed amendment is consistent with the adopted goals, objectives and policies outlined in the Vail Comprehensive Plan and compatible with the Town of Vail’s development objectives. 2. How the proposed amendment is compatible with and suitable to adjacent uses and appropriate for the area. 3. How the proposed amendment is in the best interest of the public health, welfare and safety. A response to how the proposed code amendment conforms to these review criteria will be provided in updates to this application prior to formal PEC hearings. Amendment to Existing Conditional Use Permit (CUP) A CUP is currently in place for the Vail Golf Course Clubhouse. An amendment to reflect the proposed re-development and use of the new facility is proposed. Historically the Clubhouse building has been an accessory use to the golf course (cart storage, lockers, food and beverage, pro shop, offices, etc.), has been used by the Vail Nordic Center during winter months and as a facility to host banquets, parties and other functions. The later use has occurred in the existing bar/restaurant area. When used for banquets and other functions the capacity of the bar/restaurant area has been approximately 120 people. While this space has been used for these purposes for many years the existing CUP includes no specific parameters regarding this use of the building. Proposed uses for the Clubhouse are the same as how the building has historically been used - the Golf Course will utilize the facility in the summer, the Nordic Center in the winder and throughout the year the building will be used for banquets and other functions. While uses remain the same, significant upgrades will be made to the building and to the overall guest experience of its users. A dedicated space for banquets and other functions with a capacity of 200 people is the most significant change to the building. Other improvements include a new bar/restaurant (intended primarily to serve golfers), improved spaces for the pro shop and nordic operations, expanded golf cart storage, and Vail Golf Course Clubhouse Re-development 7 Re-zoning/Code Amendment/CUP improved lockers, circulation, restrooms, etc. The building and site design will dramatically improve the sense of arrival to the facility and is also designed to better organize uses and where necessary separate the various users of the building. The CUP includes two main elements – the Development Plan (comprehensive design drawings of the proposed building and site improvements and an Operations/Management Plan (a document outlining how the facility will be used and managed). The CUP also includes a diagram defining the area covered by the CUP (see below). This area includes the Clubhouse building, parking lot and the immediately surrounding area. Improvements planned for the Clubhouse are located within this area and commitments or obligations outlined in the Operations Plan pertain to this area. Below is a summary of the Development Plan and the Operations/Management Plan. Development Plan In accordance with submittal requirements for a CUP, a Development Plan for the project has been submitted. This plan provides comprehensive information on the design of the building along with site and landscape improvements. Information provided includes building elevations and floor plans, roof plan, site plan, landscape plan, grading plan and lighting plan. The Development Plan has been submitted under separate cover. Development Standards Vail Golf Course Clubhouse Re-development 8 Re-zoning/Code Amendment/CUP The proposed building has been designed to conform to all zoning/development standards as outlined in the OR Zone District (assuming the proposed height amendment is approved). Specific information on these standards will be provided as the design package evolves in the coming weeks. Parking requirements for the proposed building can be satisfied with minor expansion and re-organization of the existing parking lot. The following summarizes how parking has been calculated for the facility. The Town’s Zoning Code does not include parking requirements specific to a golf course. As such, parking demand for the course and clubhouse facility has been determined based on the parking that currently exists and then assessing a new parking demand for the expansion or change to any of the parking generating uses within the Clubhouse (i.e. the banquet facility, restaurant and pro shop). In order to meet the Code requirement for parking, an additional 12 spaces have been added to the existing parking lot. It should be understood that this parking, while satisfying code requirements does not address the potential parking impacts of an event being held in the banquet room during peak golf course operations. In these cases a Parking Management Plan will be implemented. This plan will be defined in the Operations and Management Plan for the facility. Operations/Management Plan There are currently no parameters or limitations on how the Clubhouse can be used for banquets and other functions. It is recognized that operational parameters do need to be Vail Golf Course Clubhouse Re-development 9 Re-zoning/Code Amendment/CUP established in order to minimize any potential impacts of the facility on the immediate neighborhood. The Vail Recreation District is currently preparing an Operations and Management Plan for the facility. It is anticipated that this plan will address topic such as lighting, hours of operation, amplified sound, and parking management. This plan will be an important element of the CUP and it is expected that it will be incorporated into any final approval for the project. Criteria to be used in evaluation of a proposed CUP are as follows: 1. Describe the precise nature of the proposed use and measures proposed to make the use compatible with other properties in the vicinity. 2. The relationship and impact of the use on development objectives of the Town. 3. The effect of the use on light and air, distribution of population, transportation facilities, utilities, schools, parks and recreation facilities, and other public facilities and public facility’s needs. 4. The effect upon traffic, with particular reference to congestion, automotive and pedestrian safety and convenience, traffic flow and control, access, maneuverability, and removal of snow from the streets and parking area. 5. The effect upon the character of the area in which the proposed use is to be located, including the scale and bulk of the proposed use in relation to surrounding uses. A response to how the proposed CUP conforms to these review criteria will be provided in updates to this application prior to formal PEC hearings. Information on each of the three applications will be updated in the coming weeks in response to input received from the PEC, Town Council and community.