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HomeMy WebLinkAboutPEC120036 REVISED NARRATIVE_received 110112Vail Golf Course Clubhouse Re-Model Rezoning 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, October 31, 2012 Vail Golf Course Club House Remodel CUP Amendment/Rezoning/Text Amendment Page 1 Vail Golf Course Club House Re-Model CUP Amendment/Rezoning/Text Amendment October 2012 INTRODUCTION The purpose of this report is to provide information regarding development applications for the proposed remodeling of the Vail Golf Course Club House. While no changes will be made to existing uses that have been in place at the Club House for the past forty years, the remodel will make significant upgrades to the building and to the overall guest experience of its users. A dedicated space for banquets and other functions is the most significant change to the building. Other improvements include a new bar/restaurant, improved spaces for the pro shop and nordic operations, expanded golf cart storage, and improved lockers, circulation, restrooms. The building and site design will dramatically improve the sense of arrival to the Club House and is also designed to better organize uses and where necessary separate the various users of the Club House. The following information is provided below: • Project Introduction, • Approach to design of project, • Applications submitted, • Background on the Club House and this proposal, and • Development applications. This application has been submitted on behalf of the Public Works Department of the Town of Vail in conjunction with participation of the Vail Recreation District (VRD). PROJECT INTRODUCTION In 2011 the Vail Town Council took steps 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 endorsed the use of Conference Center funds for three projects – Golf Course Club House improvements, improvements to the Ford Amphitheater and improvements to Ford Park. Specific improvements for each of these projects were defined in response to the underlying goals articulated in the 2011 ballot language: Vail Golf Course Club House Remodel CUP Amendment/Rezoning/Text Amendment Page 2 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? The main improvements envisioned for the Club House included a new, dedicated Banquet Room and a number of other improvements to the Club House that would significantly improve nordic and golf course operations and the overall aesthetics and guest experience of those who use the Club House. APPROACH TO THE DESIGN OF THIS PROJECT 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 conditions and the overall characteristics of the site 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 to be shared throughout the building, however there will be separate entrances for the Banquet Room and the recreation uses, Vail Golf Course Club House Remodel CUP Amendment/Rezoning/Text Amendment Page 3 • A grill/bar sized for +/-40 people plus outdoor/deck space, • A kitchen sized to serve the grill and a separate “warming kitchen” space for the Banquet Room, • Arrival to Golf/ pro shop and Nordic space at the parking lot level, • Project design that provides for both winter and summer use to a finished quality expected for Vail guests, • The separation of uses and enhancement of circulation throughout site and within the building, • Location of golf course finish area on the east side of the building in order to encourage golfers to exit through the grill/pro shop, • Clarification of circulation and entry on the front side of the building, • Maintain approximate existing building square footages while increasing the efficiency and functionality of the building, • Two-story tall (4 level) building, and • Reuse of as much of the existing building structure, which is critical to maintain the original project budget. APPLICATIONS SUBMITTED Three related development applications are proposed in order to facilitate the remodel of the Club House. These include: 1. Rezoning a portion of the Club House area from General Use (GU) to Outdoor Recreation (OR), 2. A text amendment to the OR District to increase allowable building height for golf course club houses 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 Club House. The PEC’s review of this project will involve one or more public hearings, the purpose of which will be to introduce the project, address the PEC and the public’s initial questions and comments, scope potential issues and get other input on the project, and eventually, PEC action. BACKGROUND ON THE CLUB HOUSE AND THIS PROPOSAL Following an election in the fall of 2011 in which voters endorsed a reallocation of a portion of Conference Center Funds to the Club House 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 July a neighborhood meeting was held at the Club House to gather input from the public regarding issues and concerns with the project. Vail Golf Course Club House Remodel CUP Amendment/Rezoning/Text Amendment Page 4 This past summer and early fall the project team held a series of public work sessions with the Town Council. The focus of these work sessions was 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 modified Club House can address neighborhood concerns. In 1986 a Conditional Use Permit for the expansion of the Club House 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. The Club House has not seen any significant upgrades since the ’86 expansion. The Vail Golf Course is located on portions of Vail Village Filing 7, Vail Village Filing 8 and on a number of unplatted parcels. The existing Club House is located on a +/-90 acre unplatted parcel that is zoned Outdoor Recreation (OR). An area generally encompassing the Club House parking lot is located on Lot 3, Sunburst Filing 3 and is currently zoned General Use (GU). In both districts “golf courses” are a permitted use and “accessory buildings” (i.e. the Club House) are a conditional use. As such, an amendment to the current CUP is necessary in order to allow for the planned remodeling of the Club House. DEVELOPMENT APPLICATIONS The following summarizes the three development applications proposed for the Vail Golf Course Club House project. Rezoning of Parking Lot from General Use (GU) to Outdoor Recreation (OR) Currently the Club House area is zoned two different zone districts. The parking lot is zoned GU while the Club House building and immediately surrounding area is zoned OR. Having what is essentially one development site zoned two different zone districts creates an awkward situation and this rezoning 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 Club House area. Based in large part on input from the community, the GU portion of the Club House area is proposed to be rezoned to OR. Many residents in the golf course neighborhood expressed concern with the board range of land uses that could be proposed under GU zoning. In response to this concern the proposed rezoning would designate the entire Club House area as OR. 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. Vail Golf Course Club House Remodel CUP Amendment/Rezoning/Text Amendment Page 5 Response The change in district boundaries is proposed in large part to resolve the existing condition of the club house area being zoned two different zone districts. Either the GU district or the OR district can provide a zone designation suitable for the operation of the golf course and the club house. The purpose of the change to district boundaries is to eliminate confusion inherent in both zone districts being in place. 2. How the proposed change in district boundaries is compatible with and suitable to adjacent uses and appropriate for the area. Response Either the GU or the OR district could provide a zone designation suitable for the operation of the golf course and Club House. The proposal to rezone the GU portion of the Club House area to OR is proposed specifically in response to neighborhood concerns with the wide range of potential uses that could be proposed under GU zoning. As such, the rezoning is proposed specifically to ensure compatibility and a suitable relationship to adjacent uses and properties. 3. How the proposed change in district boundaries is in the best interest of the public health, welfare and safety. Response The proposed rezoning to OR will establish a zoning mechanism that includes permissible uses and other development controls that will allow for the ongoing operation of the Golf Course and Club House which furthers the health, welfare and safety of the entire community. Vail Golf Course Club House Remodel CUP Amendment/Rezoning/Text Amendment Page 6 Outdoor Recreation Zone District - Building Height Code Amendment The OR district currently limits building height to 21’ (flat roof) and 24’ (sloping roof). Simply stated, this height limitation creates a significant design constraint in creating a quality interior space within any golf course club house, including this Club House. This limitation 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 golf course club house, a code amendment to allow for building height of 30’ (flat roof) and 33’ (sloping roof) is proposed. The following text amendment is proposed to section 12-8B-7 of the Outdoor Recreation zone district of the Vail Town Code: 12-8B-7: HEIGHT: For a flat roof or mansard roof, the height of buildings shall not exceed twenty one feet (21'). For a sloping roof, the height of buildings shall not exceed twenty four feet (24'). For golf course club houses, for a flat or mansard roof, the height of buildings shall not exceed thirty feet (30’'). For a sloping roof, the height of buildings shall not exceed thirty-three feet (33’). The rationale for this text amendment is as follows: • The 21’/24’ building height limit in the OR District is the most restrictive height limitation in any zone district. • The 21’/24’ building height does not provide sufficient height to create quality interior spaces. • As proposed, the amendment would allow building height of 30’/33’ for a “golf course club house” only, which effectively limits this height increase from being utilized on other OR zoned properties which do not have a golf course club house. • The 30’/33’ building height proposed for golf course club houses is consistent with allowable building heights on other similar buildings in the Town. 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. Response The proposed amendment would establish some consistency with how other properties in the vicinity are treated and also allow building height sufficient to create a well-designed, quality golf course club house. 2. How the proposed amendment is compatible with and suitable to adjacent uses and appropriate for the area. Vail Golf Course Club House Remodel CUP Amendment/Rezoning/Text Amendment Page 7 Response Though the text amendment would apply generally to all districts zoned OR with a golf course club house, currently, only this property has a golf course club house. As it relates to this property, the proposed text amendment would allow for building heights that are consistent with allowable building height of properties in the vicinity of this Club House. As such, the scale of buildings at this Club House would be in keeping with those of the surrounding neighborhood. 3. How the proposed amendment is in the best interest of the public health, welfare and safety. Response The proposed text amendment would allow for building heights sufficient to design and construct a well-designed, quality golf course club house, which promotes recreation, tourism and the economy of the Town of Vail, which in turn is in the best interest of the public health, welfare and safety. Amendment to Existing Conditional Use Permit (CUP) A CUP is currently in place for the Vail Golf Course Club House. An amendment to this CUP is proposed to allow for the remodeling of the Club House. Historically the Club House has been an accessory use to the golf course during summer months (cart storage, lockers, food and beverage, pro shop, offices, etc.), and has been used by the Vail Nordic Center during winter months. Throughout the year the Club House has traditionally been used to host banquets, parties and other functions, a use that is very common in golf course club houses throughout the county. When used for banquets and other functions the bar/restaurant area has a seated capacity of approximately 120 people. While this space has been used for these purposes for many years, the existing CUP includes no specific parameters or controls regarding this use of the Club House. Proposed uses for the Club House are the same as how the building has historically been used - the Golf Course will utilize the Club House in the summer, the Nordic Center will utilize the Club House in the winter and throughout the year the Banquet Room in the Club House will be used for banquets and other functions. With this remodel, the uses in the Club House will remain the same, however significant upgrades will be made to the building and to the overall guest experience of its users. The Banquet Room, 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 improved lockers, circulation and Vail Golf Course Club House Remodel  CUP Amendment/Rezoning/Text Amendment Page 8  restrooms. The building and site design will dramatically improve the sense of arrival to the Club House 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 a Vail Golf Course Club House Management and Operations Plan (Operations Plan), a document outlining how the Club House will be used and managed. The CUP also includes a diagram defining the area covered by the CUP (see below). This area includes the Club House, parking lot and the immediately surrounding area. Improvements planned for the Club House are located within this area and commitments or obligations outlined in the proposed 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 and site/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. The proposed building and site improvements have been designed to conform to all zoning/development standards as outlined in the OR Zone District (assuming the Vail Golf Course Club House Remodel CUP Amendment/Rezoning/Text Amendment Page 9 proposed height amendment is approved). The following table summarizes these standards: Standard Minimum Proposed Lot Area/Site Dimensions N/A 91.76 acres (1) Setbacks 20’ (all sides) 38’ front 510’ side 203’side Building Height (2) 30’/33’ 33’ Density N/A Site Coverage 5% of site area, or 197,631SF (3) 23,510SF .006% Landscape Area Determined by DRB (4) Parking 122 spaces 124 spaces (1) Includes unplatted parcel (90.75 ac) and Lot 3 (1.01 ac) (2) Indicates proposed OR building height via text amendment, existing building height limitation is 21’/24’ (3) Figure reflects 5% of acreage of unplatted tract on which the Club House is located (4) Landscape area of Lot 3 and the unplatted tract is estimated to be 98% Parking requirements for the proposed Club House can be satisfied with minor expansion and re-organization of the existing parking lot. The following summarizes how parking has been calculated for the Club House. The Town’s Zoning Code does not include parking requirements specific to a golf course. As such, parking demand for the course and Club House 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 Club House (i.e. the Banquet Room, restaurant and pro shop). Vail Golf Course Club House Remodel CUP Amendment/Rezoning/Text Amendment Page 10 In order to meet the Code requirement for parking, an additional 14 spaces have been added to the existing parking lot. This has been accomplished with minor refinement and re-organization of the parking lot. There is a slight reduction to the overall size of the parking lot. The existing parking lot includes only 750SF of interior landscaped area, the proposed parking lot includes 2,000SF of interior landscaped area. 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. Potential parking management measures that may be implemented include moving employee parking off-site, employing a valet program, and using shuttles to transport patrons of the Banquet Room to and from the Club House. This plan is an element of the Management and Operations Plan for the Club House, a copy of which has been submitted under separate cover. It is the intention of the applicant that upon approval of the CUP the commitments and obligations outlined in the Plan will be binding on the operators of the Club House. Vail Golf Course Club House Remodel CUP Amendment/Rezoning/Text Amendment Page 11 Management and Operations Plan The existing Club House has been used for banquets, parties and other functions for the past forty years. However, there are currently no parameters or limitations on how the Club House can be used for these purposes. It is recognized that operational parameters do need to be established in order to minimize any potential impacts of the Club House on the immediate neighborhood. By way of example, the proposed Operations Plan will address topics such as hours of operation, lighting and noise. The VRD has been directly involved in the preparation of the proposed Operations Plan for the Club House. This plan is considered to be a key element of the CUP and it is expected that it will be incorporated into any final approval for the project. A copy of the proposed Vail Golf Course Club House Management and Operations Plan has been submitted under separate cover. 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. Vail Golf Course Club House Remodel CUP Amendment/Rezoning/Text Amendment Page 12 Response The uses proposed by this amendment to the existing CUP are the same as the uses that have taken place in the building for many years. A notable change to existing conditions is the creation of a dedicated room for banquets and other functions – the Banquet Room. The existing room can accommodate +/-120 people and the new Banquet Room will have a maximum capacity of 200 people. To ensure compatibility with other properties in the vicinity, a number of management and operational parameters are included in the proposed Vail Golf Course Club House Management and Operations Plan. This Plan addresses use of the building, hours of operations, tents, parking management, noise/amplified sound, use of the previous 18th green area and neighborhood relations. 2. The relationship and impact of the use on development objectives of the Town. Response In 2011 the Vail Town Council took steps 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. The purpose of the project is directly in keeping with the Town’s development objectives. 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. Response The project will enhance golf and nordic skiing operations and also create new community space that can be used for a variety of public needs. Improvements to the existing parking lot will improve operational aspects of the Town’s bus system that services the Golf Course neighborhood. 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. Response The larger, dedicated Banquet Room within the Club House will allow for larger groups and more frequent functions within the Banquet Room. This will result in increased traffic on Sunburst Drive. However, this Vail Golf Course Club House Remodel CUP Amendment/Rezoning/Text Amendment Page 13 incremental increase in traffic is not significant when compared to background traffic in the neighborhood generated by existing residences, the golf course/nordic center itself and the existing banquet functions that occur at the Club House. Sunburst Drive has the capacity to accommodate increased traffic volume from the proposed CUP. Striped bicycle lanes currently exist along both side of Sunburst Drive from its intersection with Vail Valley Drive to just beyond the Club House. Parking for the golf course and the proposed CUP will be provided within the golf course parking lot. The existing lot will be increased in size by 12 spaces in order to provide the number of parking as prescribed by the Vail Town Code. It should be noted that this parking, while satisfying code requirements, does not address the potential parking impacts of a function being held in the banquet room during peak golf course operations. In these cases a Parking Management Plan will be implemented. By way of example, potential parking management measures that may be implemented include moving employee parking off-site, employing a valet program, and using shuttles to transport patrons of the Banquet Room to and from the Club House. This plan is an element of the proposed Management and Operations Plan for the Club House, a copy of which has been submitted under separate cover. It is the intention of the applicant that upon approval of the CUP the commitments and obligations outlined in the Plan will be binding on the operators of the Club House. 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. Response The scale of the improved Club House proposed is in keeping with the scale of buildings in the surrounding area. With a dedicated Banquet Room for banquets and other functions, the frequency and size of functions hosted in the building will likely increase from what has occurred in the recent past. In response to this and to minimize the potential for negative effects from the proposed use on surrounding uses, a Management and Operations Plan has been proposed. This Plan addresses use of the building, hours of operations, tents, parking management, noise/amplified sound, use of the previous 18th green area and neighborhood relations. Other than the Vail Town Code, there are currently no parameters governing the use of the existing facility.