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Home My WebLink Aboutagenda.apz.worksession.20090407AGENDA JOINT WORK SESSION CITY OF ASPEN PLANNING AND ZONING COMMISSIONS & PITKIN COUNTY PLANNING AND ZONING COMMISSION Sister Cities 130 S. Galena St. Aspen, Colorado Apri17, 2009 4:30 PM WORKSESSION 1. Review of the Aspen Area Community Plan update a. Review proposed adoption schedule & process b. Big picture discussion -Managing Growth 7:00 PM COUNTY P&Z REGULAR MEETING 1. County P&Z -Vote to reconsider P&Z action on Droste Application 8:00 PM ADJOURN MEETING MEMORANDUM TO: City of Aspen Planning and Zoning Commission Pitkin County Planning and Zoning Commission FROM: Jessica Garrow, City Long Range Planner Ben Gagnon, City Special Projects Planner Ellen Sassano, County Long Range Planner THRU: Chris Bendon, City Community Development Director Cindy Houben, County Community Development Director DATE OF MEMO: April 2, 2009 MEETING DATE: April 7, 2009, 4:30 in Sister Cities RE: Aspen Area Community Plan Update - P&Z Review REQUEST OF PB~Zs: There is no formal action requested at this time. This is a joint meeting with the City and County Planning and Zoning Commissions. The purpose of this meeting is to review the proposed adoption schedule for the AACP update, and to review the topic of growth. BACKGROUND: On March 3, 2009 the P&Zs, the Board of County Commissioners and City Council approved taking additional time to review and adopt the updated Aspen Area Community Plan. Since that time, the City P&Z has met to review process and review the State of the Aspen Area Report. A binder with a copy of the first draft of the Community Vision for the Aspen Area was provided to P&Z members on February 19`". The binder also includes a copy of the Community Survey Results and the results from the Community Vision keypad meetings. P&Z members should also have a copy of the 2000 AACP, the State of the Aspen Area report, the Economic White Paper, and a copy of the Housing Survey (completed as part of the State of the Aspen Area). If any P&Z member is missing any of these items, please contact staff. DISCUSSION: There are a number of items staff would like to review with the P&Zs regarding the adoption schedule and process. These are separated into topics below. Proaosed Schedule: Staff has outlined a schedule for the discussion and adoption of the AACP update. The schedule includes two (2) meetings a month between April and October on the AACP. This leaves one (1) meeting per month available for the P&Zs to hear current planning cases. While this schedule will take longer than the end of the summer, staff believes that this is the most realistic schedule given the complexity of the topics. Staff proposes starting the conversation on April 7`" with a review of managing growth, and then returning to managing growth after all the other topics have been discussed. Below is a proposed adoption schedule. This proposed schedule is also included in calendar format in "Exhibit B." April 7, 2009: Review Adoption Scheduling and Process Discussion of Growth (big picture) April 28, 2009: Aspen Idea May 12, 2009: Environmental Quality May 19, 2009: Transportation May 26, 2009: Transportation June 2, 2009: AABC June 23, 2009: Parks, Recreation, Open Space, Trails July 7, 2009: Economy July 14, 2009:Economy Aug 11, 2009: Lifelong Aspenite Aug 25, 2009: Historic Preservation Sept 1, 2009: Housing Sept 22, 2009: Housing Oct 6, 2009: Managing Growth Oct 20, 2009: Managing Growth Nov 2009: Public Check-In on draft; Open House/Clicker meeting, etc Dec 2009 /Jan 2010: Adoption Resources + Expertise: Staff is proposing that for every topic, we will invite staff from the city, county and other relevant agencies to provide input on the topic and to be available for questions. Action Items: For each topic, staff will present the P&Zs with a list of Action Items from the 2000 AACP with an update on status. Before we begin to draft new action items, staff will review examples of action items that have been useful and directive as well as examples of past action items that were too vague and generalized to be effectively implemented. Meeting Agendas: Staff has also outlined a proposed format for each of the topical meetings. This will help give structure to the meetings and ensure there is conversation on the relationship of each topic to the overall topic of growth. Staff proposes 2'/z to 3 hour meetings following this basic schedule: • 5 to 10 minutes: Relying on previous P&Z feedback on a given topic, staff presents revised Goal Statements or Action Items for P&Z review and approval. • 20 to 30 minutes: Presentation by staff and topical experts on new topic. • 1 hour 45 minutes to 2 hours: P&Z discussion of topic, providing direction on Goal Statements and Action Items to be drafted by staff. • 15 to 20 minutes: Discussion on how the topic relates to the big picture topic of Managing Growth. • Public Comment Meeting Packets: Staff proposes that meeting packets have a consistent format. Each packet would include: A listing of the pages in the 2000 AACP, the State of the Aspen Area report, the Economic White Paper, the draft Community Vision, etc that apply to the discussion topic. • A copy of the 2000 Action Items for the topic, as well as a status update on each Action Item. • An analysis of how the community feedback indicates consistency and/or inconsistency with the 2000 AACP. • Meeting minutes, including any revised Goal Statements, Action Items, etc, from the previous topic. Minutes will provide an opportunity for P&Zs to review the accuracy of staff's summary of previous topic duscussions and conclusions; before moving on to the new topic(s) for the day. Managing Growth Review: After reviewing this proposed process and schedule, staff proposes to have an initial discussion about managing growth on April 7'". A summary of the general concepts agreed upon by the P&Zs regarding growth at the February 24~" meeting is attached to this memorandum as "Exhibit A". This will be used to initiate discussion. Staff would then like to follow with a P&Z discussion on the "big picture" of managing growth. What kinds of growth in general do the P&Zs want to encourage and/or limit? Considering limited build-out potential for "new growth," these questions become more and more critical. This kind of "big picture" discussion about growth should help move us forward through subsequent related topics such as housing, lodging and others. As part of the discussion on April 7, it may be helpful for the P&Zs to go through a joint exercise that identifies "Issues" that will need to be resolved before a final Managing Growth section can be drafted and adopted. For example, under Affordable Housing, one issue might be: Will this plan identify how much more housing is needed, as the 2000 plan attempted to do? Or under Economics, Should this plan try to define "locally-serving business"? This will help staff as we prepare to discuss all these growth-related topics through the summer. Staff is not suggesting that the P&Zs try to finalize goal statements or action items on the topic of Managing Growth at the April 7 meeting. It will be a productive start just to have that "big picture" discussion and identify critical issues that will need to be hashed out as we discuss a myriad ofgrowth-related topics. Staff is suggesting that as we go through these growth-related topics, we set aside time at each meeting to make a connection back to the topic of Managing Growth. The last of our 10 topic oriented meetings this fall will be dedicated to drafting goal statement and action items for Managing Growth. In preparation for the big picture discussion on growth, staff recommends the Planning and Zoning Commissions read the following: • Summary of the Concept of Growth Management from the 1976 Growth Management Plan (attached as "Exhibit C") • The Growth Action Plan from the 1993 AACP (attached as "Exhibit D") • The Managing Growth section from the 2000 AACP (attached as "Exhibit E") Attachments: Exhibit A: Summary of growth concepts from 2/24/2009 joint P&Z meeting Exhibit B: Calendar of AACP update Exhibit C: Portion of Growth Management Plan Exhibit D: Growth Action Plan from the 1993 AACP Exhibit E: Managing Growth section from the 2000 AACP Exhibit A April 7, 2009 P&Z Meeting Summary of Joint Planning and Zoning Commissions Meeting Sister Cities Room /February 24, 2009 The following is not intended to serve as minutes of the 2/24/09 meeting, but to summarize areas of consensus and discussion on major issues. Purpose of AACP Update: There was consensus that the new AACP should feature purposeful and strong goals that include awell-stated rationale for each goal. There was consensus that action items should be adopted so that policy makers have clear direction on how to accomplish the goals. Definitions of erowth: For the purposes of clarity in P&Z discussions, there was an interest in establishing some common definitions of growth. When the P&Zs discuss managing growth in more detail toward the end of this process, staff will prepaze definitions to help bring greater clazity to those discussions. Pace of growth: There appeazed to be consensus that GMQS is not operating effectively with regard to the pace of construction. There appeared to be a consensus in favor of controlling the pace of development, as well as an interest in stating the purpose behind it. For example, pacing growth could reduce burdens on the transportation system and improve quality of life. The method for controlling the pace of growth will need further discussion under Action Items at a future date. Whether to pace all types, or some types of growth will need further discussion. Focus on desired uses: There was discussion about identifying the kinds of growth that is desired. There appeazed to be consensus on the need for more affordable housing. There was some support for growth in the lodging base. Specific goals and tools will need further discussion at a later date. Amount of growth: There appeared to be consensus to at least pursue discussions on limiting allowable FAR in the city and county. Reasons for limiting FAR included an interest in reflecting the historic pattern of development; limiting construction impacts and job generation, reducing pressure on the transportation system. Job generation: There was some discussion on how to grapple with job generation. Are we primarily concerned about job generation with regazd to all types of growth? 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C d ~ p C .- N r N T~ ` ~; E Z1 d O C *' a 7 N N N ro-_ O ro N A Y N 7 L N>`~Oro00aroiLLw NO roOCw.~°` j~p paUN"O F- > ro ro 01 U~ n T... F O L D U ro O O w U ro U ...~ 7 m .,L.., O U ~.L ~ ,, ,. ;:. `}: ii ~~ j'~ ~. --, ,~ R ~,"~ ~.. . '~ ,~ . _ _, ,, . OsB. Apply. these tquirements-tot. ' ~] 13. Continue to.allow cash m-lieu~payments but . a: all new developments in the Commercial at the-discretion of the City: and County, and -' Core; (CC),,Commeicial (C-1), and ~- as a lasiprioiity to pttiducingXnew units or - Office zone districts (0); and buying down existing units. Make the cash- b. additions:to existing buildings irCthe in-lieu payment commensurate with cost to -° Commercial Core (CC), Commercial 1 build dwelling units: (C-1j and Office zone (Oj districts, on a proportionate basis:-. ^ 14. The "change: in use" provision of the City - ' "' Code should.be amended to reynire •, , ^ 9. Study how to apply these requirements, to ~ mitigation of any change in use than ' "substantial redevelopment".pio)ects, where produces a net increase in impaets.,l7ie ' 0 - all or virtuaAy all of a commercial building, level of mitigation required. should be 603 , is tom down and rebuilt. ' of the increase,in impacts generated by the - ,, - change iause..- .. d l0.Study how to conveh the existing residential ; ^ 15. Give. a higher priori to on=site housing in ~ ~' ~ "unit" quota to "livingutut equivalent" (i.e., the commercial cote, such as providing ; , G ' rowth one unit of,quota may equal 6;000 square additional pomts, in the ' -feet, or one living unit equivalent to a 12,000 Management sooting system. ,- square foot house would then require two " _ = living unit equivalents of two-units o~quota 0.16.. Study Growth Management Quota System ' ' ' under the Growth Management Scoring :, incentives for local serving neighborhood commeretal uses. Ensure that ro ects "System.).• a ~ whichrece~esuchincentivEsar us i l d es. serv ng asloca of utility extension ;. ~ petmanetttl restncte ^ 11. Coordinate the use - .. ~' policies to reinforce the Community Plan ": and Growth Management Policy Plan.- ^ 17aDevelop a Resident Occupancy (R:O:) • Forge a coordmated plan foc water and- program that uses the Gmwth,lvlanagement sewerservrce between the City of Aspen Planning process to encourage R.O. units and Aspen Consolidated Sanitation District. . , (encourage R.q. units along with the . `.. developmentof fully deed restricted units, ` O 12.;.Create scoring priorities for on-site ._,, i.e., bonus points for R.O. units :while fully ' provision of family/ownership affordable deed. restricted-units score points foc housing. ~ ,.minimum threshold:) _~ • ' ,, ~ .:_ _ .. _ .: `~ . ;. r _ ` ,,., ,. ~ ~._ ..... - c . - • - v \\ ,. ... , _.. _.. , _~ ~xni~i~ ~ ~ ~~~ ~ ~ Three Decades of Growth Management •' has Shaped Aspen's Character '•• ~.il Background Since the eazly 1970's, the Aspen azea has taken the position that controlled growth is essential in order to maintain quality of life for the residents and visitors to the community. The 1976 Growth Management Policy Plan established the framework for implementing growth control regulations for residential, commercial and lodging sectors of the community. The two major goals of the 1976 Growth Management Policy Plan were as follows: • To preserve the environmental and social quality of life to which residents have become accustomed; and, • To obtain and develop a balanced harmony between the economic needs and fiscal capabilities of the community. The community now has almost 25 years of experience with growth policies and reg- ulations. Growth Management has succeeded in meeting many of its overall goals. However, due to changing community priorities, un- expected changes in the cost of living in the community and other factors, new issues have emerged. The Growth Management System was adopted, in part, to give the community time to plan for necessary capital improvements and to better preserve Aspen's community chaaacter. The community has achieved a fair degree of success in providing new services in con- junctionwith growth during the past 20 yeazs. However, our experience over the past 20 yeazs tells us that we as a community have not been equally successful in anticipating and ^~ 'Lb00 ~~~ Ir~~1 `_..r~h~ addressing the social consequences of our plans and regulations. The growth management process did not anticipate or plan for the increase in the number of second homes, or the movement of long time local residents to other communities down the valley due to the rising cost of housing and shortage of affordable units. The 1993 AACP did not anticipate the impacts of businesses changing use or the substantial increase in jobs available in the community. The percentage of employees working and living within the community dropped from 45% in 1993 to 35% in 1997. This left us even farther from our 1993 goal of housing 60% of our workforce up-valley of Aspen Village. Because a limited amount of buildable land remains in the Aspen azea and because our goals for restoring the community aze ambitious, it is essential that all future development help take us towazds our goals. Managed growth provides an opportunity to monitor the effects of our actions and to make the necessary adjustments. The Citizens of Pitkin County share a commitment to pre- serving open lands for wildlife, recreation and views; to providing affordable housing; to supporting a more sustainable local economy; and, to maintaining a sense of unique community character. ~. ~I ~1 11 9 Managing Growth 00 0 Intent •Escourage land use to occur in such a way that it protects and enhances the existing physical and natural environment of the valley. Limit the ultimate population in the Aspen area through a Growth Management System. ~ Philosophy More than 2,000 years ago Plato compazed a community to an individual with the need to keep various functions balanced. Today, the same wisdom applies to our community. Growth within a community needs to be like that of an individual with the need to keep various functions balanced. Too much too fast can bring indigestion. Additionally, as one matures, growth must slow and finally stop. We feel that ceiling is fast approaching where we will be at the maximum in economy, physical space, and quality of life. The Aspen azea is compazable to that of a maturing individual. Natural and human made resources aze reaching their capacity: from land, water, and air quality to highway capacity and pazking. As a consequence, this Plan endorses the continuation of a Growth Management System to limit and pace the pop- ulation build out of the Aspen area. The existing Growth Management System needs to be revised and updated to eliminate loopholes found in the 1993 Growth Management Quota System. A maximum population of 28,000 to 30,000 persons within the community growth azea is recommended based on the busiest month in 1998, July. The 1993 Growth Management System reduced our 1993 actual rate of growth from 3.47% to an allowed simple growth rate of 2% on new development of residential sub- divisions, commercial structures, and tourist accommodations. Although by measuring the same indicators our rate of growth has decreased to less than 2% since 1990, the growth experienced has felt much higher. The 1993-revised Growth Management Plan also concerned itself with the chazacter of the community. That plan honored projects and applications that aze community serving. Recently, a high rate of growth has been seen in job generation. The level of staffing has increased in retail stores, restaurants, hotels, and in demand for. higher levels of services associated with construction and operation of free-market homes. As was called for in 1993, we again call for a critical mass of permanent residents and employees to be housed within the community growth area. Our goal is to reverse the tide and bring back the ebbing balance of our community/resort. We feel this needs to occur at a rate faster than the allowed 2% growth rate. If possible, this should be done without new growth and with minimal new construction. The conversion of existing free- mazket units to affordable deed-restricted units is preferred. Construction of new affordable housing units should be economically durable and compatible with the surrounding neighbor- hood. We should endeavor to bring the middle class back into our community. We should discourage sprawl and recognize its cost to the chazacter of our community, our open spaces and our rural resources as well as the fiscal expenses associated with the physical infrastructure of sprawl. 17 2J5b0 ~~C~ 1~G(1A~i~1 C~ SeC~ifXl n o~ ti Managing Growth 0 Asaen Community Growth Boundary To conserve resources, an Aspen Community Growth Boundary (Map Ac Boundaries and Physical Constraints) has been identified. The City agrees to accept greater density within the boundary in ex- change for the preservation of important open spaces in the outlying County and key pazcels in the City, maintaining the sepazation between communities, and the prevention of sprawl (Map B: Future Land Use Composite). Growth should be accommodated within the tightly delineated boundary, and the County should not approve or provide infrastructure to support development outside of it. Within the boundary, we encourage greater levels of density for affordable housing built with quality and attention to the chazacter of the neighborhood. A Community Growth Boundary will focus and reduce infrastructure expenditures, reduce the spread of develop- ment into the countryside and maintain a rural chazacter between communities. At the same time, the boundary will promote concen- trations of development supportive of transit and pedestrian accessibility. Transit Oriented Development nodes outside of the community growth boundary are consistent with the intent of this plan provided they aze located within Y< to % mile of a transit stop and aze designed in such a way as to be conducive to transit use and the adopted Interim Aspen Area Citizen Housine Plan (Addendum B). With these factors in mind, a compact and definitive Com- munity Growth Boundary is delineated which will replace the "metro area" and "extended metro azea" boundaries of the 1993 Plan. County lines and city boundaries do not divide the Roaring Fork Valley when it comes to big issues. Intergovernmental agreements should be attempted on all issues that will affect the neighboring government. ^ ^ ^ ^ ^ "During the implementation of this plan, the community should always be aware of and address any unintended consequences on the remainder of the valley." (1993 Aspen Area Community Plan) ^ ^ ^ ^ ^ PO~ICy Ensure that future zoning amendments do not permit development in the Aspen Community Growth Boundary azea beyond acceptable levels of growth in this plan. Goals A. Through the Growth Management System and good land use planning, limit the ultimate population in the Aspen area in order to preserve the quality of life for residents and enjoyment for visitors. B. Provide fora "critical mass" of permanent local residents by providing a limited number of new affordable housing units within the Aspen Community Growth Boundary. C. Revise the Growth Management System to implement a true rate of growth that counts all of the growth occurring locally including job generation, changes in use of property, remodeling of existing structures, and infrastructure. Pace the actual rate of all growth (with the exception of affordable housing) to less than 2% annually by limiting the allocation of building penmits or a quota system of some kind. f ~' r !- r !• 18 ~' Managing Growth D. Contain development with the creation of an Aspen Community Growth Boundary and intergovernmental agreements between the City of Aspen and Pitkin County to ensure development is contained and sprawl is minimized. E. Foster awell-balanced community through integrated design that promotes economic diversity, transit and pedestrian friendly lifestyles, and the mixing of people from different backgrounds. F. Develop a better database and tracking system for land use and affordable housing planning. G. Utilize and encourage a regional approach to land use planning whenever possible. Concentric Ring Theory (GMQ Policies) The drawing above illustrates the direction the City of Aspen would like to grow, with greater densities located in town and the downtown core and alternative development near transit-oriented development (T.O.D.) sites. Transfer Development Rights (T.D.R.) indicate the desire to transfer development rights from areas in the county to developments within the urban growth boundary. 19