HomeMy WebLinkAboutagenda.council.worksession.20220912AGENDA
CITY COUNCIL WORK SESSION
September 12, 2022
4:00 PM, City Council Chambers
427 Rio Grande Place, Aspen
I.Work Session
I.A Main Street Cabin Housing and Armory Interim Use Options
I.B Waste Code Revision Update
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MEMORANDUM
TO:Mayor Torre and Aspen City Council
FROM:Rob Schober, Capital Asset Director and Jen Phelan, Development Manager
THROUGH:Scott Miller, Public Works Director
MEETING DATE:September 12, 2022
RE:Main Street cabin and Armory: update and direction
REQUEST OF COUNCIL:Following the June 20, 2022,work session with Council reviewing the Asset
Management department work plan, staff has gathered information requested by Council regarding the
Main Street cabin. Additionally, staff is providing an update on options for future usage of the Armory.
With both buildings, staff is seeking direction and confirmation on next steps.
SUMMARY AND BACKGROUND:
Main Street cabin:In June, City Council directed the Asset
Management department to move forward on a number
of prioritized projects including the Main Street cabin. The
cabin is presently home to two city departments and is
being considered as a future city housing site. At the work
session, additional information related to the market
value of the property and the number of dwelling units
that can be accommodated was requested.Staff has
evaluated the zoning parameters for redeveloping the site
into affordable housing, worked with an architect to
evaluate the feasibility of the site as housing, and worked
with a real estate agent on determining the potential
value of the property.
630 W. Main Street is a 3,000 sq. ft.lot located within the Main Street Historic District and is a designated
landmark. It was home to Mountain Rescue prior to the city’s use of the property. The original structure
is a pan abode, a log kit building, which is an architectural style identified under the Aspen Modern
preservation program. The property is located within the Public (PUB) zone district and is considered an
Essential Public Facility.Surrounding properties along Main Street are generally located in the Mixed-Use
zone district. As a designated landmark, exterior changes to the building require approval and other
associated land use reviews will be required dependent on the final programming and design proposed
for the site,such as conditional use approval to permit the development of affordable housing as well as
change of use approval to convert the building from Essential Public Facility to affordable housing.
Figure 1: Main Street cabin
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Number of dwelling units:City Council asked how many dwelling units
can be provided on site. If the existing structure is converted to
housing, it appears that two, 1-bedroom units can be reasonably
accommodated and meet parking, trash, utilities and site circulation
needs. Thisoption willbe the most cost effective by using the existing
structure. Another option, that will increase the overall project cost,
is to demolish the rear addition and build new, inclusive of a
basement. Any new addition is required to meet the Historic
Preservation Guidelines. This option may allow for an additional unit
(up to 3) or at least one larger unit and better storageon-site. Overall,
accommodation of on-site parking will be a constraint for the lot.
Market value of property:Staff reached out to a real estate
representative to answer City Council’s questions regarding the value
of the property if it were to be sold. As part of the question, Council
asked how a commercial deed restriction would affect the sale price. Potential worth of the
property on the open market is estimated at the $2.1-$2.3 million range, and assumes the historic
designation is removed. Optimization of the lot is more difficult with the historic designation and
will decrease the value. The consultant thought that highest and best use would most likely be
affordable housing and that the value is stronger if residential is allowed. Most likely, the property
would need to be rezoned from Public to Mixed-Use if privately owned. Recent changes to the MU
zone district prohibit the development of free market residential and increasesthe allowable Floor
Area for affordable housing development.
Armory.At the last check-in with City Council
on May 16, 2022, staff discussed the
remodel and reuse of the Armory that
included several remodel options. As part of
the discussion, high-level cost estimates
were provided for each option. The remodel
options ranged from a ‘Fluff and Buff’ of $7.5
million that included new carpet and paint,
as well as some basic mechanical upkeep, to
the ‘The Works’ option that was estimated
with a top end cost of $26.5 million and
included increasing the head height and size
of the basement, reworking the entire interior of the building, and constructing an addition along the
alley. City Council preferred ‘Somewhere in the Middle’,estimated to be in the range of $18 -$23 million,
more than the $7.5 million currently allocated for the life of the project. City staff also summarized the
outreach results undertaken with the community and the broad themes that were identified. Overall,
participants indicated a preference for community use of the Armory with top uses identified as: casual
dining, community center, multi-purpose space, non-profit services, and lower price point retail (co-
working dropped from 5th to 6th in the second round of engagement when community center was added
as a potential use).
DISCUSSION:Staff would like to confirm with City Council its desire to move forward with the Main Street
cabin housing project in light of the additional information provided. Secondly, recognizing that the city
Figure 2: Site
Figure 3: Armory
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does not currently have the funding to cover the expense of an extensive remodel of the Armory, staff
would like to propose some options for the interim use of the building.
Main Street cabin. Staff has provided information on the estimated value of the property, which includes
removing the landmark designation and would like to confirm that maintaining the property within the
city’s portfolio is preferred.
Secondly, if redevelopment into affordable housing is the preferred option, staff would like to confirm
that remodeling the existing structure into two units is the preferreddesign rather than demolishing the
rear addition and building a new addition with a basement containing two to three dwellings. Besides
minimizing potential landfill materials, the lifetime budget of this project is $2.1 million which is not
enough to accommodate the latter development scenario.
Armory. Without the funds to remodel the Armory to a level Council has indicated, a plan for moving
forward is needed. Staff is proposing that the Armory be leased for the foreseeable future as long-term
options are considered.
Lease the building.Pitkin County is expected to vacate the building in the fall. The city can consider
opportunities to lease the building until it is ready to move forward with some form of remodel.
As an Essential Public Facility, there may be some limiting factors to what uses may occupy the
building. Staff is expecting to work with ACRA and potentially a USFS visitor component to move
into part of the building.
As a property located in the Public zone district, the following uses are permitted by right: library,
museum, post office, hospital, essential governmental and public uses, fire station, schools, arts
and cultural uses, nonprofit uses and child care. The former governmental offices are considered
an Essential Public Facility and it will be easier to move in a use that is similarly considered an
Essential Public Facility. Temporary Uses may also be an option for a limited time.
Any lease of the building will require development of the term of the lease,typical city leases run
from 5 - 10 years. Shorter leaseperiods provide less incentive for investment compared to longer
terms. Staff is requesting direction on the preferred term of the lease and if tenants should fit
in with the preferred uses identified in the public outreach?
Public/private partnership vs. solely city project. In considering options for long term
redevelopment of the site, City Council should consider two paths for redevelopment. Rather than
solely redevelop the property within a longer timeline, the Council can consider developing a
public private partnership with private sector developers. This may provide an accelerated
timeline and additional, needed capital but would need to be developed in such a way as to ensure
community expectations are met. If this option is an option Council would like to pursue, Staff is
requesting a clear understanding of City Council’s use preferences so that staff can develop a
clear proposal.
RECOMMENDATION: Staffrecommends confirmation ofthe redevelopment direction for the Main Street
cabin and for staff to move forward on leasing the Armory.
EXHIBITS:
Attachment A: Program Analysis, Main Street cabin
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The Outpost Studio
Affordable Housing Program Options:
OPTION 1:Convert the 20’-0” x 30’-0” (600 SF) Pan Abode into Unit 1 -
1-Bedroom/Studio
Maintain the 600 SF garage - 2 parking spaces
Convert the 20’-0” x 35’-0” (700 SF), 2nd floor into Unit 2 -
1 or 2 Bedroom Unit
Parking: 2 or 3 spaces required, 2 provided
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The Outpost Studio
OPTION 2:Convert the 20’-0” x 30’-0” (600 SF) Pan Abode into Unit 1 -
1Bedroom/Studio
Garage reduced to 400 SF, Trash/Recycling Added
Unit 2 - Remodel remaining 850 SF to 2-Bedroom
Parking: 3 spaces required, 2 provided
OPTION 3:Convert the 20’-0” x 30’-0” (600 SF) Pan Abode into Unit 1 -
1-Bedroom/Studio
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The Outpost Studio
Remove Addition
New Addition including full basement
Unit 2 - Entry on Main Level, 2 Bedroom on Upper Level
Unit 3 - Entry on Main Level, 1 Bedroom in Basement
Parking: 3 spaces required, 2 provided (w/ 60% would be okay)
OPTION 4:Convert the 20’-0” x 30’-0” (600 SF) Pan Abode into Unit 1 -
1-Bedroom/Studio
Remove Addition
New Addition extending to alley (no setback)
Unit 2 - Entry on Main Level, 2 Bedroom on Upper Level
Unit 3 - Entry on Main Level, 2 Bedroom in Basement
Parking: 3 spaces required, 2 provided (w/ 60% would be okay)
Additional Considerations:
Accessibility: Depending on the number of units, the IBC may be the governing code in which
case accessibility considerations would be required. The City of Aspen has the opportunity to
make 1 accessible unit (Pan Abode) with minimal impact to the Historic resource. Accessible
parking is not feasible.
Unit Design: Above grade requirement of 50% of a unit would require modification.
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MEMORANDUM
TO:Mayor and City Council
FROM:Ainsley Brosnan-Smith, Waste Diversion and Recycling Program
Administrator
THROUGH: Tessa Schriener, Sustainability Manager,
CJ Oliver, Environmental Health and Sustainability Director
Phillip Supino, Community Development Director
MEETING DATE: September 6, 2022
RE:Organic Waste Diversion and Solid Waste Code Changes
____________________________________________________________________________
PURPOSE:
The purpose of this memo and corresponding work session is to provide Council with an update
on changes to the Solid Waste Chapter of the Municipal Code (Title 12) to prohibit the landfilling
of organic materials.
PREVIOUS ACTIONS AND BACKGROUND:
On August 10, 2021, City Council adopted Resolution #76,Series 2021, which directed staff to
reduce Aspen’s Greenhouse Gas emissions.The resolution directs staff to: “take meaningful
action and provide leadership in reducing the Aspen community’s contribution to greenhouse
gas emissions by the amount which is scientifically proven to limit global temperature change.
This will be accomplished through:
a.Maximizing efficiency and minimizing carbon emissions in all of Aspen’s emissions
inventory sectors including: Waste Reduction and Diversion, Transportation, and the
Built Environment
b.Leading climate policy and legislative efforts at local, regional, national, and global
scales”
In January 2022, City Council adopted new science-based targets for GHG emissions reductions
of 63% by 2030 and net zero by 2050, and waste reduction targets to help achieve these emission
reductions of:
Reduce organic material going to landfill by 25% by 2025 and 100% by 2050
Reduce all waste going to landfill by 70% by 2050
Adopting these targets supports Council’s adopted Greenhouse Gas Emissions goal and
Aspen’s participation in the ICLEI Race to Zero campaign, to which Aspen is a signatory.
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At the February 28, 2022 work session, staff presented council with an update on the state of
organic material in municipal solid waste and policy and program options to achieve further
organic waste diversion. Council directed staff to draft revisions to the Solid Waste Chapter of
the Municipal Code (Title 12)that prohibits the landfilling of organic waste and return with an
ordinance for council consideration.
Aspen’s Municipal Solid Waste (MSW) is 57% divertible organic material such as yard waste,
food waste,and compostable materials. Since 2011,through a variety of voluntary policies,
programs, and incentives, Aspen has steadily increased the amount of organic material diverted
to compost from 0 tons to an estimated 700 tons per year
While these efforts have been successful, they have resulted in diverting only 3-4% of organic
material found in the municipal waste stream, which is far below the 37% of food
material identified in the 2015 composition study of municipal solid waste in Aspen. National
studies have indicated retail food businesses’ waste composition as 60-80% organic, food
waste.Staff identifies the retail food sector in Aspen as one of the largest generators of food
waste,yet an estimated 10% of these establishments divert their organic waste from the landfill.
Since the introduction of food waste diversion through composting,organic material diversion
through voluntary participation has stagnated.Based off annual reporting,an average 4% of the
organic waste generated in Aspen is diverted to compost. From this, staff suggests voluntary
buy-in as an ineffective way to achieve Council’s adopted waste goals.
In winter of 2021/2022, staff received feedback from a variety of retail food establishments on
organic waste diversion. A majority of these stakeholders supported organic waste diversion for
the environmental benefits but identified wildlife safety concerns, space constraints for
additional compost receptacles, and inequitable cost burdens as the key barriers to entry.A
summary of this feedback can be found in Exhibit A.
DISCUSSION:
Incorporating stakeholder feedback from community businesses and the public, staff drafted
revisions to the Solid Waste ordinance,Title 12,supporting organic waste diversion per Council
direction in February 2022. The process of updating Title 12 is a collaborative effort with the
Aspen Police Department, Community Development, Engineering,and Parks Department;this
stakeholder group provided input on the implementation of an organic materials prohibition from
the landfill and identified additional updates needed to modernize Title 12.
The key change in the proposed code update is the banning of food waste from the landfill. This
proposed action would occur in a phased roll-out beginning with businesses holding a City of
Aspen Retail Food License.The ordinance does not mandate composting but requires organic
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waste to be designated for a recoverable management practice of choice such as food
donation,animal feed,or composting.However,due to the convenience of existing collection
services and readily available infrastructure for separating and collecting organics for
composting,staff predicts the majority of participants will enroll in an organics hauling system
for composting.
In preparation for this approach, Environmental Health and Sustainability is working in
collaboration with the Aspen Police Department to better assist in the enforcement of wildlife-
safe waste practices through staff recommended approaches to outdoor organics storage. Staff
concluded that the steel, wildlife-proof waste collection containers is the safest approach for
organic outdoor storage, and these containers will be required in the updated ordinance for all
businesses in the City that choose to compost.
In 2019, estimates show organic material buried in the landfill emitted 3,944 tons of CO2e
(carbon dioxide equivalent) whereas the composting of organic material sequesters CO2e from
the atmosphere. Prohibiting food waste from the landfill is the single most impactful action that
City Council can take to reduce municipal solid waste and its related emissions.Organic waste
accounts for the largest portion of Aspen’s Municipal Solid Waste and immediate, tangible
actions can be taken through existing systems to reduce landfilled organic material.
FINANCIAL IMPACTS:
For businesses that choose composting as their organic waste diversion option, there is an up-
front cost for the container and collection service.Businesses who hire a hauling service for
composting will incur the cost for collection dependent on the frequency of collection, size of
container, and number of accounts sharing the container.Predicted material start-up costs for a
composting collection service across the commercial sector is an estimated $108,000 -
$179,000 ($550 -$1,200 per wildlife-proof container).Costs were estimated upon evaluation of
current market prices for the steel, wildlife-proof, outdoor receptacles,and the estimated volume
of organic waste generated annually.For fiscal years 2022 and 2023, Environmental Health and
Sustainability has $100,000, per year,of annual, available funding to subsidize the cost of the
wildlife-proof containers for commercial businesses in Aspen. Providing these wildlife proof
receptacles will directly reduce the cost of composting for commercial entities.
ENVIRONMENTAL IMPACTS:
When organic waste is buried in a landfill it becomes starved for oxygen, producing a potent
greenhouse gas, Methane, adding to the City’s emissions footprint. A prohibition on the
landfilling of organic waste through Title 12 revisions would greatly influence the City’s
commitment of Race to Zero, GHG emissions reductions of 63% by 2030 and net zero by 2050,
and goal setting of a 25% reduction in organic material landfilled by 2025, and 100% by 2050.
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Recovering landfilled organic material presents opportunities to feed people, feed livestock, or
create compost in addition to reducing greenhouse gas emissions from landfilling organic
materials. With the readily available composting operation in Pitkin County, organic material is
processed into a natural, nutrient rich soil amendment and when applied to the landscape
improves local soils, water retention, and carbon sequestration capabilities that harness and
stores carbon from the atmosphere into the soils.
ATTACHMENTS:
Exhibit A _ Business Outreach Summary
CITY MANAGER COMMENTS:
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Summary of Retail Food Business Outreach on Organics Diversion
From November 2021 through January 2022, staff engaged 86% of retail food establishments in
Aspen that do not compost their organic waste. Outreach efforts involved in person visits to
restaurants, dispersal of information through email, a webinar session, and a survey to collect
data on waste habits.
Restaurant owners and managers expressed high interest in organic waste diversion for the
environmental benefits but identified key barriers to entry for composting organic materials. Top
barriers identified by business include:
Internal and external space constraints
Costs of services
Educating staff
Wildlife safety
When asked if the City should support businesses in diverting their organics from the landfill the
majority of respondents answered “yes”. This was followed up with a question asking how the
City could support business and the top answers were:
City provision of organic collection containers
Subsidized hauling services
Staff has incorporated this feedback into the initial draft of the updates to the solid waste
ordinance (Title 12) and will prioritize the identified barriers to entry in the roll-out and ongoing
programming.
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