September 10, 2018, New Business #:2 Planning Commission ‐ Staff Report
Subject: PUD2017‐0005, SKC2017‐0007, and AMD2017‐0006: Amendment to Grand Targhee Master Plan Agent: Jorgenson Associates P.C. Applicant /Property Owner: Grand Targhee Resort, LLC Presenter: Roby Hurley
REQUESTED ACTION Grand Targhee is requesting to amend the Resort Master Plan by submitting the following applications:
Amend the Grand Targhee Master Plan (Master Plan) pursuant to Section 8.7.3, Planned Unit Development (PUD) (PUD2017‐0005), Sketch Plan (SKC2017‐0007) pursuant to Section 8.3.1, and LDR Text Amendment (AMD2017‐0006) pursuant to Section 8.7.1 of the Teton County Land Development Regulations. The application states that the applicant proposes to amend the Master Plan, based on the following goals: I. Submit one consolidated Amended and Restated Master Plan document that conforms to the format style, order and content of the current Teton County Land Development Regulations (LDRs) and other master plans recently approved by the Teton County Planning Department. II. Remove regulations contained in the 2008 Master Plan and 2009 Standards and Conditions that can be deferred to the LDRs, including certain use and development standards and definitions. III. Eliminate conditions and regulations contained in the approved 2008 Master Plan and 2009 Standards and Conditions that conflict with the Comprehensive Plan and LDRs or otherwise prevent Grand Targhee Resort from achieving the Comprehensive Plan’s vision. IV. Incorporate all other relevant regulations and guidelines contained within the 2008 Master Plan and the 2009 Standards and Condition into the new Master Plan. V. Incorporate the most recent iteration of the Resort’s phasing plan and site plan into the amended Master Plan. VI. Incorporate most of the original 36 conditions of approval of the PUD into the amended Master Plan as appropriate The application includes 3 sets of findings (one set for each of the applications submitted), a final draft of the proposed Master Plan, a red lined/track change version of current Master Plan, a redlined/track change LDR Section 4.3.7, Grand Targhee, a condition tracking spread sheet and a Master Plan Map. Grand Targhee has also applied for a miscellaneous application (MSC2018‐0006) for the current Master Plan approval, to be extended 2 additional years, pursuant to LDR Section 4.3.1.E.8.c. in the event that this Master Plan amendment is not approved. The Planning Commission is not required to hear MSC2018‐0006 for the Master Plan extension. The Master Plan technically expired during the processing of these applications, on February 4, 2018. Date. If the amendments are approved, then no action by the Board of County Commissioners will be required on MSC2018‐0006. A separate staff report for MSC2018‐0006 will be provided to the Board. Definitions and Abbreviations: Grand Targhee Resort (Resort) – The applicant Master Plan‐This application for a Resort Master Plan which is comprised of the following individual applications: Planned Unit Development (PUD), Sketch Plan (SKC) to inform the PUD and the LDR Text Amendment (AMD) to amend the Grand Targhee section of the LDRs
Planning Commission September 10, 2018, New Business #: 2
Master Development Plan (MDP) ‐ The 2017 Caribou‐Targhee National Forest Master Development Plan accepted by the National Forest Service, produced by the SE Group United States Forest Service (USFS) ‐ Approval authority for the MDP
BACKGROUND/DESCRIPTION PROJECT DESCRIPTION Grand Targhee has submitted the following applications: PUD2017‐0005, Planned Unit Development to amend a master plan SKC2017‐0007, Sketch Plan to inform the PUD AMD2017‐0006, LDR Text Amendment to amend LDR Section 4.3.7 Grand Targhee Grand Targhee is requesting to update their current 2008 Resort Master Plan to reflect the Resort's current economic operating conditions, update the Plan to reflect the 2012 Comprehensive Plan and 2016 LDRs, update the phasing plan and produce a viable Master Plan that does not contain separate conditions. The 2008 Master Plan was approved with 36 conditions. Grand Targhee updated its Caribou‐Targhee National Forest Master Development Plan (MDP) in 2017. The Resort can now proceed with applications for specific improvements in the National Forest, identified in the MDP. These applications reflect changes which have already been accepted in the MDP. According to the applicant, Grand Targhee has been unable to implement its Master Plan due to economic conditions related to the nationwide recession and the challenges of meeting the approval conditions. The application contends that satisfying all thirty‐six conditions of the 2008 approval under current market conditions and zoning regulations have proved economically unviable. The application contends that mechanisms to meet the land conservation conditions, such as the previous PRD tool are no longer available. No changes are proposed for the shape or size of the Resort parcel (120 ac.), number of dwelling units (450), total commercial square footage (150,000), transportation plan (70% ridership), or employee or affordable housing plans (Located in Driggs/Victor Area, built commensurate with Lodging at Resort). In addition to the organizational changes and updates, the major changes being proposed include a more detailed phasing plan, better coordination between improvements in the National Forest and the base area and an alternative Community Services Element. EXISTING CONDITIONS AND RESORT HISTORY In December 1969 the Resort was issued a Special Use Permit by the Forest Service and commenced operation as a winter recreation site. The Resort initially consisted of two lifts, a single rope tow and a 16‐unit hostel and cafeteria. The Resort was originally founded as a nonprofit organization to serve the residents of Teton Valley. In 1971 a MDP was prepared and included, a mountain capacity of 6,000 skiers, construction of 475 units in the base area, snowmobile trails, a golf course, and a summer trailer park. Construction of the Sioux Lodge was completed in 1971. The Resort went under private ownership in 1973. The 1980s brought a change of ownership, snow cat tours and new skier terrain. In 1990 a fire destroyed most of the Resort’s base area followed by a complete rebuild. In 1991 a new MDP was completed that included both on‐ mountain and base area development at the Resort with substantial planned upgrades. The new MDP included an Environmental Impact Statement (EIS). Daily capacity was revised to 5130 and base area facilities expansion included development of 686 units of lodging, 98,342 square feet of skier services, 37,900 square feet of commercial space, eight lifts and a summer trail network. In 1997 the Resort changed hands to the current owner, Grand Targhee Resort, LLC. Another EIS was prepared for base area lands and a parcel to the north. In 1997 a land exchange was initiated that would result in 120 acres in the base area becoming private lands. 400 acres of private lands valued for grizzly bear habitat and wetlands known as Squirrel Meadows was proposed for transfer to the Forest Service.
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The 2000s saw completion of the land exchange, expansion of skier terrain, and new and improved lifts in the National Forest. The land exchange traded 400 acres of prime grizzly bear habitat, adjacent to and surrounded by existing protected habitat in northwest Teton County, WY in the Targhee National Forest for 120 acres of lower value habitat and developed land cover at the Resort base. The 120 acre parcel was configured in such a way to minimize night lighting viewable from Teton Valley and reduce natural resources impacts. The Transfer included the base area entitlements of the 1995 MDP and the 2000 Record of Decision, including 37,900 square feet of commercial floor space, 970 residential and lodging units and skier capacity of 5130. In 2006 the Resort was zoned Rural (DBA2006‐0002) based on LDRs at the time requiring land transferred from a public agency to a private entity were required to be zoned Rural. An application for Planned Unit Development had already been submitted in 2004 (PUD2004‐0001), requesting 875 residential/ accommodation units, approximately 60,000 sq. ft. of commercial use, approximately 118,000 sq. ft. of resort services and amenities and 1,930 parking spaces. In 2008 the Board of County Commissioners granted approval of PUD2004‐0001 to decrease the lodging units and increase commercial space, approving 450 housing and lodging units, 3,500 Average Peak Occupancy (APO) and 150,000 sq. ft. of nonresidential use with 36 conditions. As stated above, a final EIS was performed which excluded all sensitive lands from the transfer, resulting in the irregular shape of the parcel and a reduction in acreage from 158 to 120. During the 2006 rezone process, staff did not recommend that the parcel be included in the Natural Resources Overlay (NRO); accordingly, the Resort is not located in the NRO. An environmental analysis (EA) was performed in 2014 (EVA2014‐0034) and an extension was approved in 2016 (EVA2016‐0021), validating the EA until September 30, 2019. The existing and proposed Master Plan utilizes two Plan Areas; the Resort Center Plan Area (RCPA) and the Residential Accommodation Plan Area (RAPA). Given a Resort Area orientation of east to west, the RCPA is located approximately in the center, contains 35.7 acres and is proposed for 360 units. The RAPA is located on three sides of the RCPA, contains 84.3 acres and is proposed for 90 units and 150,000 square feet of nonresidential use. Currently the Resort has 96 lodging units and 37,700 square feet of commercial and support space. No changes are proposed for the number of dwelling units (450) or total commercial square footage (150,000). Grand Targhee Chronology:
1973‐ Master Plan/ Special Use Permit approved by Targhee National Forest 1989‐ Approval of a Conceptual Master Plan for Big Valley Corp. 1997‐ Grand Targhee Resort, LLC acquires ownership of the Resort 2004‐ US Forest Service Land exchange; 120 acres in the base area for 400 acres of grizzly bear habitat 2006‐ Land was zoned Rural by Teton County (DBA2006‐0002) 2008‐ Teton County Board of County Commissioners granted first Master Plan (PUD2004‐0001) 2017‐ Grand Targhee updated its Caribou‐Targhee National Forest Master Development Plan (MDP) December 5, 2017‐ Grand Targhee makes application to amend its Master Plan Grand Targhee sees an average annual skier/rider visits of 159,277 and averages 140 days per season. The Forest Service lease area is approximately 2,300 acres and is managed by the aforementioned 2017 MDP. The Resort currently operates four lifts and one beginner conveyor lift serving 78 Alpine trails and routes that total approximately 520 acres. In addition, the Resort operates snow cat tours, maintains trails for Nordic skiing and winter biking. Summer activities at the ski area include mountain biking, horseback riding, music festivals, and a variety of other activities. The MDP outlines deficiencies in skier services and proposes upgrades to better serve visiting skiers. The upgrades include, new lifts and trails, terrain improvements, 2 new lift top restaurants, warming cabins, restrooms, a dedicated snow tubing area and increased snow making. Summer season activity improvements include, canopy tours, a zip line and summer tubing. The Master Plan has had the following minor amendments approved since 2008: March 16, 2010 (MFS2010‐0008) to change monitoring reporting May 2010 (MFS2010‐0011) to extend the Master Plan expiration Page| 3 Organizational Excellence * Environmental Stewardship * Vibrant Community * Economic Sustainability Planning Commission September 10, 2018, New Business #: 2
January 17, 2012 (MFS2011‐0011) to change monitoring reporting September 25, 2012 (MFS2012‐0019) to extend the Master Plan expiration June 19, 2013 (DEV2013‐0009) to permit overnight recreational vehicle parking June 6, 2013 (MFS2013‐0013) to suspend domestic animal prohibition LOCATION The subject property is located at 3300 Ski Hill Road, Alta, WY, generally located 6.6 miles northeast of Alta, WY. Legal Description: Tract 39, Being Parts Of Unsurveyed SE1/4 S 11 & SW1/4 S12, T44, R118 PIDN: 22‐44‐18‐11‐4‐00‐001 Site Size: 120 acres Character District: 14: Alta (Rural) Subarea: 14.3 ‐ Grand Targhee Resort (Transitional, Resort/Civic Form) Zone: Planned Resort (PR) Overlay: N/A ZONING/VICINITY MAP
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MASTER PLAN MAP
STAFF ANALYSIS PUD2017‐0005, Planned Unit Development to amend a master plan The Master Plan contains 20 sections addressing the 15 LDR Standards Applying to all Planned Resorts. The standards require “Elements” which are sections in this Master Plan. Staff provides a description of each section below, including changes from the current Plan and its relationship to the appropriate LDR standard or element. If Issues arise they are identified in the Master Plan section and referred to in the Key Issues section of this report. Generally the application reflects a new and better organized document, providing updated and additional details on a few sections. Staff supports the changes. Most of the still applicable conditions have been incorporated into appropriate sections. Some conditions are no longer applicable, as they have been satisfied, while other conditions are under consideration as part of this application for master plan amendment. The applicant has responded to all Plan Review Comments, having made amendments to the application as needed. Many sections are structured similar to the LDRs or defer to the LDRs. No changes are proposed for the shape or size of the Resort parcel (120 ac.), number of dwelling units (450), total commercial square footage (150,000), transportation plan (70% ridership), or employee or affordable housing plans. In addition to the organizational changes and updates, the major changes being proposed are: 1) a more detailed phasing plan, 2) better coordination between improvements in the National Forest and the base area and 3) an alternative Community Services Element. Staff recommends the following format for the Planning Commission’s review of the proposed amendment. This format has been successfully used to review previous amendments to the Land Development Regulations (LDRs) and Master Plans that include many different components and will assist to efficiently review this application. 1. Staff Presentation. Staff will not go through each of the amendment sections, but will highlight the general categories of the amendments and discuss the key issues identified below. Because the sketch plan informs the Master Plan it is an integral part of the master plan review. The LDR Amendment is simply a Page| 5 Organizational Excellence * Environmental Stewardship * Vibrant Community * Economic Sustainability Planning Commission September 10, 2018, New Business #: 2
redline version updating the Grand Targhee LDR section to reflect changes to the Master Plan, if approved. The Grand Targhee LDR section is an abbreviated and condensed version of the Master Plan. The Commissioner’s review of the Master Plan will constitute the majority of the review of the LDR Text Amendment. 2. Applicant Presentation. The applicant will have an opportunity to identify the rationale and need for the amendments. 3. Public Comment. As with all public hearings, the Chair will invite public comment on the proposal. Once public comment is closed, Staff will answer any additional questions that arise during public comment. 4. Identify the Amendments to Discuss. In the Key Issues section below, Staff has described five issues for the Planning Commission to discuss. Beyond those issues, Staff recommends Planning Commissioners each identify the issues they would like to discuss, consenting to any issue or amendment not discussed as part of the Planning Commissioner’s approval. 5. Straw Poll Discussion Items. Staff recommends the Planning Commission then discuss each of the amendments identified and take a straw poll whether to include, include with modifications, or remove the amendment from the approval motion. 6. Motion. Once all of the discussion items have been straw polled, staff recommends the Planning Commission make a motion to approve the application subject to the straw polls. Standards applying to all planned resorts, LDR Section 4.3.1.F. Standards reviewed by Master Plan Section are as follows:
Sec 1.2, Purpose and Intent‐ (amended for consistency with Comprehensive Plan).This section has been expanded to include background, character, design, goals and relationship to the Comprehensive Plan. The additional information provides more detail and complies with the requirements of LDR Sec 4.3.1.F.3. Sec 1.3. Applicability‐ (amended for consistency with current LDRs).This section is the current Master Plan sections 1.7.1 and 1.7.2 amended and restated that covers repealer, applicability, expiration, extension, reconsideration which for the most part match the LDRs. The applicability section includes Attachments A‐1 and A‐2 that describes and demonstrates the legal description of the Resort and the two Plan Areas.
This section also includes the required Phasing Element restating current Master Plan section 15.1. Table 1.3.D.1 identifies four phases with each phase identifying commercial and residential improvements and number of units. The Phasing Element includes a sequence section, phasing of public exactions and other requirements including sequence of emergency management plan and recordation of covenants and restrictions. Achievement of performance objectives is covered in Sec. 3.10, Monitoring Plans and Requirements and coordination with public services is covered in Sec. 3.8. Capital Improvement Plan. The Phasing Plan is linked to the monitoring program as described in Sec. 3.10.C. Monitoring Plans and Requirements. LDR Sec. 4.3.1.F.11 requires the Phasing Element to include improvements on public lands. The Master Plan contains Section 3.12 Relationship to National Forest Lands which addresses this standard. Section 1.3 complies with LDR section 4.3.1.F.11, Phasing Element Standard (including monitoring). Sec 1.4, Relationship Between Regulations and Interpretation‐ (amended for consistency with current LDRs). This section replaces the current Master Plan sections 1.5 and 1.6 amended and restated. The relationship to the LDRs correctly identifies when the LDRs have authority over the Master Plan. The interpretation correctly references LDR Sec 8.6. Sec 1.5, Administrative Procedures‐ This section replaces the current Master Plan Chapter 16, restated. This section restates the previously approved increment of development, major and minor amendments and standing of the Master Plan. The procedure section identifies the current sketch plan application and
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eliminates any future requirement for sketch plans. Future applications would be reviewed as Development Plan applications (DEV) approved by the BCC. Sec 1.6, Establishment of Resort Areas and Subareas‐(amended for consistency with current LDRs). This section replaces the current Master Plan section 3.1 restated. This section and the subareas remain the same as in the current Master Plan. The existing and proposed Master Plan utilizes two Plan Areas; the Resort Center Plan Area (RCPA) and the Residential Accommodation Plan Area (RAPA). The two Plan Areas use code identical to the Teton County zones in the LDRs, making them familiar for users. Sec 1.7, Definitions‐ (amended for consistency with current LDRs). This section is the current Master Plan section 4.E. 50 definitions are deleted, the majority of which are defined in the LDRs. The remaining have common definitions recognized by the LDRs (such as multiple family dwelling or planning commission) or are not applicable to this Resort Plan (such as Arts and Crafts Production). Sec 2.1 and 2.2, Standards Applicable to the Resort Center Plan Area (RCPA) and Standards Applicable to the Residential and Accommodation Plan Area (RAPA) ‐ (amended for consistency with current LDRs). These sections replace the current Master Plan sections 3.2, 4.1 and 4.4, amended. Both sections and associated subareas are now structured identical to the LDR zone sections in Articles 2, 3 and 4. Intent, purpose, physical development (structure, location and mass), and use are included. In addition, a subarea specific phasing standard is included. Sections 2.1 and 2.2 complies with LDR section 4.3.1.F.10, Land Use Element and 4.3.1.F.5 Development Limitation Plan. Sec 3.1. Physical Development Standards for the Resort‐ (amended for consistency with current LDRs and inclusion of an allowance for transfer of entitlements). This section replaces the current Master Plan sections 4.2, 4.3 and 4.4 amended and restated. This section confirms the previously approved total density not to exceed 450 units as previously approved and delegates that density between the 2 sub areas with 90 units dedicated to the RAPA and 360 to the RCPA. Both areas can accommodate the densities proposed. The allocation is identical to the current Master Plan. A transfer of entitlements system is established, requiring administrative review or BCC approval based on the percentage of change. Development entitlements within the RAPA, including allocation of dwelling units, floor area, and use may be transferred from the RAPA to the RCPA with County approval. Commercial floor area not to exceed 150,000 square feet and average peak occupancy (APO) of 3,500, both as previously approved, is described. Definition of APO units is restated. Section 3.1 complies with LDR section 4.3.1.F.5, Dimensional Limitation Plan. Sec 3.2. Permitted Land Use Standards‐(amended for consistency with current LDRs). This section replaces the current Master Plan section 3.2 amended and restated. Determination of Similar Uses and Special Events are described. Determination of Similar Uses follows the LDR standards of Sec. 6.1.2.E. Special events are described and permitted if compatible with the Resort and its facilities. Section 3.2 complies with LDR section 4.3.1.F.10. Land use Element and 6.1.2.E, Similar Uses. Sec 3.3 Development Exactions‐ (amended for consistency with current LDRs). This section replaces the current Master Plan section 14.1 amended, restated and expanded. This section now restates the entire LDR section 7.5.1, Development Exactions. In addition this section identifies 2 community facilities that will serve the community and Grand Targhee; an 850 square foot public services building and a 750 square foot medical facility. Fee in lieu paid to Teton County shall be allocated primarily to Alta services. The land or fees in lieu of land shall be dedicated or paid to the County upon recordation of the first final plat for the Resort. Phasing of exactions is covered in Section 1.3.D. Section 3.3 complies with LDR section 7.5.1. Development Exactions. Sec 3.4 Affordable and Employee Housing Standards‐ This section replaces but does not modify any of the substantive requirements of the current Master Plan Chapter 7. Both types of housing are proposed to be funded by a real estate transfer fee (0.5%) and administered by a new nonprofit organization located in Teton Co. Idaho. Funds generated shall be payable to Teton Co. WY, then transferred to the nonprofit to be first used for administration, then used for workforce housing for Grand Targhee Resort. The transfer fee shall be used for the construction of the housing required to mitigate the development contained within each phase. If the fees collected for the phase are insufficient to complete the obligations, the
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developer shall be responsible to fund the shortfall and complete the housing specified for such development phase. Affordable housing mitigation is 15% of the total number of occupants of the development. 15% is the same percentage as was approved in 2008 but is less than the recently approved 25%. The development of 45 single family residential lots would require housing for 27.7 persons distributed evenly across categories 1, 2, and 3. Employee housing generation ratios are as follows:
Table 3.4.C.1 – Housing Ratios Use Employees Required to be Housed Retail 0.56 per 1,000 sf Restaurant and Bar 1.35 per 1,000 sf Lodging and Accommodation (per bed) 0.19 per bedroom Office 0.05 per 1,000 sf Other Independent calc.
This section includes housing calculations, timing, types of units, availability, and location criteria for off‐ site housing for both affordable and employee housing categories. The use of designated lots in Alta for development by Grand Targhee for employee housing is also proposed. Teton County Housing Department has reviewed the application and has requested a system for oversight of restricted units and review during implementation of the Plan. Section 3.4 complies with LDR section 4.3.1.F.6. Sec 3.5 Transportation‐ (amended for consistency with current LDRs and to change how TDM is measured). This section replaces the current Master Plan Chapter 8, amended and restated. This section includes the following sub sections, Traffic Reduction, Public Transit Partner, Employee Transit Shuttle System, Day Skier Transit Shuttle System, Park and Ride/Bus Stop Facilities, Car Pool Promotion, Signage Program, Summer Transit Service, Private Lodging Shuttle, Terms of the Transportation Demand Management Program (TDM), Annual Daily Traffic Study, Transportation Monitoring Program, TDM Monitoring Report, TDM Review Process, Parking Standards, Amendment of the Parking Plan, Loading Standards and Snow Management.
The latest Transportation Monitoring Report identifies Average Daily Traffic annual traffic growth as 5.49% and average growth from 2009 to 2018 at 2% per year. Transit Ridership for 2017/2018 is 31,378 persons (employees and skiers) up 25% from the previous year. 53% of employees use transit. Four wildlife‐vehicle collisions have occurred in the last two years.
Related to Transportation, the Master Plan contains Section 3.12 Relationship to National Forest Lands. The section requires notification to Teton County of on mountain improvement applications to the Forest Service. Upon approval of expanded recreational amenities, the Resort will apply to Teton County, proposing new, additional or expanded services such as parking or transportation services to support the new improvements permitted by the Forest Service. This section establishes a notification and permitting framework, and inclusion of a monitoring element for on mountain improvements that provide the County more insight into pending applications. If parking expansion is proposed for on mountain expansion a grading permit will be required, a permit that could be elevated to the Board by the Planning Director.
The Master Plan permits flexibility in locating parking in structures, on‐street, or in surface lots. The parking standards may be amended with the approval of the Teton County Planning Department as a minor amendment to this Master Plan.
The Transportation Monitoring Program is coupled with the Monitoring Plans Section 3.10. A traffic counter will be installed on Ski Hill Road and counts will also be obtained from the Idaho Transportation Department (ITD) counter on Ski Hill Road near Driggs, Idaho. This data will be combined with transit Page| 8 Organizational Excellence * Environmental Stewardship * Vibrant Community * Economic Sustainability Planning Commission September 10, 2018, New Business #: 2
ridership and submitted annually as the Transportation Demand Monitoring Report. The TDM will be reviewed by the County Engineer. Condition number 33, requires the Road and Levee Supervisor to establish annually a fee to be paid by Grand Targhee Resort to be used to offset Operations and Maintenance costs and other impacts to Ski Hill Road. This subject is reviewed in Issue number 5, below.
Teton County Transportation Coordinator reviewed the changes to how the TDM is measured and stated, “They are proposing to change from Average Daily traffic on Ski Hill Road to peak hourly traffic. In summary, this proposal will actually be more accurate.” The Coordinator also recommended that specific weeks in February and August be designated in any approval to provide consistency of readings from year to year. The Master Plan has been amended to reflect the Transportation Coordinator’s suggestions. Section 3.5 complies with LDR section 4.3.1.F.8.c. Transportation Element. Sec 3.6. Design Standards‐ (amended for consistency with current LDRs and to establish an Owners Association for Design review). This section replaces the current Master Plan Chapter 6, amended and restated. Design Guidelines establishes the Grand Targhee Resort Owner’s Association (“Association”) that is charged with implementing the Guidelines, the procedures for review and approval of development to ensure consistency with the Guidelines and any proposals to amend the Guidelines. Association review and approval of all development applications will be required prior to application submittal to the County. This section also includes the following sub sections, Signs and Landscape Standards and Guidelines. Lighting is listed in each Plan area and defers to the LDRs. This section does not address visual continuity, compatibility, design theme and architecture however, these standards are generally covered in 1.2.C.2, Character and Design. Minimal resort bulk and scale compatibility are described in this section. Site planning as required in LDR section 4.3.1.F.7 is covered in Sec. 3.6.D. Section 3.6 complies with LDR section 4.3.1.F.7.f, Design Element Standard, Site Planning. Sec 3.7. Open Space and Trails‐ (amended for consistency with current LDRs). This section replaces the current Master Plan Chapter 5, amended and restated. The following subsections exist in the current plan and are repeated with minor changes in the amended plan: Access to public lands, Public Use on Private Lands, Trails from Resort or Special Use Permit Area to Public Lands and Off‐Road Use. The Engineers report in the application states that the Resort maintains the only trails that exist that are all on Forest Service Lands. As development occurs connectivity will be provided from private to public lands if permitted by the Forest Service. The Forest Service would like to see a barrier around the Resort to restrict uses from moving on to the Forest indiscriminately, as currently conditioned. As reviewed in Key issue 4, access can be addressed at development plan application. All development is reviewed through the development plan process, Sec. 2.2.B.12. Section 3.7 and the Engineers Report (Sec. 2) complies with LDR section 4.3.1.F.7.f.iv, Site Planning, Pedestrian and Public Facilities. Sec 3.8 Capital Improvements Plan‐ (amended for consistency with current LDRs and Engineering Department comments). This section replaces the current Master Plan Chapter 10, amended and restated. The following subsections exist in the current plan and are repeated with minor changes in the amended plan: Wastewater, Water Supply, Storm Water Management and Other Utilities. Each subsection addresses the service provider, proposed improvements, improvement phasing, emergency power, emergency storage, collection and distribution. The wastewater treatment plant was specifically designed for future expansion when constructed in 1988. Equalization tank expansion and micro filters will be added as needed, identified in the phasing. Culinary water capacity currently stands at 82,000 gallons. New wells are planned to meet build out, fire flow and snowmaking demands as illustrated in the phasing plan.
Review by County Engineering has identified two concerns. The first is regarding review of improvements to the wastewater treatment off site on Forest Service lands. Sec 3.12 Relationship to National Forest Service Lands establishes a framework for this review. The second concern is regarding comprehensive analysis of how stormwater will be treated vs. on a permit by permit basis. The Applicant’s Engineers report in Section 2 identifies creating many small best management practices (BMP) as opposed to a more centralized facilities. This approach of treating at the source is the latest trend in stormwater management
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and sets the stage for comprehensive review. Sec. 3.8.C.2 has been amended to address Engineering Department concerns.
It should be noted that all current and proposed water and wastewater facilities are located on Forest Service lands and Forest Service has accepted these facilities. See Key Issue three. Section 3.8, and the Engineers Report (Sec. 2) complies with LDR section 4.3.1.F.9. Sec 3.9 Public Facilities and Services‐ (amended for consistency with current LDRs and Engineering Department comments). This section replaces the current Master Plan Chapter 11, amended and restated. This section includes the following sub sections: On site Utilities, Emergency Management Plan, and Fire Protection. Road easement widths were initially proposed to be a minimum of 40 feet wide but will otherwise meet the requirements of the LDRs. Engineering has requested 60 foot easements to allow for sidewalks, utilities and snow storage/ removal. Engineering would consider reduced easement widths on a permit by permit basis. The applicant amended the Master Plan application to reflect the required 60‐foot easement width, with an allowance for a reduction to a 40‐foot easement width upon approval by the County Engineer as individual roads are reviewed prior to construction. An Emergency Management Plan shall be implemented within one year of the approval of the first final plat within the Resort and Fire Protection mainly defers to the LDRs and Resolution. The Master Plan proposes that the applicant prepare a wildland/urban interface study prior to construction of the first phase of development of the project. Section 3.9 complies with LDR section 4.3.1.F.9. Sec 3.10 Monitoring Plans and Requirements‐ (amended for consistency with current LDRs). This section replaces the current Master Plan Chapter 18, amended and restated. This section includes the following sub sections, Achievement of performance objectives, Annual Monitoring Timing, Annual monitoring contents, Transportation Monitoring and Exactions. Sec. 3.10.C. links Phasing to the monitoring program and describes monitoring changes, implementation and relationship to Phasing. Sec 3.12 Relationship to National Forest Service Lands, establishes a mechanism to notify Teton County when applications are submitted to the Forest Service and also triggers application for County permits to support on mountain improvements.
It should be noted that Grand Targhee has submitted annual monitoring reports. The monitoring requirements were amended March 16, 2010 (MFS2010‐0008) and again January 17, 2012 (MFS2011‐ 0011) to change reporting to every other year, a submittal due date of May 10 and a reversion to annual reporting once development of Phase one commences. The last monitoring report was submitted June 15, 2018. The draft master plan proposes submission of an annual report by June 1 upon approval of the first development plan. Section 3.10 complies with LDR section 4.3.1.F.11.f.
Sec 3.11 Community Services‐ (major amendment to change from a provision of open space obligation to collecting funds for restoration of Teton Creek). This optional element identifies two contributions to Community services: Transportation and Open Space and Trails. Transportation identifies transit shuttle services for employees and guests of the Resort as described in Section 3.5.
Open Space and Trails describes financial support for the Teton Creek Corridor Project, a project to maintain and enhance the ecological integrity of the Teton Creek Corridor and the public’s ability to access and enjoy the Corridor. The Project is a collaboration among four non‐profit organizations located within Teton Valley to reestablish habitat connectivity between the protected federal lands in Wyoming and the wetland habitats on the east side of the Teton River and reduce flooding risk. Teton Creek formerly a major spawning tributary of the Teton River has been degraded and de watered. Additionally the Project seeks to provide improved non‐motorized and recreational opportunities between Alta, WY and Teton County, Idaho. The Resort proposes to support the project in the following summary: o The Resort will provide matching funding to the Teton Creek Collaborative of $100,000 for the Teton Creek Pathway Project upon recordation of the new master plan.
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o The Resort will provide a 2% transfer fee on all initial sales of real estate in the Resort granted annually by the applicant and their successors and assigns to a qualified land trust for the purpose of implementing the Teton Creek Corridor Project. o The Resort will provide a dedicated 1% transfer fee on all resales in the Resort annually to a qualified land trust to support the purpose and goals of the Teton Creek Corridor Project
Section 3.11 complies with LDR section 4.3.1.F.12. Related to Community Services, Conditions 6, 7 & 34 approved by the Board of County Commissioners in 2008 are proposed for replacement with financing and support for the Teton Creek Corridor Project. Additional information on the Project is available here: http://www.tetoncreekcorridor.org/ and https://youtu.be/KkFbahn2iRs. See Key Issue 2 below. Sec 3.12 Relationship to National Forest Service Lands‐ (amended for consistency with current LDRs). This section establishes a mechanism to notify Teton County when applications are submitted to the Forest Service and also triggers application for County permits to support on mountain improvements. The section requires notification to Teton County of on mountain improvement applications to the Forest Service. Upon approval of expanded recreational amenities, the Resort will apply to Teton County, proposing new, additional or expanded services such as parking or transportation services to support the new improvements permitted by the Forest Service. This section establishes a notification and permitting framework, and inclusion of a monitoring element for on mountain improvements that provide the County more insight into pending applications. Section 3.12 complies with LDR sections 4.3.1.F.11.a and d. that require this relationship. 2008 Master Plan Conditions‐ The 2008 Master Plan was approved with 36 conditions. Staff has requested incorporation of the 2008 conditions and the applicant has amended the application to reflect all applicable past conditions in the Master Plan. The proposed Master Plan directs 28 of the conditions to sections of the Master plan or LDRs. One (1) condition is complete and two (2) conditions are no longer applicable. Two (2) conditions are addressed in Key Issues. Conditions 6, 7 & 34 are proposed for replacement with financing and support for the Teton Creek Corridor Project. See Key Issue 2 below. Sketch Plan (SKC2017‐0007) pursuant to Section 8.3.1. The applicant is proposing a sketch plan application to inform the Master Plan Amendment as required in Section 8.7.3. Planned Unit Development. Section 8.7.3.C requires concurrent review of the Master Plan with the initial physical development permit application required for the proposal, in this case a Sketch Plan. The 2008 applications included an application form and checklist for a Sketch Plan. Details of the Sketch Plan were integrated into the Master Plan similar to this application. Both the current and proposed plans identify two plan areas utilizing the same nomenclature. The proposed plan areas are generally the same in size and location and road configuration is similar to the current plan. The current plan appears to be an artist’s rendering of only proposed improvements, not existing development. The Proposed plan identifies existing development, acreage of the two Plan Areas and proposed units for each area. The existing Plan and proposed Plan identify 90 units in the RAPA and 360 in the RCPA. Although location of each unit is not provided, the configuration of the Plan Areas appears more compact allowing for more open space. The Sketch Plan Map identifies single family, cabins, townhomes and alternative dwelling units in the RAPA. The RCPA identifies the existing Commercial Core and future expansion of the Lodging Core and includes lodging, single family, cabins, townhomes and alternative dwelling units. If there is any significant deviation from these units and configuration, a new sketch plan will be required. No changes are proposed for the shape or size of the Resort parcel (120 ac.), number of dwelling units (450), total commercial square footage (150,000). The Phasing plan for the two Plan Areas is similar to the current plan and are as follows:
Table 2.1.E.2 – RCPA Phasing Plan Phase Units Phase One 58 1.1.1 Rendezvous Lodge and Trap Bar Renovation * Page| 11 Organizational Excellence * Environmental Stewardship * Vibrant Community * Economic Sustainability Planning Commission September 10, 2018, New Business #: 2
1.1.2 Building D: Targhee Lodge and Pool 29 1.1.3 Building E: Rendezvous Lodge Expansion 29 Phase Two 103 2.1.1 Building A: Hotel (includes Restaurant) 103 Phase Three 104 3.1.1 Building C: Redevelop Teewinot 52 3.1.2 Building F: New Sioux Lodge 52 Phase Four 95 4.1.1 Building B 44 4.1.2 Building B1 51 Total 360** *Commercial square footage will be tracked in the Physical Development Monitoring Template submitted with each development plan. **See Section 3.1.B for Transfer Development units between RAPA and RCPA
Table 2.2.E.2 – RAPA Phasing Plan Phase Units Phase 1 30 1.1.4 Duplexes/Cabins/Single‐Family Lots 30 Phase 2 20 2.2.1 Duplexes/Cabins/Single‐Family Lots 20 Phase 3 20 3.2.1 Duplexes/Cabins/Single‐Family Lots 20 Phase 4 20 4.2.1 Duplexes/Cabins/Single‐Family Lots 36 Total* 90 *See Section 3.1.B for Transfer Development units from RAPA units to RCPA
Staff analyzed the proposed applications for compliance with the Jackson/Teton County Comprehensive Plan, proposed Master Plan and Land Development Regulations. Findings for approval and Comprehensive Plan compliance are discussed below. LDR Text Amendment (AMD2017‐0006) pursuant to Section 8.7.1. The applicant is proposing an LDR Text Amendment application to amend Section 4.3.7 Grand Targhee, as required in Section 8.7.3. Planned Unit Development. Section 8.7.3.D requires consideration of the findings of Section 8.7.1. The AMD application is a redline version updating the Grand Targhee LDR section to reflect changes to the Master Plan. The Grand Targhee LDR section is an abbreviated and condensed version of the Master Plan. Reviewing the Master Plan effectively reviews the LDR Text Amendment. Findings for approval and Comprehensive Plan compliance are discussed below. KEY ISSUES KEY ISSUE 1: Is there balance and integration between the Master Plan and the Forest Plan (MDP)?
LDR Section 4.3.1.F.11.a & d, Description and Relationship of Phasing to Overall Resort Plan requires phasing that coordinates improvements on Forest Service lands with improvements in the base area master plan. Because of the complexities of two different governmental jurisdictions, an analysis of the relationship is important. The resort master planning process emphasizes the importance of balancing recreational facility development with base area infrastructure. The sizes of the various guest service functions are designed to match the carrying capacity of the mountain. The future development of the Resort as a whole should be designed and coordinated to maintain a balance between accommodating residents and guest needs and on mountain resort capacity. As stated in the MDP, “Fundamental objectives of base area planning are to integrate the mountain with the base area for the creation of an attractive, cohesive, and functional recreational and social experience. This is essential to creating the feeling of a mountain community, and can only be achieved by addressing base area components Page| 12 Organizational Excellence * Environmental Stewardship * Vibrant Community * Economic Sustainability Planning Commission September 10, 2018, New Business #: 2 such as: guest service locations, skier /rider circulation, pedestrians, parking/access requirements, and mass‐ transit drop‐offs, among other components”. The MDP identifies the most significant deficiency in skier service space—particularly restaurants. There is a shortage of restaurant seating throughout the Resort, and a lack of on‐mountain skier services. Planning Staff identified parking as a deficiency in the MDP. Table 5.7 of the MDP identifies a deficit but leaves the management of parking to the County Master Plan. As skier per day rates increase with the planned improvements, additional parking or increased transit will be needed. Sections of the Master Plan on Phasing, Monitoring and Relationship to National Forest Lands establish a framework for coordination. Subsequent to the MDP the Resort has added 60 new spaces as part of GEC2016‐0115. The following is a summary of 2017 MDP upgrades many of which were approved in the 1995 MDP and never built:
Terrain‐ New and improved trails, new or improved glades, expansion of snow cat and backcountry skiing, and new teaching terrain Lift Installations‐ Installation of 5 new lifts, and 2 carpet lifts Lift Replacements and Upgrades‐Upgrade of 1 chair lift and 1 carpet lift Snowmaking‐Increased coverage and 2 reservoir locations Guest Services‐ 2 Top of lift restaurants, 2 warming cabins and restroom facilities and yurts to serve winter and summer recreation Multi‐season Recreation‐ New summer recreation trails, canopy tours, zip lines and summer tubing Snow Tubing‐ Permanent tubing facility Resort Operations‐ Construction and reclamation of roads and relocation of the maintenance and snow cat facility The MDP estimates that once all on mountain improvements envisioned in the 2017 MDP are completed, the Resort will accommodate 5730 skiers/day. The current carrying capacity is 2980 skiers/day. Planned upgrades to the base area lodging and restaurants and on mountain restaurants will address the services deficiencies outlined in the MDP.
In comparing the Base area Master Plan with the MDP it appears that improvements in each area will address deficiencies, however the sequencing of improvements on the ski hill is unknown. For example Master Plan Phasing Plan Table 1.3.D.1 identifies a new building and an expanded building in Phase 1. What on mountain improvements are planned to accommodate the increased skiers/day? Conversely, the MDP proposes 4 new lifts. How will the proposed parking improvements at the base be coordinated with the increased skiers/day on the ski hill?
While the Master Plan cannot regulate improvements on Forest Service lands, the Master plan should provide a schedule coordinating improvements. This can be accomplished by including a MDP status and coordination in all monitoring reports. The Master Plan contains Section 3.12 Relationship to National Forest Lands. The section requires notification to Teton County of on mountain improvement applications to the Forest Service. Upon approval of expanded recreational amenities, the Resort will apply to Teton County, proposing new, additional or expanded services such as parking or transportation services to support the new improvements permitted by the Forest Service. This section establishes a notification and permitting framework, and inclusion of a monitoring element for on mountain improvements that provide the County more insight into pending applications. If parking expansion is proposed for on mountain expansion, a grading permit will be required, a permit that could be elevated to the Board by the Planning Director.
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KEY ISSUE 2: Does the proposed Community Services Element fulfill the intentions of the 2008 conditions 6, 7 & 34
The 2008 Master Plan was approved with 36 conditions. The original conditions relevant to this key issue are as follows: 6. Environmental mitigation shall include the acquisition of a Conservation Easement over or Fee Simple Acquisition of at least 299 acres with habitat priority ranking 6 or higher or land that would qualify for Natural Resources Overlay status, as defined by the Land Development Regulations. Land shall be preserved within a distance of 50 miles from the Resort and within Teton County, Idaho and/or Teton County, Wyoming. The applicant shall also contribute stewardship costs calculated by an objective formula approved by the Planning Director to cover the cost of the baseline inventory and to ensure long‐term monitoring and legal defense of any conservation easement associated with the 299 acres. Acquisition of all land shall occur commensurate with development of the Resort, which shall be defined as 25% of the total 299 acres per each of the four development phases. All acquisitions shall be subject to the approval of the Board of County Commissioners, with an emphasis on high value habitat that has development potential. 7. The 1% transfer fee proposed by the applicant shall be granted annually by the applicant and their successors and assigns to fund and support the acquisition of lands or conservation easements with a habitat priority ranking of 6 or higher or land that would qualify for Natural Resources Overlay status, as defined by the Land Development Regulations. Provided a qualified third party, such as Teton Regional Land Trust or Friends of the Teton River or Similar conservation organization, verifies the need, river or stream restoration, acquisition of water rights, long term water right leases, and programs that will increase in‐stream water flows are qualified for this program. Acquisitions or easements may only be located in Teton County, Wyoming or Teton County, Idaho. Any funds in excess of 1% each year shall be granted to the Teton Regional Land Trust or other 501c3 organization, whose primary purpose is land conservation, for conservation purposes in Teton County, Idaho and Teton County, Wyoming. 34. A voluntary environmental mitigation shall include fee simple acquisition of, or the acquisition of a conservation easement over, at least 301 acres of land within Teton County, Wyoming, generally in the vicinity of Alta, having agricultural, habitat, open space and/or scenic values. The applicant shall also contribute stewardship costs calculated by an objective formula approved by the Planning Director to cover the cost of the baseline inventory and to ensure long‐term monitoring and legal defense of any conservation easement associated with the 301 acres. Acquisition of all land shall occur commensurate with development of the Resort, which shall be defined as 25% of the total 301 acres per each of the four development phases. Conditions Nos. 6, 7 and 34 approved by the Board of County Commissioners in 2008 are proposed for replacement with financing and support for the Teton Creek Corridor Project (TCCP). This project lists it goals as pathway and public access, agriculture, stream habitat, riparian habitat and community development as is described above in Sec 3.11 Community Services. More specifically the TCCP goal is to maintain and enhance the ecological integrity of the Teton Creek corridor and the public’s ability to access and enjoy the corridor. One of the key focuses is habitat connectivity between the protected federal lands in Wyoming and the wetland habitats of the Teton River. Additional information is available here: http://www.tetoncreekcorridor.org/ and https://youtu.be/KkFbahn2iRs. Considered mitigation, Conditions 6, 7 & 34 required conservation easements and funding and support for easements totaling at least 600 acres. No consideration was given to the aforementioned 400 acres (Squirrel Meadows) considered by the Forest Service to be fair mitigation for the 120 acres of lower value habitat at the base of the Grand Targhee ski area. The applicant contends that changes to the Planned Residential Development (PRD) tool and density multipliers in 2016 make it more difficult to attain the conservation easement conditions in Teton County Wyoming. In the LDRs the optional Community Services Element is intended to be a component of the Planned Resort master plan in which the benefits that the resort area provides to the community are acknowledged. Landowners within Page| 14 Organizational Excellence * Environmental Stewardship * Vibrant Community * Economic Sustainability Planning Commission September 10, 2018, New Business #: 2
Planned Resorts are encouraged to continue with, and expand upon, programs designed to retain local access to the resort’s main recreational activity and facilities. Community service programs help to maintain a balance at the resort between out‐of‐town visitors and the community, and contribute to the quality of life in the community. The Resort’s proposed support for TCCP meet the example stated in the LDRs: providing trail head access to public forest land. The TCCP lists public access to Teton Creek as one of its initiatives and is currently working on that project both in Idaho and Wyoming. The support for TCCP goes beyond the examples of Community Services listed in the LDRs and includes maintaining agriculture, improving riparian and stream habitat and community development. 250 acres of riparian habitat have been conserved, restoration and stabilization of more than a mile of stream channel is ongoing and a pathway connection to Wyoming has been planned.
KEY ISSUE 3: Does location of key infrastructure offsite on Forest Service lands present a problem for implementation of the Master Plan?
The Master Plan Map shows an area in the Forest Service adjacent to the RCPA identified as Resort Operations and Infrastructure on USFS Land (Not in Resort PUD). The infrastructure includes facilities that will serve both private and public lands. While this arrangement has existed for some time a discussion of implications is in order. Sec. 5.B of the MDP provides background on infrastructure on NFS lands as follows: B. COUNTY MASTER PLAN: FOREST SERVICE ACCEPTED PROJECTS The 2008 County Master Plan includes projects that are located on public lands in the base area. Therefore, Teton County, Wyoming requested that the Resort discuss these projects with the CTNF and receive assurance that they are acceptable from the Forest Service’s perspective. In a letter dated January 20, 2010 to the Resort, Forest Supervisor Brent Larson indicated that these projects are indeed “acceptable,” as specifically related to the County Master Plan that had been approved by Teton County. These accepted components include the following: 1. Relocating the maintenance facility to NFS lands. This planned location is described in Chapter 6 (Sect ion H.6 – Ski Area Operations: Maintenance Facilities) and shown on Figure 6.1. 2. Relocating/new water storage tanks to NFS lands above existing tanks. This is discussed in Chapter 6 (Section H.2 – Ski Area Operations: Water Supply and Storage). 3. Relocating avalanche control explosives magazine to NFS lands. 4. Expansion of wastewater and equalization/emergency storage tanks. This is discussed in Chapter 6 (Sect ion H.1 – Ski Area Operations: Wastewater System) and shown on Figure 6.1. 5. Constructing a recycling facility in conjunction with the relocated maintenance facility. This is also described in Chapter 6 (Sect ion H.6 – Ski Area Operations: Maintenance Facilities) and shown on Figure 6.1. 6. Shoshone Lift and conveyor lifts. These are discussed in Chapter 6 (Sect ion B – Lift Network) and shown on Figure 6.1. Shoshone lift, water tanks and wastewater facilities are currently located on NFS lands. Expansion of those facilities, construction of new facilities and relocation of the remaining facilities has not occurred. Should any of those actions be proposed the NEPA process would be required, that would allow the authorized Forest Officer to approve their relocation, expansion, design, construction, etc. The main advantage to this arrangement is sharing infrastructure versus duplicating. In addition, some uses are strictly for the ski operations and should be located on NFS lands, such as avalanche control explosives magazines and ski lifts. Given the Forest Service acceptance of these uses, the advantages of sharing infrastructure and that the improvements would be subject to NEPA review indicate that this is less of an issue. Further insight into this issue is provided by Jay Pence, District Ranger with the Forest Service in Departmental Reviews attached. Similar to a County Master Plan, an MDP envisions improvements but does not authorize their development as described above. In summary, the Forest Service has accepted infrastructure location or relocation on Forest Service lands. Other than maintenance, no improvements have been proposed or approved on Forest Service Lands. Proposed
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Sec 3.12 Relationship to National Forest Service Lands, establishes a mechanism to notify Teton County when applications are submitted to the Forest Service.
KEY ISSUE 4: What mechanisms are in place to prevent expansion of the Resort?
Condition 1 required a 20 foot wide conservation easement around the resort to prevent expansion. This subject is also discussed in Condition 22. Residential uses such as unplanned walking and biking pathways and pets should be restricted from impacting adjacent Forest Service lands. Pets are currently restricted and the application proposes to continue that restriction. While the Forest Service would like to see a barrier around the Resort to restrict uses from moving on to the Forest indiscriminately, that can be addressed at development plan application. All future development is reviewed through the development plan process, per the Master Plan Sec. 2.2.B.12. The Master Plan proposes an Open Space and Trails element to address this use (Section 3.7). It is noteworthy that the Sketch Plan map shows buffers in‐between the Plan Areas and the Forest on a majority of the boundary. The Master Plan includes a prohibition on any private trails in Sec. 3.7.C. New public trails must be approved by the Resort and the Forest Service. The current MDP does not plan for any expansion of the Resort. For the Resort to expand, the MDP would have to be amended. This would be followed by a lengthy EIS study and possibly another land exchange. Given the Forest Service’s downsizing of the original parcel size to the current 120 acres it is unlikely that the Forest Service would allow expansion or even reconfiguration. Lastly the Current Master Plan would have to be amended to add additional land. The application does not contain an expansion request. In a phone conversation, Jackson Hole Land Trust doubts that any conservancy or land trust would accept an easement as Condition 1 requires. Planning Staff believes that sufficient mechanisms are in place and can be required during development review to prevent expansion of the Resort without extensive review by the public.
KEY ISSUE 5: Should the Road and Levee Supervisor establish an annual fee to offset Ski Hill Road maintenance costs?
Condition 33 requires that the Road and Levee Supervisor establish annually a fee to be paid by Grand Targhee Resort to be used to offset Operations and Maintenance costs and other impacts to Ski Hill Road. The fee shall represent proportionally these impacts created by development during the construction phase. The impact area shall be defined as Ski Hill Road beginning at Stateline Road to the termination of the public portion of the road at the resort boundary. The Transportation Monitoring Program is coupled with the Monitoring Plans Section 3.10. A traffic counter will be installed on Ski Hill Road and counts will also be obtained from the Idaho Transportation Department (ITD) counter on Ski Hill Road near Driggs, Idaho. This data will be combined with transit ridership and submitted annually as the Transportation Demand Monitoring Report. If during the reporting time a Level of Service (LOS) of D (as defined by the Transportation Research Board Highway Capacity Manual) is reached on the roadway segment between Teton Canyon Road and Grand Targhee (excluding special events) adjustments will be made to the Transportation Demand Management Plan to improve the LOS, which shall be approved by the Teton County Engineer. Each year the TDM shall be reviewed by the County Engineer. While the current Teton County Road and Levee Supervisor was not aware of an annual fee or this condition, fees have been collected in the past. A road impact fee in the amount of $21,000 was collected on April 7, 2010 indicating implementation of the condition. However it is uncertain if a fee system was setup to continue the requirement. For that reason Staff is recommending that a fee structure system be developed by Teton County Engineering and incorporated into Sec. 3.5 Transportation. The County Engineer is researching similar fees at other resorts and will provide direction on this issue. Planning Staff recommends a condition as part of an approval of a new master plan.
TOWN PLANNING COMMISSION AND TOWN COUNCIL REVIEW On August 15, 2018 the Town Planning Commission heard the applicant’s proposal for the Master Plan amendment. The Town Planning Commission found that there would be no significant impacts to the Town. On Page| 16 Organizational Excellence * Environmental Stewardship * Vibrant Community * Economic Sustainability Planning Commission September 10, 2018, New Business #: 2
August 20, 2018 the Town Council heard the applicant’s proposal for the Master Plan amendment. The Town Council found that there would be no significant impacts to the Town.
STAKEHOLDER ANALYSIS DEPARTMENTAL REVIEWS The application was sent to the following departments and agencies for review. County Engineer‐ Comment Attached Affordable Housing Department‐ Comment Attached Teton Conservation District‐ Comment Attached National Forest Service‐ Comment Attached Teton County School District‐(No Response) Teton County Sherriff’s Office‐ (No Response) Fire/EMS Comment‐ Attached Teton County Integrated Solid Waste and Recycling‐(No Response) Teton County Weed and Pest‐(No Response) Teton County Road and Levee‐ Comment Attached
PUBLIC COMMENT Notice of this hearing was distributed to all property owners within 800 feet of the Resort on June 25, 2018 and posted at the entrance to the Resort on August 16, 2018. As of the publishing of this report no comments have been received.
LEGAL REVIEW Weisman
RECOMMENDATIONS PLANNING DIRECTOR RECOMMENDATION The Planning Director recommends approval of PUD2017‐0005, SKC2017‐0007 and AMD2017‐0006 to amend the Grand Targhee Master Plan Planned Unit Development in accord with Sections 8.7.3, 8.3.1, and 8.7.1 of the Teton County Land Development Regulations, based upon the application dated December 5, 2017 and revised February 20, 2018, after being able to make all five (5) findings for approval under Section 8.7.3.D. including all nine (9) findings under Section 4.3.1.D., the five (5) findings for approval under Section 8.3.1 and the six (6) findings under Section 8.7.1 which have been satisfied and met with one condition as follows: 1. The Master Plan shall incorporate a fee structure system to be paid by Grand Targhee Resort to be used to offset Operations and Maintenance costs and other impacts to Ski Hill Road. The fee system shall be developed by Teton County Engineering and incorporated into Sec. 3.5 Transportation of the Master Plan. PLANNING DIRECTOR RECOMMENDED FINDINGS‐ PLANNED UNIT DEVELOPMENT (PUD2017‐0005) Pursuant to Section 8.7.3.D. of the LDRs, in deciding to adopt, deny or amend a planned unit development, the Board of County Commissioners shall consider the following five (5) findings for approval: 1. The extent to which the PUD enhances the implementation of the desired future character for the land of the proposal; Can Be Made. The proposed amendment is intended to clean up existing inconsistencies in the Master Plan, address and incorporate conditions and does not impact the desired future character of the Alta Character District. Subarea 14.3: Grand Targhee Resort
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The proposed amendment achieves the desired future character of the Grand Targhee subarea by providing a clear and viable Master Plan to create a year round small scale resort community and job opportunities. No increase in density or intensity is proposed but flexibility exists for design considerations. Character District 14: Policy Objectives 1.1.b: Protect wildlife from the impacts of development. The 120 ac. Resort area was sized and configured by the National Forest Service in part to avoid valuable wildlife habitat, wetlands and waterbodies. Accordingly, the Resort is not located in the current NRO. An environmental analysis (EA) was performed in 2004 (EVA2014‐0034). An EA Revalidation Report was prepared by Alder Environmental September 20, 2016, finding no habitat types protected by the NRO on site or within ½ mile of the parcel. An EA extension was approved in 2016 (EVA2016‐ 0021), validating the EA until September 30, 2019. A cursory evaluation of the Focal Species Habitat Map indicates low value habitat. 1.1.c: Design for wildlife permeability. The Master Plan identifies two Plan Areas. The RCPA proposes to concentrate commercial and lodging uses near existing like uses. The RAPA proposes three nodes for primarily residential use. While all areas are connected by roads, the configuration protects large sections of older growth forest allowing for safe wildlife movement through the Resort. 1.2.a: Buffer water bodies, wetlands and riparian areas from development. There are no surface waters on the 120 ac. Master Plan area. The area is located between Dry Creek and Mill Creek but neither creek nor buffer exist on the site. A 0.25 acre palustrine emergent wetland has been located and delineated along the north central boundary of the Master Plan site. The wetland continues on to the Forest Service lands to the north. At the time of any future development the wetland and buffer will be required to be delineated and protected from impacts pursuant to the LDRs in place at the time. 1.4.a: Encourage non‐development conservation of wildlife habitat. While the Plan Areas identify open space, the original configuration of the Resort and the land exchange conducted with the Forest Service was intended to allow for development on the 120 acre site while conserving lands off site. Additional conservation off site is proposed through the Teton Creek Corridor initiative. 1.4.b: Conserve agricultural lands and agriculture. This objective is not applicable because no agriculture lands exist on site. 1.4.c: Encourage rural development to include quality open space. While the Plan Areas identify open space on site, the Resorts configuration was intended to conserve quality open space on the adjacent National Forest, reserving that for public use and providing lodging and access in the Resort. 3.1.b: Direct development toward suitable Complete Neighborhood subareas. The Comprehensive Plan identifies Planned Resorts as a master planned area that encourages recreational activities, contributes to community character and contains a mix of residential and nonresidential uses. While not a Complete Neighborhood a planned resort is similar in its purpose and intent.
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3.1.c: Maintain rural character outside of Complete Neighborhoods. This objective is not applicable because the application is for amendment of an existing Master Plan. 3.5.a: Cooperate with regional communities and agencies to implement this Plan. The Resort has a history of coordinating with neighboring Teton County, Idaho though its transportation initiatives. In addition, the Resort proposes funding support for the TCCP, located primarily in Teton County, Idaho as part of the Master Plan Community Services Element. The Resort and the Forest Service have a cooperative relationship. 5.3.b: Preserve existing workforce housing stock. Given the Resort’s location proximate to Teton County, Idaho, the majority of the workforce commutes from Idaho where workforce housing is less of an issue. The Resort proposes a real estate transfer fee to fund housing and construction of workforce housing on the Resort owned vacant parcels in Alta. 7.1.c: Increase the capacity for use of alternative transportation modes. The Resort has a history of providing alternative transportation modes such as its employee transit shuttle system. Currently at 33% employee usage rate, the phased master plan envisions 70% usage by Phase four. The Transportation Demand Management Plan (TDM) includes additional strategies to decrease demand as the Resort grows including carpool promotion, increasing on site lodging, participation in regional transportation planning efforts, requiring property owners to participate in TDM strategies, day skier shuttle system, summer transit service and private lodging shuttle. 7.3.a: Develop a land use pattern based on transportation connectivity. The goal of this policy is intermodal connection between Jackson and county neighborhoods, which in this application is not applicable. The Resort has developed alternative transportation modes and has plans for expansion of those services connecting with Teton Valley, as described above in 7.1.c. 2. The findings for the applicable PUD option found in Article 4; Can Be Made. Pursuant to Section 4.3.1.D., a Planned Resort Master Plan shall be approved only if all of the following findings are made: 1. Consistency with the Comprehensive Plan. The Planned Resort Master Plan is consistent with the goals and objectives of the Jackson/Teton County Comprehensive Plan. Complies. See the discussion Findings for Approval of a PUD Amendment, above. 2. Consistency with Purpose and Intent. The Planned Resort Master Plan is substantially consistent with the purpose and intent of this Section, as set forth in 4.3.1.A; 1. Encourage recreational activities that rely on indigenous natural attributes of the area, contribute to the community’s character and economy and have a long‐standing, beneficial role in the community; and Complies. The proposed master plan amendment’s stated intent is, “The purpose of the Planned Resort Zone is to provide for a mix of recreational, retail and service‐oriented activities which has a high degree of self‐containment and provides economic and other benefits to the community”. The Resort has successfully provided a quality skiing experience since 1973 and is known for its uncrowded and natural skiing conditions. The Resort has benefited the character and economy of Teton Valley’s lodging, restaurants and retail businesses. 2. Provide flexibility for planning and developing recreational resort facilities in a creative, efficient and coordinated manner in order to provide quality visitor experiences; and Complies. The proposed amendment will allow resort and residential expansion, in a planned coordinated manner as identified in the Phasing Plan. Planning and design are not rigid in the Master Plan, allowing for creativity, changing trends and market flexibility with in the separate Plan Areas. 3. Create a process in which Teton County and the Town of Jackson collaborate with landowners in planning and designing resort master plans that meet community goals and respond to the unique circumstances of the Resort area; and
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Complies. The proposed amendment process includes collaboration with neighbors via a public process with neighbor notices sent to all property owners. The applicant held a community meeting April 6, 2017 at the Senior Center in Driggs. 4. Permit resort development that contributes to expanding the winter and shoulder economic seasons; and Complies. A stated goal of the application is to provide an economically viable master plan that allows for the implementation of the 2012 Comprehensive plan and ski hill expansion envisioned in the MDP. The Resort has already improved its off season offerings and will continue to develop that market. 5. Ensure that resort plans incorporate a mix of land uses, promote alternative modes of transportation, and provide a pedestrian‐oriented community in order to alleviate traffic‐related impacts; and Complies. The proposed amendment incorporates a mix of land uses by proposing 2 separate Plan Areas for commercial and residential. Policy 7.1.c, above describes existing and planned alternative transportation modes. The compact design of the RCPA and adjacent parking facilitates a pedestrian friendly environment. 6. Ensure resort plans are consistent with the Comprehensive Plan, and therefore, are beneficial to the community; and Complies. As described in the Relationship to Character District section above, the current amendment proposal is consistent with the Comprehensive Plan goals for Character District 14, Grand Targhee Resort. 7. Enable long‐range planning for infrastructure, capital facilities, and community land use patterns by establishing a level of predictability in the maximum potential size and character of each resort area; and Complies. The Capital Improvements Plan and Phasing Plan identify a strategic plan for infrastructure improvements coupled with phased resort expansion. The amendment proposes no change to resort size, shape or density, approved in the current master plan and MDP. 8. Ensure a balance is maintained between tourism and community that promotes social diversity but does not cause undesired shifts away from rural, western community character; and Not applicable. The proposed amendment has no impact on social diversity or rural western character. 9. Produce resort plans that make significant contributions toward protecting attributes of the community that are considered critical to the community's long‐term health, welfare, and well‐being. Complies. The proposed amendment will facilitate the implementation and eventual development of improvements at the Resort and on the ski hill. As the Resort expands, contributions will be made to the Community by funding TCCP, discussed in Key Issue 2. 3. Affordable and Employee Housing. The Planned Resort master plan ensures a supply of affordable and employee housing that is in accordance with the requirements for housing created by development within the Planned Resort. The applicant is not proposing any changes to the Employee and Affordable Housing Requirements that are already a part of the approved Master Plan for Grand Targhee. Prior to approval of a development plan, a system must be in place to provide oversight on restricted units. Section 3.4 above reviews the employee and affordable mitigation rates. Complies. The proposed amendment proposes affordable and employee housing reviewed in Sec. 3.4 above. 4. Design Guidelines. The Planned Resort master plan contains design guidelines that: a. Establish standards for buildings, spaces, signs, and lighting within the Planned Resort; b. Promote the design concepts set forth in F.7.; and c. Establish a method for consistent implementation of the guidelines. Complies. The master plan addresses signs and landscape standards. Lighting is listed in each Plan area and defers to the LDRs. This section does not address visual continuity, compatibility, design theme and architecture however, these standards are generally covered in 1.2.C.2, Character and Design. Resort bulk and scale and site planning as required in LDR section 4.3.1.F.7 are covered in Sec 3.6.D.
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5. Transportation Element. The Planned Resort master plan contains a traffic impact analysis and transportation demand management plan that: a. Promote multimodal forms of transportation that are consistent with the transportation goals of the Jackson/Teton County Comprehensive Plan; b. Manage the generation of resort related traffic to avoid undermining community character and endangering the public health, safety, and welfare; and c. Identify an equitable cost sharing plan for transportation facilities and services. Complies. The amendment proposes a complete Transportation Element including multimodal transportation, monitoring and phased improvements as outlined in Sec. 3.5 above and reviewed by the Teton County Transportation Coordinator and Planning staff. 6. Capital Improvements Plan. The Planned Resort Master Plan contains a capital improvements plan that ensures infrastructure and essential services will be provided in an efficient and timely manner to accommodate projected resort demands. Complies. The Master Plan Capital Improvements Plan identifies phased improvements for wastewater, potable water, stormwater and other utilities as described in Sec. 3.8 and 3.9 above. 7. Land Use Element. The Planned Resort Master Plan promotes land uses that support and maintain the character of the Resort as specified in Sec. 4.3.2 – Sec. 4.3.7. Complies. The Master Plan identifies allowed use standards in each plan area standards and also addresses similar uses and special events for the Resort in the Permitted Land Use Standards, Sec. 3.2. All uses support and maintain the character of LDR Sec. 4.3.7 as amended. 8. Phasing Plan. The Planned Resort master plan contains a phasing plan that ensures: a. Development of the Resort, its amenities, and public facilities necessary to serve the Resort, occur in logical sequence; and b. An adequate monitoring program is established for determining accomplishment of proposed remedies and mitigation measures for projected impacts on the community. Complies. The current Master Plan contains phasing plan details in Sections 1.3.D, encompassing 4 phases of development, including number of units per phase, sequence of development and Exactions. Sec. 3.8 relates Capital Improvements to Phasing and Sec.3.10.C. links monitoring to phasing. 8. Character Element. The Planned Resort master plan ensures the Resort’s development will be in keeping with the community’s character and the planned character for the vicinity of the Resort. Complies. The plan is consistent with the desired future character of Character District 14: Grand Targhee, as established in the Comprehensive Plan and discussed in more detail above. The proposed amendments, as recommended for approval by staff, are also consistent with the established character for the Resort. 3. The applicable findings for the amendment of an existing PUD or special project found in 8.2.13.D; Complies. The findings of 8.2.13.D. invoke the Article 4 findings for the applicable PUD option, which are made under item #2 of this section: The findings for the applicable PUD option found in Article 4, immediately above. 4. The findings of Sec. 8.7.1, LDR Text Amendment Complies. The LDR text amendments associated with the proposed amendments are reviewed below. 5. The findings of Sec. 8.7.2., Zoning Map Amendment Not applicable. There is no zoning map amendment associated with the proposed amendments to the Master Plan. PLANNING DIRECTOR RECOMMENDED FINDINGS‐ SKETCH PLAN (SKC2017‐0007) Pursuant to Section 8.3.1. of the LDRs, in deciding to adopt, deny or amend a sketch plan for a planned unit development, the Board of County Commissioners shall consider the following five (5) findings for approval:
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1. Is consistent with the desired future character described for the site in the Jackson/Teton County Comprehensive Plan; Complies. See Section 8.7.3.D #1 Relationship to Character District above. 2. Achieves the standards and objective of the Natural Resource Overlay (NRO) and Scenic Resources Overlay (SRO), if applicable; Not applicable. The Resort is not located in the NRO or SRO. The location of the 120 acre area was a conscious decision by the Forest Service to locate the Resort in low value habitat and in a hollow, invisible to the valley below. 3. Does not have significant impact on public facilities and services, including transportation, potable water and wastewater facilities, parks, schools, police, fire, and EMS facilities; Complies. The Capital Improvements Plan and Phasing Plan identify a strategic plan for infrastructure improvements coupled with phased resort expansion. The amendment proposes no change to resort size, shape or density, approved in the current master plan and MDP. The Resort operates its own transit system for employees and resort goers and transports 30% of its employees. The phased improvements are coupled to increases infrastructure and mitigation practices for transportation. Water and wastewater are owned and operated by the Resort. Fire, and EMS services are contracted through Teton County, Idaho. Significant impacts to schools and parks are not anticipated. 4. Complies with all relevant standards of these LDRs and other County Resolutions as can be determined by the level of detail of a sketch plan; and Complies. The applicant is proposing a sketch plan application to inform the Master Plan Amendment as required in Section 8.7.3. Planned Unit development. Section 8.7.3.C requires concurrent review of the Master Plan with the initial physical development permit application required for the proposal, in this case a Sketch Plan. See Section 4.3.1.D, 2. The findings for the applicable PUD and Staff Analysis above. 5. Is in substantial conformance with all standards or conditions of any prior applicable permits or approvals. Complies. Other than submittal of monitoring reports, minor amendments and grading permits, no activity has occurred to activate the current Master Plan. The Resort complies with the amendments and grading permits. PLANNING DIRECTOR RECOMMENDED FINDINGS‐ LDR TEXT AMENDMENT (AMD2017‐0006) Pursuant to Section 8.7.1. of the LDRs, in deciding to adopt, deny or amend a text amendment for a planned unit development, the Board of County Commissioners shall consider the following six (6) findings for approval: 1. Is consistent with the purposes and organization of the LDRs; Complies. The purposes of the LDRs are enumerated in Division 1.3, and are generally to implement the Comprehensive Plan and to promote the health, safety, and general welfare of the community. See the “Relationship to Character District” section above for a discussion of how this amendment complies with the Comprehensive Plan. The proposed amendment will update Section 4.3.7. of the LDRs to ensure the character description for the Grand Targhee Resort reflects proposed amendments to the Resort master plan. The AMD application is a redline version updating the Grand Targhee LDR section to reflect changes to the Master Plan. The Grand Targhee LDR section is an abbreviated and condensed version of the Master Plan. Reviewing the Master Plan effectively reviews the LDR Text Amendment. The proposed changes to the LDR text are consistent with the purposes and organization of the LDRs. 2. Improves the consistency of the LDRs with other provisions of the LDRs; Complies. The proposed amendment will improve consistency of the LDRs with the Grand Targhee Resort Master Plan, which effectively serves as the development standards for lands within the Resort area, by ensuring the LDRs reflect proposed changes in the configuration of the Resort and meet all other provisions of the LDRs.
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3. Provides flexibility for landowners within standards that clearly define desired character; Complies. The amendment eliminates repetition of the master plan and generally applicable LDR standards, but provides a general character description against which to evaluate future master plan amendments. The amendment provides flexibility for the applicant with regard to the configuration and size of resort development within standards that clearly define the desired character for the Resort and the two Plan Areas. 4. Is necessary to address changing conditions, public necessity, and/or state or federal legislation; Complies. The amendment is necessary in order to address changing conditions, specifically the proposal to amend the Grand Targhee Resort Master Plan. While the proposed master plan amendments are generally consistent with the current character description found in Section 4.3.7. of the LDRs, updates to the LDR text are necessary to reflect the proposed changes to the configuration of the Resort development and reorganization of the Master Plan. 5. Improves implementation of the Comprehensive Plan; and Complies. See Section 8.7.3.D #1 Relationship to Character District above. 6. Is consistent with other adopted County Resolutions. Complies. This proposal will comply with all adopted resolutions of the County.
ATTACHMENTS Departmental Reviews Condition Tracking Spreadsheet Redlined version of the Master Plan Amended Application dated August 6, 2018 can be found on line at: http://weblink.tetonwyo.org/weblink8/6/doc/169687/Page1.aspx#
SUGGESTED MOTION I move to recommend approval of PUD2017‐0005 to amend the Grand Targhee Master Plan Planned Unit Development in accord with Sections 8.7.3 of the Teton County Land Development Regulations, based upon the application dated December 5, 2017 and revised February 20, 2018, May 24, 2018 and August 6, 2018, after having fully considered the five (5) findings for approval under Section 8.7.3.D. which have been satisfied and met with one condition as follows: 1. The Master Plan shall incorporate a fee structure system to be paid by Grand Targhee Resort to be used to offset Operations and Maintenance costs and other impacts to Ski Hill Road. The fee system shall be developed by Teton County Engineering and incorporated into Sec. 3.5 Transportation of the Master Plan. I move to recommend approval of AMD2017‐0006 to amend the Grand Targhee Master Plan Planned Unit Development in accord with Sections 8.7.1 of the Teton County Land Development Regulations, based upon the application dated December 5, 2017 and revised February 20, 2018, May 24, 2018 and August 6, 2018, after having fully considered all six (6) findings for approval under Section 8.7.1.C which have been satisfied and met with no conditions. I move to recommend approval of SKC2017‐0007 to amend the Grand Targhee Master Plan Planned Unit Development in accord with Sections 8.3.1 of the Teton County Land Development Regulations, based upon the application dated December 5, 2017 and revised February 20, 2018, May 24, 2018 and August 6, 2018, after having fully considered all five (5) findings for approval under Section 8.3.1.C which have been satisfied and met with no conditions.
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ATTACHMENTS Departmental Reviews MEMORANDUM
TO: Roby Hurley, Principal Planner
FROM: Tom Newland, Transportation Coordinator
RE: Grand Targhee Resort Master Plan
DATE: March 1, 2018 I have reviewed the information submitted regarding the applicant’s requested deletion or modification to the existing conditions of approval and would like to forward the following comments to you:
Condition 14: The applicant recommends deleting this condition, which describes the triggers for adjusting the Travel Demand Management (TDM) Plan previously approved. The original condition requires this trigger to be when traffic exceeds Level of Service (LOS) C (2,400 Average Annual Daily Traffic (AADT)) on Ski Hill Road from Teton Canyon Road to the Resort. Traffic is required to be counted twice annually, once in the summer and winter, to determine AADT.
The applicant recommends that this condition be modified so that changes to the TDM program are triggered when the summer and winter counts collectively show a LOS D. The recommendation also changes the following:
Traffic counts are set more specifically as during one calendar week in February and in August;
The LOS will be determined using the Transportation Research Boards (TRB) Highway Capacity Manual.
The TRB Manual provides a more specific means of measuring LOS. For two-lane roads such as Ski Hill Road, the TRB method is based on Volume-to-Capacity Loads, or V/Cs. Passing of slower vehicles requires use of the opposing lane. As volumes or geometric constraints increase, the ability to pass decreases and platoons of vehicles are formed. The delay experienced by motorists also increases. As such, the V/C ratio is adjusted based on the percentage of no passing zones present on the road. About 82% (0.82) of the lanes on Ski Hill Road contain No Passing Zones. The total volume is divided by the total capacity of 2,800 vehicles per hour. Attached as Figure 1 is a Table showing LOS Criteria for a general two-lane highway segments. According to the table, in mountainous terrain, LOS D will be reached at 37% of the roads’ “Ideal Capacity” of 2,800 passenger cars per hour, or about 1,036 passenger cars per hour. The recommended changes to this condition appear to be acceptable, given the following: The Integrated Transportation Plan (ITP) sets LOS D as the threshold for unacceptable traffic congestion and delay. Changing the threshold for adjusting the LOS from level C to level D is therefore more compatible with the policies of the ITP;
The proposed change from AADT to passenger vehicles per hour as a measurement of LOS is more indicative of travel to and from Grand Targhee as it uses peak hourly traffic instead of average daily traffic as the trigger for making adjustment to the TDM plan.
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It is recommended that specific weeks in February and August be designated in any approval to provide consistency of readings from year to year.
Tue 6/19/2018 11:38 AM Roby: I have not had the time I would like to have in order to review Grand Targhee’s Master Plan amendment application and amendment submitted to the county due to my schedule.
To my knowledge the only unclear issue could be the relationship between parking (on the private) and the implementation of the 2017 Master Development Plan for the mountain (Forest Service MDP). This issue remains a concern for the Forest Service.
If new lift served terrain is utilized on Peaked mountain (Forest Service) as proposed, this would indicate an increase in skiers or skier opportunity. The current parking lots are often filled during powder days and busy weekends. With the additional lift served terrain there needs to be some comparable increase in parking or skier shuttle services to accommodate this opportunity. I have attached the agencies 2017 MDP acceptance letter (and one with highlighted sections) expressing concern over parking/shuttle capacity.
Is there a clear or reasonable understanding of how to accommodate and/or increase skier/employee parking and shuttle services/demand?
As the resort base infrastructure expands there may be a concern with user created routes/trails being created on the Forest outside the permit area. At this time I believe the new trail system on the resort and our relationship with the resort will be sufficient to address those concerns. As the resort develops, there may be additional discussions or needs related toward addressing these issues. Especially if private OHV’s are allowed to operate within the private inholding.
Thank you for your understanding and assistance.
Please let me know if you have specific questions or need clarification. Jay Pence District Ranger
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From: Pence, Jay ‐FS [mailto:[email protected]] Sent: Tuesday, March 06, 2018 4:29 PM To: Roby Hurley Subject: RE: Grand Targhee Master Plan
None of those items have been completed. As we discussed briefly on the phone, there is a difference between accepting the concept in a Master Development Plan (they could be appropriate uses/facilities to be located on NFS lands and we are willing to consider them through our NEPA and decision making processes) versus authorizing the construction/location/ engineering because an authorization/allocation decision has been made following our regulations (primarily a NEPA decision).
I answered in more detail below: see my inserted responses (bullets) in your message.
Let me know if you need more information/clarification or if I can be of more assistance.
Forest Service
Teton Basin Ranger District, Caribou-Targhee National Forest p: 208-354-2312 f: 208-354-8505 [email protected] P.O. Box 777, 495 S. Main Driggs, ID 83422 www.fs.fed.us
Caring for the land and serving people
From: Roby Hurley [mailto:[email protected]] Sent: Tuesday, March 06, 2018 1:38 PM To: Pence, Jay ‐FS
Hi Jay, Sorry to bother you again. Can you provide a status on the following 6 infrastructure items. Have they been relocated, built or expanded or still pending?
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In a letter dated January 20, 2010 to the Resort, Forest Supervisor Brent Larson indicated that these projects are indeed “acceptable,” as specifically related to the County Master Plan that had been approved by Teton County. These accepted components include the following: 1. Relocating the maintenance facility to NFS lands. This planned location is described in Chapter 6 (Sect ion H.6 – Ski Area Operations: Maintenance Facilities) and shown on Figure 6.1. 2. Relocating/new water storage tanks to NFS lands above existing tanks. This is discussed in Chapter 6 (Section H.2 – Ski Area Operations: Water Supply and Storage). While some maintenance work has been done, no expansion/relocation has occurred. These facilities are currently located on NFS lands and are therefore acceptable and currently under permit. They have not been included in any NEPA or decision document that would allow the authorized Forest Officer to approve their relocation, expansion, design, construction etc. 3. Relocating avalanche control explosives magazine to NFS lands. These kind of facilities are often located on NFS lands as comparable ski resorts and are therefore acceptable but they are currently located on the private land and have not been relocated nor have they been included in any NEPA or decision document that would allow the authorized Forest Officer to approve their design, construction etc. The ATF requirements often make this particularly difficult to comply with on private lands due to distance from other structures. 4. Expansion of wastewater and equalization/emergency storage tanks. This is discussed in Chapter 6 (Sect ion H.1 – Ski Area Operations: Wastewater System) and shown on Figure 6.1. No expansion outside the current structure has occurred. These facilities are currently located on NFS lands and authorized in a separate permit from the Resort. It is currently and should be expected to continue as an acceptable permitted use. Any expansion of this area has not been included in any NEPA or decision document that would allow the authorized Forest Officer to approve their relocation, expansion, design, construction etc. 5. Constructing a recycling facility in conjunction with the relocated maintenance facility. This is also described in Chapter 6 (Sect ion H.6 – Ski Area Operations: Maintenance Facilities) and shown on Figure 6.1. These kind of facilities are often located on NFS lands as comparable ski resorts and are therefore considered acceptable; but they are currently located on the private land and have not been relocated, nor have they been included in any NEPA or decision document that would allow the authorized Forest Officer to consider approving their design, construction etc.
6. Shoshone Lift and conveyor lifts. These are discussed in Chapter 6 (Sect ion B – Lift Network) and shown on Figure 6.1. No changes (size/location etc.) have been made since the last review. These kind of facilities are located on NFS and possibly private (conveyor?) lands. They could potentially be replaced in their current locations but any expansion of the lifts would need to be included in a NEPA and decision document followed by engineering review etc.
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Roby, Tue 3/20/2018 4:51 PM Thank you for inclusion to review and comment on this proposal. I have already submitted some thoughts on the alteration of Teton County‐imposed conditions from the applicant’s previous County approvals. After our recent discussions which gave me a better understand of what is being proposed, and how it fits in the County Planning and approval process, I wish to add a few more comments. Page| 29 Organizational Excellence * Environmental Stewardship * Vibrant Community * Economic Sustainability Planning Commission September 10, 2018, New Business #: 2
A concern that I have relates to the wastewater treatment system, which resides currently, and is proposed to remain upon USFS land. The proposed Master Plan describes this facility as being permitted under the jurisdiction of the USFS. I am not familiar with the programs implemented by USFS in evaluating treatment works, or what conditions or reporting requirements are imposed upon effluent discharge. I believe it will be a benefit to the public if copies of any design and operation submittals and other treatment and discharge testing and monitoring results that are required by the USFS are also provided to Teton County under the monitoring and reporting conditions. I believe this is justified because the generation of the wastewater will be predominantly derived from within the Teton County‐administered areas.
Regarding the storm water management measures, the Master Plan does identify several preliminary detention basin volumes, and notes the infiltrative capacity of the site soils as being able to accommodate storm water and snow melt runoff. This level of information is insufficient to assess whether the development will be able to adequately manage this run‐off. Preliminary pond locations, and associated contributing areas should be identified to inform this review, and provide some guidance to future physical development. While storm water management will be addressed during every GEC permit review, that process is most often focused only to the scale of the particular physical development proposed at that time. The Master Plan level is an opportunity to formulate a reference strategy so that later physical developments may all work together to ensure proper run‐ off handling is promoted. If this is considered by the applicant as overly restrictive by inhibiting the flexibility to tailor development to market demands, then perhaps referring to a requirement to provide more detailed storm water and snow melt run‐off management plans at the time of submittal of Plat applications is appropriate, with approval of the plat contingent upon approval by the County Engineer prior to Plat approval. Several other large developments (Shooting Star, 3 Creek) have progressed along these lines.
Sincerely, Ted Van Holland, P.E. Teton County Engineering Department
Roby, Tue 3/20/2018 4:40 PM I have briefly reviewed the proposed document for transportation related items. I have one small comment as follows:
1. I would request that in Section 3.5 Transportation, on page 38, Section 5.b. include the Teton County Engineer in addition to the Planning Director has the authority to review and request changes to the Grand Targhee TDM program. Perhaps a technicality, but I want to make sure that Engineering is receiving this reporting annually and have direct access to it rather than having to ask Planning staff to find it for us.
Thanks for the opportunity to review!
Amy Ramage, PE Teton County Engineering Manager
Roby, Fri 6/22/2018 10:45 AM
I would like to provide a comment regarding the Grand Targhee master plan amendment. County engineering staff is not comfortable with the language proposing road easement widths be a minimum of 40’ wide. The current standards for local roads (under 500 ADT) is 60’ minimum right‐of‐way width. (Per Article 7.6.4.N). Right‐ of‐way width needs to be adequate to construct a roadway, pedestrian/bike facilities, utilities and, importantly at this location, snow storage. A 40’ right‐of‐way could potentially be inadequate to accommodate all of these required amenities, depending upon the details of the road design and site conditions.
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There certainly may be opportunities to reduce the right‐of‐way during the future DEV applications processes. This could be processed as a road exception request process as outlined in the LDRs. If proper justifications can be proposed, as outlined in Article 7.6.4.C, engineering staff can consider exceptions to the standards once more details are known as the road design is developed.
Thank you for the opportunity to comment.
Amy Ramage, PE Teton County Engineering Manager
MEMO FIRE REVIEW
TO: Roby Hurley, Principal Planner
FROM: Bobbi Clauson, Fire Inspector
DATE: March 12, 2018
SUBJECT: Grand Targhee PUD, SKC, AMD 3300 Ski Hill Road, Alta PUD2017-0005, SKC2017-0007, AMD2017-0006
This office has received the request for a review of the applications listed above. The most current edition of the International Fire Code (IFC) and the 2017 edition of the National Electric Code (NEC) shall be used for building design.
General Requirements 1. Fire apparatus access shall be provided and maintained. (2015 IFC 503.1.1) 2. WUI applications and review will be required of all new structures as well as additions/alterations to existing structures in this Planned Unit Development. 3. Structures that do not require fire suppression systems by other code requirements will be highly encouraged to include sprinklers in their designs due to the remoteness of this area.
‐ The use of fire treated shakes is strongly discouraged, give the wildland fire danger in this area. Class A roofs would be most appropriate to protect structures in the event of a wildland fire ember shower.
We have no new comments at this time. Please feel free to contact me if you have any further questions at [email protected] or 307- 733-4732.
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Page| 37 Organizational Excellence * Environmental Stewardship * Vibrant Community * Economic Sustainability CONDITION TRACKING SPREADSHEET
Condition (The conditions of final approval dated February 4, 2008) Analysis & Recommendation Change Condition to: Planning Staff review
Conditions in green are proposed to be deleted as they have been incorporated into the Restated Master plan or for other reasons indicated herein.
1. A conservation easement, which shall be defined [as a] 20' wide strip on lands owned by a single entity and within and adjacent to the exterior boundaries of the Based on conversations with the Forest Service, review of the Forest Service Master Development Plan Resort, shall be granted to Teton County and to a land trust approved by Teton County, and a deed restriction shall be placed on the lands subject to the DELETE: The intent of this condition was to limit expansion of the Resort (MDP) and review of the proposed Master Plan, Planning Staff believes the condition is unnecessary. While conservation easement, both of which shall not be subject to amendment or termination without the consent of the Teton County Board of Commissioners. The beyond its borders. However, this protection is already provided in the the Forest Service would like to see a barrier around the Resort to restrict uses from moving on to the conservation easement and deed restriction shall establish a fixed boundary to the 120 acres of the Resort and shall prevent physical expansion of the Resort or Major Amendment section of the Master Plan. Implementing a Forest indiscriminately, that can be addressed at development plan application. This subject is also access to or through the Resort from any other adjacent or nearby private land. The conservation easement and deed restriction shall be reviewed by the Board for condition such as this one would add to the burdens on staff without a See Master Plan Section 1.5.B Major Amendments discussed in Condition 22. Residential uses such as unplanned walking and biking pathways and pets conformance with the intent established by this condition prior to approval of the first Final Plat for the Resort, and shall be recorded concurrently with the first with any increase to the protection of resources. Furthermore, it will be should be restricted. Pets are currently restricted and the application proposes to continue that Final Plat for the Resort. The applicant shall contribute stewardship costs calculated by an objective formula approved by the Planning Director to cover the cost of difficult to find a non-profit to steward an easement of such restriction. All development is reviewed through the development plan process, Sec. 2.2.B.12. The Jackson the baseline inventory and to ensure long-term monitoring and legal defense of the conservation easement. Temporary grading, erosion control, permanent configuration. Hole Land Trust doubts that any conservancy or land trust would accept an easement as this condition grading, grading to allow for surface drainage improvements, vegetation management, additional landscaping, management for fire break purposes, and utilities requires. See Key Issue 4 in the staff report. and roads connecting the resort to the existing permit area, as well as, chair lift or other ski area infrastructure shall be permitted within the conservation easement.
The proposed master plan continues the density and intensities approved in 2008 with no changes as 2. The total residential, employee housing, and lodging units located at the Resort shall not exceed 450, with average peak occupancies (APOs) consistent with the DELETE: This condition is unnecessary. The Master Plan limits the density See Master Plan Section 3.1.A Total Density described in Sec. 3.1.A. A separate condition is redundant to the Master Plan and detracts from the Land Development Regulations. at the Resort. necessity and authority of a master plan.
3. Not more than ten percent (10%) of the total permitted housing and lodging units at the Resort shall be single-family lots, and not more than ten percent (10%) of the total permitted housing and lodging units at the Resort shall be cabins or townhouse units. The balance of the permitted housing and lodging units (80%), DELETE: The ratio between subareas remain the same. Transfer is one including employee housing units, shall be located in the Resort Center Plan Area. Housing and lodging units located in the Resort Center Plan Area shall be direction(RAPA to the RCPA) and clarified. Unit type designated and The ratios are codified in the Master Plan under Sec. 3.1 so a separate condition and covenants is designed for short term rental. Single family lots and cabin lots may be located in the Resort Center Plan Area and may be rented on a short- or long-term basis. All limits are removed to allow market to dictate mix. Establishing See Master Plan Section 3.1 Physical Development Standards for the Resort redundant and detracts from the necessity and authority of a master plan. Planning Staff does not have a other units, except on-site employee housing units, may only be rented on a short-term basis. Owner's use of any residential or lodging unit is not restricted. These restrictions in covenants is unnecessary and is not carried over to position on Unit Type designation and limits. restrictions shall be established in recorded restrictive covenants, which can only be with the written and recorded approval of the Teton County Board of Master Plan. Commissioners. The restrictive covenants shall be executed prior to recordation of the associated Final Plats.
The Commercial Floor Area limitation is the same as approved in 2008 and are codified in the Master Plan 4. The gross floor area for Commercial, Resort Services and Amenities, and Support Uses shall not exceed 150,000 SF. This excludes employee housing units, DELETE: This condition is unnecessary. The master plan limits the See Master Plan Section 3.1.C Commercial Floor Area under Sec. 3.1.C so a separate condition is redundant and detracts from the necessity and authority of a underground parking areas, and basements, as defined by the Land Development Regulations. commercial square footage at the Resort. master plan.
The Master Plan proposes a Phasing Plan in Sec. 1.3.D.1, 2.2.E and 2.1.E that includes unit densities very 5. Development of the Resort shall be permitted in four phases. Phase One shall consist of 113 new dwelling units of which not more than 20 single family lots and similar to this condition. The first phase is less than the Condition and single family and cabins is less in the 20 cabins shall be allowed. The minimum amount of retail services to be provided shall be 25,000 sf in Phase One. Phase Two shall include 113 new dwelling units first and second phases. Permitted processes are proposed and similar to the LDRs. One departure from of which not more than 20 single family lots and 20 cabins shall be allowed. The minimum amount of retain services shall be 35,000 sf in Phase Two. Phase Three DELETE: A new phasing plan is included as part of the Master Plan. See Master Plan Section 1.3.D.1 of Master Plan for new phasing plan the condition is that "All permitted development in each phase must be constructed or platted before the shall contain 113 dwelling units and a minimum of 35,000 sf of retain services and Phase Four shall contain 111 dwelling units. Permitted development shall be next phase can be commenced". Planning Staff does not have a position on timing of completion of each established by final development plans or subdivision plats, as applicable. All permitted development in each phase must be constructed or platted before the next phase, however this can be controlled thru the subdivision and physical development process. See Sec. phase can be commenced. 1.3.D.1, 2.2.E and 2.1.E of the Staff Report.
Construction of the pathway for the Teton Creek Corridor Project as soon as possible will give more residents access to the corridor, which in turn Provide immediate matching funding of up to $100,000 for the Teton Creek Pathway Project. This project will provide connectivity will provide further momentum to generate support for conservation from Alta to the network of pathways throughout Teton Valley. Listed in Section 3.11.2.a of the Master Plan easement and stream restoration fundraising. Restated as condition #1 as follows:
6. Environmental mitigation shall include the acquisition of a Conservation Easement over or Fee Simple Acquisition of at least 299 acres with habitat priority ranking 6 or higher or land that would qualify for Natural Resources Overlay status, as defined by the Land Development Regulations. Land shall be preserved within a distance of 50 miles from the resort and within Teton County, Idaho and/or Teton County, Wyoming. The applicant shall also contribute stewardship costs calculated by an objective formula approved by the Planning Director to cover the cost of the baseline inventory and to ensure long-term monitoring and legal Planning Staff does not have a position on conditions 6 and 7 but notes that exactions are proposed in Sec. defense of any conservation easement associated with the 299 acres. Acquisition of all land shall occur commensurate with development of the Resort, which shall 2. Provide a 2% transfer fee on all initial sales of real estate in the Resort granted annually by the applicant and their successors and 3.3 and consideration should be given to the 400 acres (Squirrel Meadows) considered by the Forest be defined as 25% of the total 299 acres per each of the four development phases. All acquisitions shall be subject to the approval of the Board of County Securing options for and acquiring Conservation Easements for the Teton assigns to a qualified land. This funding would specifically support the acquisition of conservation easements, or for the securing of Service to be fair mitigation for the 120 acres of low value habitat. The 120 acre parcel was configured in Commissioners, with an emphasis on high value habitat that has development potential. Creek Corridor Project will have a more meaningful impact on the grater options on conservation easements, identified by the qualified land trust. This obligation would end after $200,000 has been such a way to minimize night lighting viewable from Teton Valley and reduce natural resources impacts. Yellowstone Ecosystem that traverses Wyoming and Idaho boundaries transferred. The transfer fee revenue shall be donated to the qualified land trust. If at any time, the qualified land trust is not able to The Federal Environmental Impact Statement was performed which excluded all sensitive lands from the and it will provide a tangible public benefit to the communities of Alta, accept funding, is not engaged for the express purpose of implementing the Teton Corridor Project for the purpose listed above, the transfer, resulting in the irregular shape of the parcel and a reduction in acreage from 158 to 120. The Victor and Driggs. Restated and as condition #2 as follows: transfer fee funding will revert to Teton County with the express purpose of providing funding for Alta area parks and services only. applicant has proposed financing and support for the Teton Creek Corridor Project in Sec 3.11 Community Listed in Section 3.11.2.b of the Master Plan Services. Conditions such as 6,7 and 34 should be part of the Master Plan, Community Services Element, not conditions. See Issue #2 of the Staff Report
A 1% transfer fee on all resales in the Resort shall be granted annually by the applicant and their successors and assigns to a qualified 7. The 1% transfer fee proposed by the applicant shall be granted annually by the applicant and their successors and assigns to fund and support the acquisition of land trust to support the purpose and goals of the Teton Creek Corridor Project. Specifically, this funding will support: A.) the lands or conservation easements with a habitat priority ranking of 6 or higher or land that would qualify for Natural Resources Overlay status, as defined by the Land acquisition of lands or conservation easements in Teton County Idaho OR Teton County, Wyoming; B.) stream restoration, acquisition Development Regulations. Provided a qualified third party, such as Teton Regional Land Trust or Friends of the Teton River or Similar conservation organization, of water rights, long term water right leases, and programs that will increase in-stream water flows in the Teton Creek Corridor; C.) verifies the need, river or stream restoration, acquisition of water rights, long term water right leases, and programs that will increase in-stream water flows are Restated in Listed in Section 3.11.2.a of the Master Plan as follows: Pathways that provide access to the Teton Creek Corridor. The transfer fee revenue shall be donated to a qualified land trust. If at any qualified for this program. Acquisitions or easements may only be located in Teton County, Wyoming or Teton County, Idaho. Any funds in excess of 1% each year time, the qualified land trust is not able to accept funding, or is not engaged for the express purpose of implementing the Teton shall be granted to the Teton Regional Land Trust or other 501c3 organization, whose primary purpose is land conservation, for conservation purposes in Teton Corridor Project for the purposes listed above, the transfer fee funding will revert to Teton County with the express purpose of County, Idaho and Teton County, Wyoming. providing funding for Alta area parks and services only. Listed in Section 3.11.2.c of the Master Plan 8. The required number of affordable and employee housing units shall be calculated pursuant to the Land Development Regulations and consistent with the Planning Staff believes a condition is not necessary. The Master Plan proposes affordable and employee applicant Housing Mitigation Plan. A minimum number of essential employees required for the operation of the ski area PUD development and consistent with the housing in Sec. 3.4 that demonstrates funding, mitigation, timing, types of units, availability, and location approved Teton County emergency management plan, shall be housed on site, and employee housing will be constructed in Phase One. Not more than 40 Deleted. This is redundant. Section 3.4 and the LDRS covers this issue criteria for off-site housing for both affordable and employee housing categories. Teton County Housing employees shall be housed onsite, pursuant to criteria proposed by the applicant and approved by the Teton County Board of Commissioners. Employees not Department has reviewed the application and has requested oversight of restricted units and review housed on-site shall be housed in Teton County, Idaho as proposed by the applicant Housing Mitigation Plan. during implementation of the Plan.
9. No Accessory Residential Units shall be permitted. DELETE: This condition is unnecessary. The Master Plan limits ARUs. See Master Plan Section 1.7 Definitions: Accessory Use of Building This condition is unnecessary because the Master Plan prohibits ARUs in Sec. 1.7 Definitions.
DELETE: This condition was suspended by the BCC (MFS2013-0013) as it doesn't work for a viable resort that is visited frequently by citizens of Teton County, Idaho and Wyoming. It is not required of other Resorts in 10. No cats or dogs, other than service animals, shall be permitted in the Resort. The entrance to the Resort, as well as Resort trails serving surrounding public land, This condition is no longer applicable as the BCC suspended this prohibition June 6, 2013. Pet restrictions Teton County that have significantly more natural resources to protect. See Master Plan Section 2.1.b.7 & 2.2.b.7 shall be signed accordingly. Suspended as per MFS2013-0013 are contained in each Zone section B.7. GTR is not within the NRO, and there are no mapped migration corridors on or near the property. Language has been included in the Master Plan to mimic the NRO regulations in Section 5.2.2.H from the LDRs.
11. All Sketch Plans and Final Development Plans shall include exterior lighting plans. All exterior lighting shall be low-intensity, low-profile, and shielded. The DELETE: This condition is unnecessary. Lighting will be administered by Planning Staff believes a condition is not necessary. As identified in the Master Plan Lighting is deferred to Planning Director shall require such techniques as motion sensors, lighting curfews, dimming, and other best available technology to minimize glare and excessive See LDRs Section 5.3.1 the LDRS Section 5.3.1. the LDRs, Section 5.3.1. lighting. These requirements shall augment, rather than replace, the standards contained in the Master Plan.
12. Solid fuel decorative devices shall be restricted to one per each of the 45 single-family units and one per commercial building or public space of lodging building. DELETE: This condition is unnecessary. Solid Fuel devices are limited by Planning Staff believes a condition is not necessary. Solid Fuel devices are limited by the Energy Mitigation See Table 6b of 2006 International Energy Conservation Code Amendments Adopted by Teton County on 7/19/2009. All other devices shall be EPA Phase II or cleaner burning devices as permitted by Teton County regulations. the Energy Mitigation Plan adopted on 7/21/2009. Program, administered during building permit review.
DELETE: This condition is unnecessary as the Master Plan will defer to Air quality impacts are reviewed primarily through Wyoming State standards during the grading and 13. The applicant shall develop an air quality monitoring and mitigation plan, which shall be approved by Teton County prior to approval of the first Final LDR Section 5.1.4 Air Quality and to WYDEQ who regulates air quality See LDRs Section 5.1.4 Air Quality LDRS which provide protection in conjunction with WYDEQ. erosion control process. Both Plan Areas, Sections 2.1 and 2.2 reference LDR Sec. 5.1.4. Teton County does Development Plan for the Resort and incorporated into the Master Plan's overall monitoring requirement. statewide. not have the staff resources to implement this condition. See Master Plan Section 3.5.Transportation: I. Section 3.5.B Annual Daily Traffic. An observational traffic movement study shall be conducted twice annually during one calendar week in February and August to observe and document actual vehicle operations and peak hour traffic counts for both weekday and weekend timeframes. The study shall be conducted by an independent qualified engineering firm with staff experienced in transportation/traffic engineering. If during the reporting time a LOS of D (as defined by the TRB Highway Capacity Manual) is reached Planning Staff believes a condition is not necessary. The Master Plan proposes a Transportation Plan (Sec. 14. In the event average annual daily traffic (AADT) on Ski Hill Road, at its junction with Teton Canyon Road, as determined by twice-annual summer and winter on the roadway segment between Teton Canyon Road and Grand Targhee (excluding special events) adjustments will be made to the 3.5) that includes all of the components of the condition except review and approval of adjustments shall peak season traffic analysis, exceeds level of service "C" (defend as 2400 AADT for the most limiting roadway section), no additional development approvals or DELETE: #'s 14 and #33 are proposed for deletion and will be replaced Transportation Demand Management Plan to improve the LOS, which shall be approved by the Teton County Planning Director. be made by the Teton County Engineer. Teton County Transportation Coordinator reviewed the changes building permits shall be granted at the Resort until adjustments have been made to the Transportation Demand Management Plan, which shall be approved in with the following requirement in the Master Plan. to the how the TDM is measured and stated, “They are proposing to change from Average Daily traffic on writing by the Teton County Board of Commissioners. II. Section 3.5.3.b Traffic Counts. A traffic counter, capable of capturing peak hour counts, shall be installed within 90 days of the Ski Hill Road to peak hourly traffic. In summary, this proposal will actually be more accurate”. A separate approval of this Master Plan with the capability to capture daily and hourly traffic counts during peak operations on ski hill road east of condition is redundant and detracts from the necessity and authority of a master plan. the intersection of Teton Canyon Road. The traffic counter shall be in place and operational year-round. Counts shall also be obtained from the Idaho Transportation Department (ITD) counter on Ski Hill Road near Driggs, Idaho. Traffic count reports including daily and peak hour counts shall be summarized and reported annually.
DELETE: If that applicant proposes any physical development at the Planning Staff believes a condition is not necessary. The Master Plan proposes the same standards as the 15. Prior to issuance of the PUD-PR Master Plan permit, the applicant shall submit for County review and approval a storm water management plan and water Resort, they will be required to file the appropriate permits as per the See LDRs Section 5.7.4 Stormwater Management Standards which protection in conjunction with WYDEQ. LDRs in each of the Zone standards. A separate condition is redundant and detracts from the necessity quality monitoring plan for both construction and operation phases, which shall be incorporated into the required annual monitoring report. LDRs under Section 5.7.4 Stormwater Management Standards. and authority of a master plan. Stormwater Pollution Prevention is also under the Authority of WYDEQ.
Planning Staff believes a condition is not necessary. The Master Plan proposes the same definition as the 16. The APO definition for the hostel/hotel/lodging/studio accommodation category contained in the Master Plan shall prohibit living rooms and kitchens in these DELETE: APOs are defined in Section 3.1.D in the Master Plan. See Master Plan Section 3.1.D APOs. LDRs in Sec. 3.1.D. APOs. A separate condition is redundant and detracts from the necessity and authority units, pursuant to Section 2550.D.12.b.2.a of the Land Development Regulations. of a master plan.
DELETE: Development Exactions are to be collected at the time of platted Master Plan Sec. 3.3. Development Exactions contains all of the elements contained in LDR Sec. 7.5.1, subdivision of land as stipulated under Section 3.3 Development Development Exactions. Sec. 3.3 also contains the public service building, medical facility and fee in lieu 17. The Development Exaction of $1,302,000 shall be comprised of .8 acres of property for community facilities, an 850 sq. ft. public services building, a 750 sq. ft. Exactions where consideration for Alta Services and the community See Master Plan Section 3.3 Development Exactions dedication for Alta Services. This section also contains Timing of Payment, Use of Land and Alternative medical facility, and site development including parking, grading, utility services, subdivision and landscaping, and cash payment of $500,000 for Alta services. faculties (850 sf pubic services building & 750 sf Medical facility) has Dedication requirements. Phasing of exactions is covered in sec 1.3.D. Section 3.3 covers the intent of been incorporated. Condition 17. On these subjects a condition would be redundant to the Master Plan.
DELETE: The timing of the submittal of the emergency management plan Planning Staff believes a condition is not necessary. The Master Plan proposes the same certificate of 18. Certificates of Occupancy for the public service and medical facilities buildings, provided as partial fulfillment of the development exaction requirement, shall be remains the same. This requirement is incorporated into Section 3.1.D See Master Plan Section 3.1.D Phasing Requirements. occupancy as the Condition (Sec. 1.3.D). A separate condition is redundant and detracts from the issued prior to application to Teton County for any development associated with Phase III of the Master Plan. Phasing Requirements of the Master Plan. necessity and authority of a master plan.
19. Prior to issuance of the PUD-PR Master Plan permit, the applicant shall amend the monitoring plan to ensure conformance with Section 2550.D.10.f of the Land Development Regulations and incorporation of all elements that must be regularly monitored. Planning Staff believes a condition is not necessary. The Master Plan proposes a monitoring program (Sec. 3.10.C) containing achievement of performance objectives, annual Monitoring Timing, annual monitoring DELETE: This has been incorporated into 3.11 Monitoring Plans and See Master Plan Section 3.11 Monitoring Plans and Requirements contents and Transportation Monitoring and Exactions. Section 3.10 complies with LDR section Requirements of the Master Plan 20. The applicant shall submit a consolidated annual monitoring report to the Planning Department and shall present the report to the Board in February of each 4.3.1.F.11.f., Monitoring Program. A separate condition is redundant and detracts from the necessity and year beginning in 2009. This requirement shall apply to all phases of development. The applicant or the County may propose to amend the monitoring plan and/or authority of a master plan. required mitigation during the annual reporting period. The applicant shall compensate County staff for the time necessary to review the annual monitoring reports.
DELETE: The timing of submittal of the emergency management plan has 21. Prior to issuance of the first Final Plat for the Resort, the applicant shall submit an emergency management plan to Teton County Emergency Management and Planning Staff believes a condition is not necessary. The Master Plan proposes an emergency management been changed to within 1 year of recordation of the first final plat and is the Planning Department for review and approval, which shall then be incorporated into the approved PUD-PR Master Plan. The emergency management plan shall See Master Plan Section 3.1.D Phasing Requirements. plan (Sec. 3.9.B) that shall be implemented within one year of approval of the first final plat. A separate incorporated into the Master Plan in Section 3.1.D Phasing be implemented within one year of approval of the first Final Plat for the resort. condition is redundant and detracts from the necessity and authority of a master plan. requirements.
22. Any new trails from the PUD or Special Use Permit area to the surrounding public lands are permitted subject to the approval of the USFS and the Board of Planning Staff believes a condition is not necessary, however it is a subject of concern for Planning and the County Commissioners. Any informal, unpermitted trails from the PUD or the Special Use Permit area to the surrounding public lands are prohibited. The boundary Forest Service. The Master Plan proposes an Open Space and Trails element to address this use (Section Deleted. This is covered in the master plan. See Master Plan Section 3.7 of the PUD and Special Use Permit area will be actively monitored by GTR. If unpermitted trails are identified, with the oversight of the USFS, GTR will close and See Master Plan Section 3.7 Open Space and Trails. 3.7). This subject is also addressed in Condition 1 above. It is noteworthy that the Sketch plan map shows Open Space and Trails. revegetate these trails, and will monitor the status of these trails going forward. "Trails", in the context of this condition, are considered to be summer (i.e. hiking, buffers in-between the Plan Areas and the Forest on a majority of the boundary. The Master Plan includes biking, horseback riding, etc.) type trails. a prohibition on any private trails in Sec. 3.7.C. See Key Issue 4.
23. Prior to approval of the first Final Plat for any development in the Resort, the applicant shall provide to the County confirmation from the Forest Service that the This condition is no longer applicable as the new MDP was accepted in 2017. The Master Plan contains DELETE: The USFS Master plan Amendment process has concluded. This proposed amendment of the Special Use Permit Master Development Plan has been accepted for construction and that this plan conforms to the Master Plan and Section 3.12 Relationship to National Forest Lands which addresses the link between the two plans. The Master Plan for the Grand Targhee Resort PUD PR conforms with USFS Not Applicable Standards and Conditions approved by Teton County. If conformance cannot be established, the applicant shall undertake an amendment of the Master Plan, which section requires notification to Teton County of on mountain improvement applications. This section Master Plan. shall be approved prior to approval of the first Final Plat for any development in the Resort. establishes a notification and permitting framework, and connection to on mountain improvements. 24. Within one year of approval of the PUD-PR Master Plan and the text amendment, and prior to application for any development permit or permit associated with the approved Master Plan, the applicant shall complete all required and necessary amendments of the Master Plan and of the text of the Land Development Planning Staff believes a condition is not necessary. The Master Plan proposes similar language to the DELETE: This has been Extended to 2/4/2018. But this can be deleted as a Regulations. Prior to issuance of the PUD-PR Master Plan permit, the applicant shall amend the Standards and Condition section of the Master Plan to delete See Master Plan Section 1.3.C Expiration and Extension. Condition and the LDRs or defers to the LDRs (Sec. 1.3.C). A separate condition is redundant and detracts condition since it has been written into the Master Plan. Chapter 20: Reconsideration, and replace these Chapters with the following language, which shall be contained in a single Chapter. Other Chapters and Sections from the necessity and authority of a master plan. shall be , as necessary, for consistency.
Planning Staff believes a condition is not necessary. The LDRs require preparation and recordation of the 25. Upon finalization of the Master Plan, the applicant shall provide two color paper and one editable electronic copy of the Plan and associated documents to the DELETE: Does not need to be a condition. Administrative element completed and not applicable Master Plan (Sec. 4.3.1.E.5). A separate condition is redundant and detracts from the necessity and Planning Department. already part of application process. authority of a master plan or LDRs.
DELETE: The need for an emergency management is incorporated into Planning Staff believes a condition is not necessary. Emergency management is addressed in the Master 26. The applicant shall amend the Master Plan to include reference to the Required emergency service and evacuation plan. the Master Plan in Section 3.1.D Phasing requirements and Section See Master Plan Section 3.1.D Phasing requirements and Section 3.10.B Emergency Management Plan Plan in Section 1.3.D.4. Phasing requirements and Section 3.10.B Emergency Management Plan. A 3.10.B Emergency Management Plan. separate condition is redundant and detracts from the necessity and authority of a master plan.
27. Off highway and off road motorized activity from the Resort is prohibited except as necessary for the general functions of the Resort or in the event of DELETE: Defer to the Master Plan for Off Road standards See Master Planning Staff believes a condition is not necessary. Off Road Use is prohibited in the Master Plan in Sec See Master Plan Section 3.7.D Off Road Use emergencies. Plan. 3.7.D. A separate condition is redundant and detracts from the necessity and authority of a master plan.
Planning Staff believes a condition is not necessary. Parking standards are addressed in the Master Plan in 28. The applicant shall be permitted flexibility in locating parking in structures, on-street, or in surface lots. DELETE: Defer to the Master Plan for parking standards See Master Plan Section 3.5.D Parking Standards Sec 3.5.D. including the flexibility recommended in this condition. A separate condition is redundant and detracts from the necessity and authority of a master plan. Planning Staff believes a condition is not necessary. Parking standards are addressed in the Master Plan in 29. Parking ratios shall remain consistent with the draft Master Plan. DELETE: Defer to the Master Plan for parking standards See Master Plan Section 3.5.D Parking Standards Sec 3.5.D. including ratios similar to the LDRs. A separate condition is redundant and detracts from the necessity and authority of a master plan. Planning Staff believes a condition is not necessary. Amendments are addressed in the Master Plan in Sec 30. The on-site parking plan may be with the approval of the Board of Commissioners. DELETE: Included as minor amendment in Master Plan . See Master Plan Section 1.5.B.2 Minor Amendments 1.5.B. A separate condition is redundant and detracts from the necessity and authority of a master plan. Planning Staff believes a condition is not necessary. Master Plan Sec. 1.4.A. Relationship to the Land 31. The Applicant shall amend the Master Plan to incorporate the LDR definition of Development. DELETE: Defer to LDRs. Defer to the LDR Definition of Development Development Regulations, describes the authority of the LDRs when the Master Plan is silent. The word Development is defined in the LDRs. A separate condition is redundant and detracts from the necessity
32. 10 signed parking spaces sufficient to accommodate 5 cars and 5 RV/Trailers will be dedicated at the resort from mid April through mid November to support Planning Staff believes a condition is not necessary. Summer public parking similar to the condition are DELETE: This condition is unnecessary as it has been incorporated into the public's access to clearly marked trails ROWs designated in the Forest Service Agreement. The use of these spaces may occasionally be limited due to special See Master Plan Section 3.7.E Parking for Public Access addressed in the Master Plan in Sec 3.5.D. A separate condition is redundant and detracts from the the Master Plan. events held at the resort. necessity and authority of a master plan.
While the current Teton County Road and Levee Supervisor was not aware of an annual fee or this 33. The Road and Levee Supervisor shall establish annually a fee to be paid by Grand Targhee Resort to be used to offset Operations and Maintenance costs and condition, fees have been collected in the past. A road impact fee in the amount of $21,000 was collected DELETE: This is vague, undefined and not time dependent. This is not other impacts to Ski Hill Road. The fee shall represent proportionally these impacts created by development during the construction phase. The impact area shall See Master Plan Section 3.5.B Annual Daily Traffic April 7, 2010 indicating implementation of the condition. However it is uncertain if a fees system was setup required of other resorts. Master plan Section 3.5.B will address. be defined as Ski Hill Road beginning at Stateline Road to the termination of the public portion of the road at the resort boundary. to continue the requirement. For that reason Staff is recommending that a fee structure system be developed by Teton County Engineering and incorporated into Sec. 3.5 Transportation. See Key Issue 5.
Planning Staff does not have a position on condition 34 but notes that exactions are proposed in Sec. 3.3 and consideration should be given to the 400 acres (Squirrel Meadows) considered by the Forest Service to 34. A voluntary environmental mitigation shall include fee simple acquisition of, or the acquisition of a conservation easement over, at least 301 acres of land within be fair mitigation for the 120 acres of low value habitat. The 120 acre parcel was configured in such a way Teton County, Wyoming, generally in the vicinity of Alta, having agricultural, habitat, open space and/or scenic values. The applicant shall also contribute to minimize night lighting viewable from Teton Valley and reduce natural resources impacts. The Federal stewardship costs calculated by an objective formula approved by the Planning Director to cover the cost of the baseline inventory and to ensure long-term SAME AS #6 See Proposed Conditions 1 & 2 above Environmental Impact Statement was performed which excluded all sensitive lands from the transfer, monitoring and legal defense of any conservation easement associated with the 301 acres. Acquisition of all land shall occur commensurate with development of resulting in the irregular shape of the parcel and a reduction in acreage from 158 to 120. The applicant has the Resort, which shall be defined as 25% of the total 301 acres per each of the four development phases. proposed financing and support for the Teton Creek Corridor Project in Sec 3.11 Community Services. Conditions such as 6,7 and 34 should be part of the Master Plan, Community Services Element, not conditions. See key Issue 2 in the staff report.
Planning Staff believes a condition is not necessary. This condition is addressed in the Master Plan in Sec 35. As part of the Transportation Demand Management Program, winter transit ridership shall be 30% of day skiers. DELETE: This has been incorporated into the Master Plan See Master Plan Section 3.5.A.4 3.5.A.4. A separate condition is redundant and detracts from the necessity and authority of a master plan.
Planning Staff believes a condition is not necessary. Approval of the Master Plan binds the Resort and its 36. Grand Targhee Resort, LLC, as operators of the resort, and its successors and assigns, shall be subject in perpetuity to the terms of the Transportation Demand DELETE: This has been incorporated into the Master Plan See Master Plan Section 3.5.A.4 successors to the terms of the Transportation Demand Management Program and associated Standards Management Program and associated Standards and Conditions of the Master Plan. and Conditions of the Master Plan. Article 4. Special Purpose Zones | Div. 4.3. Planned Resort Zones 4.3.7. Grand Targhee (1/1/15)
E. Recreation and Preserved Area
The recreation and preserved area shall consist of at least 101.7-acres of land, zoned Park on the Official Zoning Map, located adjacent to but not within the Snake River Canyon Ranch Resort. An open space easement shall not be requited to preserve these lands, but a minimum of 101.7 acres of open space shall be available as passive recreation area for the Astoria Hot Springs Park.
4.3.7. Grand Targhee (1/1/15)
4.3.7
A. Area Description
The Grand Targhee Planned Resort Zone consists of those lands designated PR- TG on the Official Zoning Map. The following areas, as depicted on the “Land Use Districts” map within the Grand Targhee Resort Master Plan, comprise the Grand Targhee Planned Resort Zone:
1. Resort Center Plan Area. The Resort Center Plan Area includes retail, food and beverage uses, resort services and amenities, support and services, and residential and accommodation units. There will be parking spaces for day guests and below grade parking garages associated with accommodation buildings. The Resort Center Plan Area is comprised of 36 acres.
2. Residential and Accommodation Plan Area. The Residential and Accommodation Plan Area is primarily for residential and accommodation uses such as single- family residences, townhouses and cabins. This area shall include open space areas for trails. The Residential and Accommodation Plan Area is comprised of 84 acres.
B. Master Plan
The Grand Targhee Planned Resort Zone is governed by the Planned Unit Development for Planned Resort master plan, titled “Grand Targhee Resort Planned Unit Development for Planned Resort.” Throughout this Section, the master plan will be referred to as Grand Targhee Resort Master Plan.
C. Character and Design
The character objectives for Grand Targhee are that it resembles a clustered resort center with its own sense of place. Important characteristics are:
1. a transition in density, intensity and character from the center to adjacent Forest Service natural lands;
2. a distinct center, defined both by buildings and activities;
3. a mix of land uses, varying from a center of high intensity mixed commercial, skier amenities, accommodation and recreational uses, to lower density areas with predominantly residential/accommodation uses;
4. clear edges, defined both by buildings and open spaces, that distinguish the center from surrounding National Forest lands;
4-42 Teton County Land Development Regulations Article 4. Special Purpose Zones | Div. 4.3. Planned Resort Zones 4.3.7. Grand Targhee (1/1/15)
5. a continuity in building size, architecture, and individual site design;
6. a pedestrian streetscape and pedestrian connections throughout the village center;
7. creation of a sense of arrival;
8. a visitor destination with a strong sense of place; and
9. a destination ski area.
D. Size
1. Residential. Not more than 10% of the total permitted housing and lodging units at the Resort shall be single-family lots, and not more than 10% of the total permitted housing and lodging units at the Resort shall be cabins or townhouse units. Single-family lots and cabin lots may be located in the Resort Center Plan Area and may be rented on a short or long-term basis.
2. Lodging. The balance of the permitted housing and lodging units (80%) including employee housing units shall be located in the Resort Center Plan Area. Housing and lodging units located in the Resort Center Plan Area shall be designed for short term rental. All other units, except on-site employee housing units, may only be rented on a short-term basis. Owner’s use of any residential or lodging unit is not restricted. These restrictions shall be established in recorded restrictive covenants, which can only be amended with the written and recorded approval of the Teton County Board of Commissioners. The restrictive covenants shall be executed prior to recordation of the associated Final Plats.
3. Affordable and Employee Housing. The required number of affordable and employee housing units shall be calculated pursuant to the LDRs and in accordance with the Grand Targhee Resort Master Plan and Housing Mitigation Plan approved on February 4, 2008. Not more than 40 essential employees shall be housed on-site as required for the operation of Grand Targhee Resort and consistent with the approved Teton County emergency management plan. Employees not housed on-site shall be housed in Teton County, Idaho in accordance with the approved Grand Targhee Resort Master Plan.
4. Retail, Office, and Other Commercial Type Uses. Within the Grand Targhee Resort, there shall be no more than 150,000 square feet of retail/office or other commercial-type uses including resort services, amenities, and support uses. This excludes employee housing units, underground parking areas, and basements, as defined by the LDRs. This commercial square footage shall be allocated to the commercial lots and tracts in accordance with the approved Grand Targhee Resort Master Plan.
Teton County Land Development Regulations 4-43 Article 4. Special Purpose Zones | Div. 4.3. Planned Resort Zones 4.3.7. Grand Targhee (1/1/15)
E. Skier Visits
The maximum daily skier visits measured in skiers at one time is based on existing Forest Service approvals for skier capacity on the Special Use Permit Area of the Grand Targhee Resort. The special use permit allows for 5,130 skiers at one time. It is anticipated that the skier visits will be controlled only by the Forest Service Special Use Permit.
F. Intensity
1. Floor Area Ratio. No more than 2.5 Floor Area Ratio (FAR) shall be permitted on any platted lot within the Resort Center Plan Area with the total plan area not to exceed 1.5 (FAR). The intensity on the remainder of the Residential and Accommodation Plan areas shall be defined by building envelopes and specific site plans based on the maximum size standards by types of residential and/ or accommodation use; see Section Four, Master Site Plan and Dimensional Limitation Plan and Section Five, Land Use Element.
2. Density. The total residential, employee housing, and lodging units located at the Resort shall not exceed 450, with average peak occupancies (APOs) consistent with the LDRs. The total APO’s for Grand Targhee Resort shall not exceed 3,500.
G. Landscape Surface Area
The minimum landscape surface area provided within the Planned Resort shall be 25%. The landscape surface area shall be calculated as per Table 4-7, Landscape Surface Ratio Calculations, of the Grand Targhee Resort Master Plan. Notwithstanding, the Board of County Commissioners may reduce the minimum landscape surface area to no less than 20% upon demonstration by the applicant that the following objectives are achieved with a reduced landscape surface area:
1. the landscape surface area creates a quality resort center design and creates public spaces for interaction and public events; and
2. the landscape surface area creates a clear boundary for the resort.
H. Environmental Analysis
The environmental analysis in the Grand Targhee Resort Master Plan defines that no NRO or SRO are located within the Planned Resort Zone. Environmental mitigation shall include, but not be limited to:
1. Environmental mitigation shall include the acquisition of a Conservation Easement over or Fee Simple Acquisition of at least 299 acres with habitat priority ranking 6 or higher or land that would qualify for Natural Resources Overlay status, as defined by the LDRs. Land shall be preserved within a distance of 50 miles from the resort and within Teton County, Idaho and/or Teton County, Wyoming. The applicant shall also contribute stewardship costs calculated by an objective formula approved by the Planning Director to cover the cost of the baseline inventory and to ensure long-term monitoring and legal defense of any conservation easement associated with the 299 acres. Acquisition of all land shall occur commensurate with development of the
4-44 Teton County Land Development Regulations Article 4. Special Purpose Zones | Div. 4.3. Planned Resort Zones 4.3.7. Grand Targhee (1/1/15)
Resort, which shall be defined as 25% of the total 299 acres per each of the four development phases. All acquisitions shall be subject to the approval of the Board of County Commissioners, with an emphasis on high value habitat that has development potential.
2. A voluntary environmental mitigation shall include Fee Simple Acquisition of, or the acquisition of a Conservation Easement over, at least 301 acres of land within Teton County, Wyoming, generally in the vicinity of Alta, having agricultural, habitat, open space and/or scenic values. The applicant shall also contribute stewardship costs calculated by an objective formula approved by the Planning Director to cover the cost of the baseline inventory and to ensure long-term monitoring and legal defense of any conservation easement associated with the 301 acres. Acquisition of all land shall occur commensurate with development of the Resort, which shall be defined as 25% of the total 301 acres per each of the four development phases.
I. Parking
On-site parking shall be located in structures, on-street, or in surface lots in accordance with the Grand Targhee Resort Master Plan. Off-site parking serves a significant role in the Transportation Demand Management Plan. Off-site parking will be located at a Park and Ride lot or at lots where shuttle/bus service will be provided to and from the Resort.
J. Relationship to National Forest Lands
1. Public access and public easements will be retained as stipulated to access National Forest Lands. Section Seventeen, MDP/FEIS Mitigation Measures of the Grand Targhee Resort Master Plan describes the mitigation measures that were established for the Special Use Permit Area and continue to apply to the private lands.
2. Prior to approval of the first final plat for any development in the resort, the applicant shall provide to the County confirmation from the U.S. Forest Service that the proposed amendment of the Special Use Permit Master Development Plan has been accepted for construction and that this plan conforms to the Master Plan and Standards and Conditions approved by Teton County. If conformance cannot be established, the applicant shall undertake an amendment of the Master Plan, which shall be approved prior to approval of the first plat for any development in the resort.
Teton County Land Development Regulations 4-45