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. Page| 2 Organizational Excellence * Environmental Stewardship * Vibrant Community * Economic Sustainability Planning Commission September 10, 2018, New Business #: 2 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).