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VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
The preparation of this report has been financed in part through grant[s] from the Federal Highway
Administration and Federal Transit Administration, U.S. Department of Transportation, under the State
Planning and Research Program, Section 505 [or Metropol itan Planning Program, Section 104(f)] of Title 23,
U.S. Code. The contents of this report do not necessarily reflect the official views or policy of the U.S.
Department of Transportation.
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
Table of Contents
Introduction ................................................................................................................................................. 5
1.1 Area-Wide Vision ............................................................................................................................................................. 7
Existing Transportation System ................................................................................................................. 8
2.1 Land Use Characteristics ............................................................................................................................................ 10
2.2 Crash Assessment ......................................................................................................................................................... 13
Meetings & Public Outreach .................................................................................................................... 15
3.1 Steering Committee Meetings ................................................................................................................................. 15
3.2 Public Meetings ............................................................................................................................................................. 15
3.3 Public Opinion Survey ................................................................................................................................................. 16
Future Conditions ...................................................................................................................................... 18
4.1 Coordination with Property Owners/Developers ............................................................................................. 18
4.2 Incremental Build Out ................................................................................................................................................. 19
4.3 Connector Roads ........................................................................................................................................................... 19
4.4 Mode Share ..................................................................................................................................................................... 21
Transportation System Evaluation ........................................................................................................... 22
5.1 Transportation Evaluation.......................................................................................................................................... 22
5.1.1 Swift Street Extension ................................................................................................................................. 23
5.1.2 Exit 12B ............................................................................................................................................................. 25
5.2 Summary of Transportation Evaluation Results ................................................................................................ 26
5.3 Public Transit................................................................................................................................................................... 31
5.4 Bicycle and Pedestrian Infrastructure .................................................................................................................... 32
5.5 Conceptual Cost Estimates ........................................................................................................................................ 34
Conclusions ................................................................................................................................................ 35
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
List of Figures
Figure No. Description Page
Figure 1: Project Study Area Map .................................................................................................................................................. 6
Figure 2: Project Study Area Intersections ................................................................................................................................. 9
Figure 3: Zoning Districts within the Project Study Area ................................................................................................... 11
Figure 4: Overlay Districts within the Project Study Area .................................................................................................. 11
Figure 5: Study Area Reported Crashes .................................................................................................................................... 14
Figure 6: Connector Roads Included in Evaluation .............................................................................................................. 20
Figure 7: Swift Street Extension ................................................................................................................................................... 23
Figure 8: Change in Network Traffic with Addition of Swift Street Connector (with Full Build-Out) ............... 24
Figure 9: Potential I-89 Exit 12B Configuration ..................................................................................................................... 26
Figure 10: Intersection Mitigation Summary (Full Study Area) ....................................................................................... 28
Figure 11: Intersection Mitigation Summary (Tilley/Kimball Focus Area) ................................................................... 29
Figure 12: Public Transit Routes Proximate to the Study Area ........................................................................................ 31
Figure 13: Proposed Bicycle & Pedestrian Network Improvements ............................................................................. 32
List of Tables
Figure No. Description Page
Table 1: Incremental Build-Out Assumptions & Estimated PM Peak Hour Trip Generation ............................... 19
Table 2. Cost Estimate of Proposed Shared Use Paths....................................................................................................... 33
Table 3. Conceptual Cost Estimates for Transportation System Improvements (100% Build Alternatives) .. 34
Appendices
1 Natural Resources Map
2 Existing Conditions Assessment Memorandum
3 Trip Generation Full Build Out
4 Transportation System LOS Summary
5 Incremental Build-Out Analyses
6 Public Outreach Summary
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 5
1
Introduction
The Chittenden County Regional Planning Commission (CCRPC) and
City of South Burlington recognize the need to develop a long-range
transportation plan for the area in the vicinity of Tilley Drive, Kimball
Avenue and Hinesburg Road that supports the City’s long-term vision.
Current zoning in the area is predominantly (1) mixed industrial and
commercial, (2) industrial and open space, and (3) residential. The area
has a high concentration of undeveloped land, therefore, the plan
evaluates a number of scenarios envisioning the future development of
the area parcels.
This Plan evaluates how proposed land development affects the
transportation network in the project area to help inform future land
use and transportation decisions. The Plan was developed with input
from the City of South Burlington, CCRPC, study area property owners,
area stakeholders, and the public. The Plan evaluates potential future
scenarios in this area, their impacts to the existing transportation
network, and develops recommendations for transportation
improvements within the project area to accommodate the envisioned
growth consistent with local and regional planning goals.
The project Study Area can be seen in Figure 1.
1
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 6
Figure 1: Project Study Area Map
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 7
1.1 Area-Wide Vision
Purpose and Need Statement
Purpose
The Purpose of the VT116 / Kimball Avenue / Tilley Drive Area Land Use and
Transportation Plan is to identify and develop cost effective, multimodal
transportation strategies to support planned development within the study area in
a compact, bicycle- and pedestrian-friendly, and mixed-use manner.
Need
Project needs, as defined by the City of South Burlington, Chittenden County
Regional Planning Commission (CCRPC), project team members, and the public are
summarized below
x Transportation Infrastructure Insufficient to Accommodate Anticipated
Growth: The current transportation infrastructure is not anticipated to
adequately handle the level of new person trips generated by anticipated
development within and adjacent to the study area. New development in the
Hinesburg Road / Tilley Drive area between 2020 and 2035 is anticipated to
generate approximately 5,800 new trips during the evening peak hour.
x Lack of Comprehensive Bicycle and Pedestrian Network: The study area is
currently served by a disconnected system of sidewalks (primarily in
residential neighborhoods) and segments of shared use paths (along Kennedy
Drive, Tilley Drive, Community Drive, and portions of Kimball Avenue).
However, to create a truly multi-modal system, additional sidewalk and
shared use path connections (including a crossing of I-89) are needed.
x Limited Public Transportation Options: Despite the presence of major
employment hubs (e.g. Tilley Drive, Technology Park, and Meadowland
Business Park) and residential neighborhoods (e.g. Butler Farms, O’Brien
Farm), the study area is only served by two bus routes: the Purple route which
runs along Kennedy Drive and the VT 116 Commuter route which runs along
VT 116.
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 8
2
Existing Transportation System
The major roadways through the project area are Hinesburg Road (VT 116) traveling
north-south through the length of the project area, Kimball Avenue traveling east-
west along the northern boundary of the project area, Kennedy Drive forming a
portion of the western boundary, and Tilley Drive, traveling east from VT 116 north of
I-89. I-89 travels east-west through the center of the project area. The average annual
daily traffic (AADT) along roadways in the area range from approximately 40,000
vehicles per day on I-89 to between 10,000 to 20,000 on US 2, Kennedy Drive, and
Kimball Avenue, to just under 10,000 vehicles per day on VT 116.
This study includes evaluation of the twelve intersections identified in Figure 2. These
intersections extend beyond the limits of the core study area to capture travel patterns
and potential impacts resulting from improvements identified within the Study Area.
Several additional intersections were evaluated during the development of
alternatives and are further defined in Chapter 5 of this report.
A detailed discussion of each intersection can be found in the Existing Conditions
Assessment memo included in the Appendix.
2
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 9
Figure 2: Project Study Area Intersections
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 10
2.1 Land Use Characteristics
According to the South Burlington Land Development Regulations (2019), there are
five zoning districts within the project area. The zoning districts are shown in Figure
3 on the following page and are generally described as follows:
x Industrial and open space (IO)
o High-quality, large-lot office, light industrial and research uses
o High-quality planned developments that preserve a generally open
character and enhance the visual quality of approaches to the City while
providing suitable locations for employment and business growth.
o The location and architectural design of buildings in a manner that
preserves these qualities is strongly encouraged.
x Mixed industrial and commercial (IC)
o General industrial and commercial activity in areas served by major
arterial roadways with ready access to Burlington International Airport.
o Major commercial uses, such as supermarkets and shopping centers shall
not be permitted.
x Commercial 1 – limited retail (C1-LR)
o Higher density residential and general retail at specific intersections to
serve nearby residential areas. These areas are intended to serve the
convenience shopping needs of local residents and employees which can
be accessed by either driving or walking.
x Residential 1 PRD (R1)
o Lower-density residential uses. A Planned Unit Development (PUD) may
be permitted at a maximum of four units per acre.
x Residential 12 (R12)
o High-density residential use near shopping areas, schools, and public
transportation facilities.
o Offices and other commercial uses may be permitted in locations that
have direct access to arterial and collector streets so as not to adversely
affect residential properties.
In addition to standard zoning maps, the City of South Burlington has developed
several overlay districts which are specific to either environmental resources, areas of
high traffic volumes and congestion, or to the City Center area. Figure 4 shows the
existing overlay and protection zones in the vicinity of the project area.
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 11
Figure 3: Zoning Districts within the Project Study Area
Figure 4: Overlay Districts within the Project Study Area
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 12
The Chittenden County ECOS Plan (2018) and South Burlington Comprehensive
Plan (2016) both identify the opportunity for growth within the project area. The
two plans classify the project area and identify goals for future development in the
following ways:
x Chittenden County ECOS Plan – Future Land Uses
o Enterprise (portion of project area to the east of Old Farm Road
and south of I-89)
Areas that accommodate a future concentration of
employment uses that attract workers from the County
and multi-county region.
o Metro (northwest portion of the project area surrounding Old Farm
Road and west to Kennedy Drive)
Areas that accommodate jobs and housing in a compact
development pattern that supports transit service and
pedestrian activity.
x South Burlington Comprehensive Plan – Land Use Planning Areas
Northeast Quadrant (portion of the project area that is north of I-89
and east of Old Farm Road)
o Future land use in this area should:
Focus on employers and ancillary services;
Support multi-modal transportation;
Access to City Center;
Balance conservation of natural resources and open space
with employment opportunities; and,
Consider the potential for a new Interstate interchange
(“12B”). With no interchange the overall transportation and
development capacity of the area could be limited.
o This area is predominantly identified as medium to higher intensity
land use that is principally non-residential.
Northwest Quadrant (project area west of Old Farm Road)
o Future land use in this area should:
Maintain housing stock;
Support evolving needs of residents;
Improve multimodal connectivity;
Support infill development that aligns with current use.
o This area is predominantly identified as medium intensity land use
with residential to mixed use.
Southeast Quadrant (project area south of I-89)
o Future land use in this area should:
Provide east-west connectivity;
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 13
Balance conservation of natural resources, contiguous
open space, and recreational opportunities with residential,
complementary non-residential, and
o This area is predominantly identified as medium to higher intensity
land use that is principally non-residential.
In addition to the future land planning areas, the South Burlington Comprehensive
Plan also makes reference to a Projected Maximum Build Out analysis and Planned
Infrastructure Improvements plan which were considered in the development of
analyses for this study. The Projected Maximum Build Out for this area indicates that
the majority of parcels will have one additional dwelling unit with greater than
100,000 square feet of non-residential floor area. There are a few parcels that stand
out as exceptions to this projected land use, including the zoned residential parcels
west of Old Farm Road and between Old Farm Road and Kimball Avenue, which are
projected to have over 100 additional dwelling units.
The planned infrastructure improvements included a number of proposed connector
roads throughout the study area. These proposed connections include Exit 12B,
Tilley Drive Extension, Tilley/Kimball Connector (previously referred to as Medical
Center Drive), Swift Street Extension, and Cider Mill Extension.
2.2 Crash Assessment
VTrans evaluates annual crash data and identifies High Crash Location (HCL)
intersections and sections that meet the following two criteria: 1) have a minimum of
five reported crashes in five years, and 2) have an actual-to-critical ratio greater than
1.0. VTrans’ most recent High Crash Location (HCL) Report (2012-2016) was
reviewed to identify HCLs in the project area.
Identified High Crash Location intersections and segments within the project study
area are summarized below:
x High Crash Location Intersections
1. Kennedy Drive/Dorset Street
HCL Ranking: #49
Total Reported Crashes (2012-2016): 40
Actual/Critical Ratio: 1.375
2. VT 116/Cheesefactory Road
HCL Ranking: #95
Total Reported Crashes (2012-2016): 14
Actual/Critical Ratio: 1.078
x High Crash Location Segments
1. US 2/Williston Road (east and west of Kennedy Drive)
HCL Ranking: #444
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 14
Total Reported Crashes (2012-2016): 75
Actual/Critical Ratio: 1.298
2. Kennedy Drive (east and west of VT 116)
HCL Ranking: #724
Total Reported Crashes (2012-2016): 44
Actual/Critical Ratio: 1.040
Figure 5: Study Area Reported Crashes
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 15
3
Meetings & Public Outreach
The Public Involvement Plan for this project provided an opportunity to gather
public input on the desired vision for the project area from a wide range of
stakeholders including area property owners, City staff, Vermont Agency of
Transportation (VTrans) staff, and the general public. Public engagement activities
on this project included public meetings, presentations to South Burlington’s
planning Commission and City Council, and an online survey. These public outreach
activities are summarized in this chapter.
3.1 Steering Committee Meetings
The project Steering Committee consisted of representatives from the CCRPC, the
City of South Burlington, VTrans, and Green Mountain Transit. Ten Steering
Committee meetings occurred over the course of the project. Steering Committee
meeting agenda and notes can be found in the Appendix.
3.2 Public Meetings
There were four public meetings held over the course of the project as summarized
below. Meeting notes and presentations can be found in the Appendix.
x The first public meeting on February 7, 2017 introduced the project area,
provided a summary of existing conditions, summarized future land use
expectations based on prior City Plan and studies, an overview of future
3
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 16
development based on developer and City input, and a summary of
future traffic conditions with moderate development and no
transportation infrastructure improvements. Potential transportation
improvement packages were discussed, including variations of focusing
on (1) transit, (2) interstate access, (3) connected streets, and (4) modest
improvements.
x A second public meeting was held on August 8, 2017 hosted by the
South Burlington Planning Commission which summarized information
from the first meeting for those that did not attend the first public
meeting, and two potential alternatives were presented which aimed to
maintain adequate levels of service on the existing intersections in
vicinity of the project area.
x The project team presented an update on the project to the South
Burlington Economic Development Committee on June 24, 2019. This
presentation included a project overview, a review of the alternatives
evaluation process, and discussion about potential development patterns
in the study area.
x The project team presented the draft Plan to the South Burlington City
Council on July 6, 2020. The presentation included a review of the
project’s goals, public outreach, results of the alternatives evaluation,
conclusions, and recommendations.
3.3 Public Opinion Survey
An online survey was conducted in February 2017 to gather general input on the
overall vision for the project area. A total of 325 surveys were completed and the
results are summarized below. Additional survey tabulations are included in the
Appendix.
x A majority of responses came from South Burlington residents (88%), with
39% living in the project area.
x Almost three-fourths visited the project area at least 1-5 times per week; this
includes the 30% that visited the project area daily.
x There was no clear preference regarding development density in the project
area.
x There was no clear preference regarding the arrangement of future
development in the project area, though the highest response leaned
towards a clustered mix of uses.
x Land uses which more than 50% of those surveyed would like to see in the
project area are parks and open space, multi and single-family housing, and
office space. The land uses with the least support from those surveyed was
hotels.
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 17
x The top four ranked choices for ways to enhance the transportation system
were (1) connected network of sidewalks and paths, (2) construct a new I-89
interchange at VT 116, (3) increased transit service, and (4) expand the I-89
interchange at Exit 13.
x When given various potential transportation improvement packages,
responders preferences included 34% for interchange access; 26% for a
focus on transit, bike and pedestrian improvements; 25% for connected
streets and paths, and 15% for modest improvements.
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 18
4
Future Conditions
4.1 Coordination with Property Owners/Developers
The Project Team met with representatives from most of the larger parcels within the
study area to develop a better understanding of their future development plans, the
anticipated scale and timing of the development, and any other issues or
opportunities related to land use or transportation that came to mind.
Representatives associated with the following properties and/or projects were
interviewed:
x Technology Park
x University of Vermont Medical Center
x O’Brien Brothers Realty
x Pizzagali Properties
x Meadowland PUD
x Rye Associates
x Hill Farm
x Dynapower
Based on the input provided by the development community, the project team
estimated peak hour trip generation resulting from the build-out of the proposed
parcels using Institute of Transportation Engineers’ trip generation rates. Detailed
information on anticipated trip generation based on future land uses is included in
the Appendix.
4
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 19
4.2 Incremental Build Out
To better evaluate the incremental impact to the transportation network from
potential development in the area, the development-related trip generation
estimates were adjusted to represent 33%, 67%, and 100% build out of the
development parcels in the Study Area.
Table 1 below summarizes the estimated evening peak hour trip generation
estimates for each of the major development parcels within 33%, 67%, and 100%
build-out scenarios. It should be noted that the rate of development on different
development parcels was set based on input from the City of South Burlington to
best reflect an estimate of market demand and saturation. As shown in the table
below, after accounting for internal capture, pass-by and diverted trips, the full
build-out of the development parcels in the study area is estimated to generate an
additional 5,821 peak hour trips.
Table 1: Incremental Build-Out Assumptions & Estimated PM Peak Hour Trip Generation
4.3 Connector Roads
There are a number of proposed, planned, and/or permitted future connector
roadways within and immediately adjacent to the study area that have been
incorporated into the analysis. Evaluation of future transportation scenarios for the
study area required consideration of these proposed and/or permitted connections
as they will have an impact on access and movement in the area.
The connector roads summarized below and shown in Figure 6 have been included
in the transportation network evaluated in this Plan.
O’Brien Farm Connector Roads: These two connector roads, O’Brien Farm
Road and Two Brothers Drive would provide connectivity between Eldredge
Street, Kennedy Drive, and Old Farm Road. These connectors roads were
under construction at the time this report was prepared as the Hillside at
O’Brien Farm neighborhood builds out.
Tilley Drive Extension: The Tilley Drive Extension, which connects Tilley Drive to
Community Drive, is included in the City of South Burlington’s Official Map.
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 20
Tilley/Kimball Connector: This planned connector road, which would connect
Kimball Avenue to Tilley Drive, is included in the City of South Burlington’s
Official Map.
Swift Street Extension: The Swift Street Extension, which would connect Swift
Street at its current easterly terminus to Hinesburg Road, is included in the
City of South Burlington’s Official Map. The inclusion of the Swift Street
Extension was evaluated as a separate scenario, as described in the next
chapter.
Cider Mill Connector: The connection between Cider Mill Drive and Hinesburg
Road is included in the City of South Burlington’s Official Map.
Allen Road Extension: The Allen Road Extension Connector, which is outside of
the area shown in Figure 6, is a connection from Spear Street to Dorset Street
via Allen Road East and Midland Avenue. The Allen Road Extension is included
in the City of South Burlington’s Official Map.
Figure 6: Connector Roads Included in Evaluation
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 21
4.4 Mode Share
A stated transportation goal in South Burlington is to provide improved access for
the movement of individuals via non-motorized modes. This goal is particularly
relevant in the study area where a concentration of clustered, mixed-use, walkable
development is anticipated. As such, the system evaluation for the study area builds
on the reductions targeted in the CCRPC’s Metropolitan Transportation Plan (MTP),
which established county-wide goals for non-motorized mode share (15% non-
motorized trips). This plan assumes an additional reduction of vehicle-based trips
beyond the MTP investments. It was assumed that an additional 5% reduction of
single-occupancy vehicle trips within 1 mile of the study area would be targeted,
above and beyond the 15% reduction embedded in the MTP scenario. The study’s
recommendations include provisions for increased transit service and bicycle and
pedestrian infrastructure to support this mode share target for the study area.
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 22
5
Transportation System Evaluation
A transportation system evaluation provides the opportunity to identify and
prioritize various infrastructure improvements in the study area given anticipated
land use changes and proposed new roadway connections. A number of scenarios
were developed to evaluate the implications of incremental build out, additional
connectivity in the network, and larger proposed infrastructure projects. The
methods and assumptions for the assessment of each future scenario are discussed
in the chapter below.
5.1 Transportation Evaluation
The transportation system evaluation incorporated incremental land use growth in
the study area while considering larger proposed or planned transportation
infrastructure improvements like new connector roads and interchanges. Although
scenarios with a model year of 2035 were analyzed, the focus on incremental build
out scenarios provided development milestones that could be considered as trigger
points for various infrastructure improvements over time. Additionally, considering
the access and movement implications of new connectivity at various stages of
future development provided insights into what additional transportation
infrastructure investments would be needed in the future.
The CCRPC Regional Model was used for the evaluation of the identified scenarios.
The analysis assumed the transportation investments proposed in the 2018 ECOS
Plan were made within the future year time horizon. The 2035 future land use
5
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 23
scenario initially held the development in the study area zones constant. The new
trips for the 33%, 67%, and 100% build out scenarios were then added to the 2035
future land use scenario. The new trips from each build out scenario were
distributed onto the network according to the regional model’s distribution of trips
within the study area.
In addition to evaluating transportation network impacts of varying levels of
development in the study area, two additional alternatives were examined at the full
build-out level that included: 1) the Swift Street Extension, and 2) Exit 12B.
5.1.1 Swift Street Extension
The proposed Swift Street Extension would extend Swift Street from its current
easterly terminus at Brand Farm Drive south and east to connect with the westerly
terminus of Rye Circle (approximately 2,100 feet in length). Figure 7 below shows
the approximate alignment of the Swift Street Extension as it is currently shown in
South Burlington’s Official Map (magenta line). The impacts and implications of this
new connector road are evaluated within this study and described later in this
section. Also shown in Figure 7 is a potential secondary connector (purple line),
which may be constructed in this location as part of any development on this
currently undeveloped parcel (known as the “Hill Farm” parcel).
Figure 7: Swift Street Extension
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 24
Figure 7 also shows that the proposed alignment of the Swift Street Extension
would cross an identified Habitat Block as well as potential wetlands as indicated in
the Vermont Agency of Natural Resources Atlas. In addition, the Natural Resources
Atlas identifies a threatened vertebrate animal species habitat located in this area.
Figure 8 below shows the effect on traffic volumes (assuming full build-out) of
adding in the Swift Street Extension to the transportation network. The numbers
adjacent to each link in the figure indicate: 1) future PM peak hour volumes without
the Swift Street Extension, followed by 2) future PM peak hour volumes with the
Swift Street Extension in place. The red links indicate the roads expected to see the
largest absolute increase in volumes.
Figure 8: Change in Network Traffic with Addition of Swift Street Connector (with Full Build-Out)
As shown in the above figure, the addition of the Swift Street Extension pulls traffic
away from Kennedy Drive and Hinesburg Road and increases volumes along upper
Dorset Street and Swift Street as traffic takes advantage of the new east-west
connector. Traffic volumes along Kennedy Drive between Dorset Street and
Hinesburg Road are expected to decrease by approximately 24% while volumes on
VT 116 adjacent to Tilley Drive are expected to decrease by approximately 15% with
the Swift Street Extension in place. Future evening peak hour traffic volumes on Swift
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 25
Street east of Dorset Street are expected to increase from approximately 125 PM
peak hour trips to approximately 1,200 PM peak hour trips with the addition of the
Swift Street Extension.
The easterly terminus of the Swift Street Extension would connect to Rye Circle and
continue east to the existing two-way stop-controlled intersection of Meadowland
Drive and Rye Circle with VT 116. With the addition of the Swift Street Extension
(assuming 100% build-out), the VT 116 / Meadowland Drive / Rye Circle intersection
would require a new signal or roundabout and a new eastbound left-turn lane (as
shown below in Figure 10).
At full build-out with the Swift Street Extension in place, the Dorset Street/Swift
Street signalized intersection could accommodate the projected volumes with minor
signal timing and phasing adjustments.
5.1.2 Exit 12B
The final set of alternatives evaluated the implications of adding a new I-89
interchange at the existing VT 116 overpass of I-89 (Exit 12B). A new interchange at
this location has been the topic of several studies in the past and is currently being
evaluated in depth as part of the Chittenden County I-89 2050 Study, led by the
CCRPC. In addition, the interchange ramps are included in the City of South
Burlington’s Official Map.
Figure 9 below shows the currently preliminary plans for Exit 12B as developed for
the Chittenden County I-89 2050 Study. As shown in the figure, the northbound on-
and off-ramps would connect to Hinesburg Road via Tilley Drive, while the
southbound ramps would have direct connection to Hinesburg Road. The current
Exit 12B plans also include both a sidewalk and a ten-foot shared use path across
the interstate to better accommodate pedestrian and cyclist travel in this area.
With the addition of an Exit 12B, at full build-out, the interchange would require new
intersections and/or new configurations of existing intersections at locations on VT
116 and Tilley Drive. As proposed, the Exit 12B northbound on- and off-ramps
would meet the Tilley / Kimball Connector to create a four-way intersection and
would require a traffic signal or roundabout to meet the projected traffic demand
and maintain a reasonable level of service. New traffic signals or roundabouts would
also be needed at the southbound ramp terminal, at the VT 116/Tilley Drive
intersection, and at the VT 116/Old Farm Road intersection. Mitigation associated
with the construction of Exit 12B would need to be reevaluated depending on the
ultimate configuration of the interchange design.
The addition of Exit 12B was found to reduce traffic by approximately 11% traveling
through I-89 Exit 14 and by approximately 17% at Exit 12.
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 26
Figure 9: Potential I-89 Exit 12B Configuration1
5.2 Summary of Transportation Evaluation Results
The evaluation scenarios were developed to examine transportation needs over time
as well as the specific implications of the Swift Street Extension and a new I-89
interchange at Hinesburg Road (Exit 12B). The following six scenarios were
evaluated:
1) No Build
2) 33% Land Use Build-Out with New Connector Roads (no Exit 12B or Swift
Street Extension)
3) 67% Land Use Build-Out with New Connector Roads (no Exit 12B or Swift
Street Extension)
4) 100% Land Use Build-Out with New Connector Roads (no Exit 12B or Swift
Street Extension)
5) 100% Land Use Build-Out with New Connector Roads plus Exit 12B (no Swift
Street Extension)
6) 100% Land Use Build-Out with New Connector Roads plus Swift Street
Extension (no Exit 12B)
The volumes and turning movements resulting from the six scenarios were extracted
from the regional model. The intersections in the study area were then evaluated in
1 Preliminary plan under development for Chittenden County I-89 2050 Study
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 27
Synchro according to the thresholds stipulated by the VTrans Level of Service (LOS)2
Guidelines, where signalized intersections should perform at a LOS D or better with
no LOS F approaches and unsignalized intersection stop-controlled approaches
should operate at a LOS D or better. These evaluations identified mitigation
necessary at the intersection level to meet the level of service targets.
The infrastructure improvements necessary to maintain acceptable levels of service
for each scenario are summarized in Figure 10 and Figure 11 below, where
necessary signal optimization, signalization/roundabout, and additional lane
geometries are indicated by corresponding symbols. The specific scenario where the
improvement is first triggered is identified in the image call-out boxes. Coordination
of infrastructure improvements that align with anticipated land use and improved
connectivity was the overarching goal of these additional scenario evaluations.
2 Intersection Level of Service (LOS) is defined in terms of the average total vehicle delay of all movements through an intersection.
LOS is reported using A-F letter grades with LOS A generally describing free flow traffic conditions and LOS F describing over-
capacity conditions.
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 28
Figure 10: Intersection Mitigation Summary (Full Study Area)
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 29
Figure 11: Intersection Mitigation Summary (Tilley/Kimball Focus Area)
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 30
For the existing signalized intersections in the study area, all build out scenarios
require only optimization of existing signals with no additional lanes necessary. For
these intersections, although no physical infrastructure improvements would be
necessary, the new trips and travel patterns should be evaluated, and the signal
phasing and timing should be adjusted accordingly over time.
For several unsignalized study intersections, future development would generate
enough additional volume that a signal or roundabout should be considered with
the appropriate intersection control and bicycle and pedestrian accommodations
defined during the scoping process.
With one-third of the total build out (33%) in the study area, four of the study
intersections would likely need a signal or roundabout, including:
x VT 116 (Hinesburg Road) /Meadowland Drive
x VT 116 / Tilley Drive (expected to be constructed by end of 2021)
x VT 116 / Swift Street Extension
x VT 116 / VanSicklen Road3
With two-thirds of the total build out (67%) in the study area, one additional
intersection would likely need a signal or roundabout, as follows:
x VT 116 / Cheesefactory Road4
With full build out (100%) in the study area, three additional intersections become
candidates for signalization or roundabout installation to maintain appropriate levels
of service:
x Old Farm Road / O’Brien Connector
x Kimball Avenue / Old Farm Road
x VT 116 / Old Farm Road
At full build out, the following three study intersections would need additional lanes
to provide capacity necessary to maintain acceptable levels of service:
x VT 116 / VanSicklen Road: Additional southbound left turn lane
x VT 116 / Tilley Drive: Additional northbound and southbound through lanes
x VT 116 / Old Farm Road: Additional northbound and southbound through
lanes
3 Although the VanSicklen Road approach to VT 116 reaches Level of Service E in the one-third build-out scenario (flagging the need
for a new traffic signal or roundabout), it was noted that adding traffic control to this intersection may result in a significant
increase in diverted traffic using VanSicklen Road as means to travel between Shelburne and Williston.
4 Although the Cheesefactory Road approach to VT 116 reaches Level of Service E in the two-thirds build-out scenario (flagging the
need for a new traffic signal or roundabout), it was noted that adding traffic control to this intersection may result in a
significant increase in diverted traffic using Cheesefactory Road as means to travel between Shelburne and Williston.
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 31
5.3 Public Transit
Given the mode share target developed for this study of a 5% reduction in vehicular
trips generated in study area beyond the 15% mode shift already planned within the
MTP, strategies to improve movement of individuals via non-auto modes will be
necessary. Investment in additional public transit service is integral to meeting the
identified mode share target.
The investment in transit would include both capital and operating costs for three
new Green Mountain Transit busses, with one new LINK bus to serve the VT-116
route and two new buses or shuttles to accommodate increased frequency on
routes that serve the study area. Investments in transit service, coupled with land
use patterns that are conducive to transit, will help to achieve the mode share
targets. Transit hubs and shelters should be strategically located and paired with
bicycle and pedestrian infrastructure in order to support these investments. A
conceptual cost estimate for these investments is a start-up capital investment of
$1,200,000 with an annual operating cost of $600,000.
Figure 12: Public Transit Routes Proximate to the Study Area
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 32
5.4 Bicycle and Pedestrian Infrastructure
In addition to investments in the public transit system, targeted reductions in
vehicular trips will be achieved through additional bicycle and pedestrian
infrastructure investments in the study area. Much like the transit-supportive
designs to be employed in the study area, development in the area should be
designed to support biking and walking infrastructure connectivity and accessibility.
With the assumption of an additional 5% reduction in vehicle-based trips within one
mile of the study area, investments to accommodate a shift of these trips to biking
and walking will be necessary. In order to reach this goal, strategies to
accommodate cyclists and pedestrians will include new shared-use paths, protected
bicycle lanes, enhanced bicycle and pedestrian accommodations over I-89, and
sidewalks within developments to connect to existing facilities.
The proposed bicycle and pedestrian improvements are shown in Figure 13 below.
Figure 13: Proposed Bicycle & Pedestrian Network Improvements
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 33
As shown in Figure 13 above, the proposed expansion to the shared-use path
network within and adjacent to the study area includes the following links:
x VT 116 (Hinesburg Road): Williston Road to VanSicklen Road (includes
separated overpass over I-89)
x Kimball Avenue: Kennedy Drive to Potash Brook
x Old Farm Road: Hinesburg Road to Kimball Avenue
x O’Brien Farm Road: Eldredge Street to Old Farm Road
x Kimball-Tilley Connector Road: Kimball Avenue to Tilley Drive
x Swift Street Extension: Swift Street to Hinesburg Road
x Cider Mill Connections: Old Cross Road and Cider Mill Drive to Hinesburg
Road
Given the level of focus for this study, proposed expansion to the existing sidewalk
network is not included in this report but will be an important consideration to
provide interconnectivity for pedestrians in this area.
A conceptual cost estimate for the proposed new shared use path infrastructure is
summarized below in Table 2. These planning-level cost estimates were calculated
assuming they were constructed as stand-alone projects and include costs for
engineering, construction, and inspection services.
Table 2. Cost Estimate of Proposed Shared Use Paths
Roadway Limits Cost*
Hinesburg Road to VanSicklen Road 16,200 ft $7,660,000
Separated I-89 Overpass 5,600 sf $2,520,000
Kimball Avenue Kennedy Drive to Potash Brook 2,850 ft $1,350,000
Old Farm Road Hinesburg Road to Kimball Avenue 3,800 ft $1,800,000
O’Brien Farm Road Eldredge Street to Old Farm Road 1,820 ft $860,000
Kimball-Tilley Connector Kimball Avenue to Tilley Drive 3,380 ft $1,600,000
Swift Street Extension Swift Street to Hinesburg Road 2,900 ft $1,380,000
Cider Mill Connections Old Cross / Cider Mill Drive to Hinesburg Rd 4,840 ft $2,290,000
* Planning level cost estimates include engineering, construction, and inspection costs based on the following assumptions:
> Shared Use Path (10' Asphalt) = $350/foot (Report on Shared Use Path and Sidewalk Costs, VTrans, 2020)
> New Separated I-89 Bicycle Overpass = $400/square foot (Various Sources)
VT 116
Length /
Area
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 34
5.5 Conceptual Cost Estimates
Conceptual cost estimates for the transportation system recommendations
identified for each of the following scenarios is summarized in Table 3:
x 100% Build-out Base Network (No Swift Street Extension or Exit 12B)
x 100% Build-out with Swift Street Extension (no Exit 12B)
x 100% Build-out with Exit 12B (no Swift Street Extension)
As summarized in Table 3, approximately $45 million in transportation system
improvements have been identified to accommodate the additional system
demands generated by full build-out of the study area (i.e. Base Network).
Full build out with the Swift Street Extension involves the addition of approximately
$1.8 million to construct the new 2,100-foot connector road along with additional
costs to expand the VT 116/Meadowland Drive/Ry Circle intersection. The addition
of Exit 12B would bring the total cost for full build out improvements to
approximately $68 million.
Table 3. Conceptual Cost Estimates for Transportation System Improvements (100% Build Alternatives)
Base Network With Swift St. Ext. With Exit 12B
Intersection Capacity Enhancements
Intersections & Approaches
(Assumed 1/2 new signals, 1/2 new roundabouts)$17,600,000 $17,810,000 $14,795,000
New Connector Roads
O'Brien / Tilley / Kimball / Cider Mill / Allen
(Costs generally covered by private developers)$6,530,000 $6,530,000 $6,530,000
Swift Street Extension N/A $1,800,000 N/A
New Interchange
Exit 12B N/A N/A $28,000,000
Bicyle & Pedestrian Improvements
Shared Use Paths $16,980,000 $16,980,000 $16,980,000
I-89 Pedestrian Overpass (Cost included in 12B)$2,520,000 $2,520,000 N/A
Public Transit
Transit Start-up Costs
(Three new buses, does not include operating costs)$1,600,000 $1,600,000 $1,600,000
Total Cost $45,230,000 $47,240,000 $67,905,000
100% Build Alternatives
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 35
6
Conclusions
Although the full build out of the study area is likely to occur over multiple decades
(and may likely never hit the full build out levels evaluated in this study), the
incremental development approach employed in this study allowed for the
identification and evaluation of improvements at various phases of development to
foster a compact, multi-modal, and mixed-use development pattern.
As shown through the analysis summarized in this report, the trips generated under
the full build-out scenario can be accommodated with the construction of several
connector streets, moderate intersection upgrades, bicycle and pedestrian
infrastructure improvements, and transit enhancements totaling approximately $45
million. It is important to note that this cost estimate includes the construction of
the five connector roads that were considered part of the base network in every
scenario.
Growth in the study area is anticipated as parcel owners, as well as city and regional
plans, target this particular area for development. The 33% and 67% development
build out scenarios would create enough additional demand on the transportation
infrastructure that infrastructure improvements would be required, regardless of
whether the Swift Street Extension or Exit 12B are implemented. It is therefore
recommended that the five intersections identified for a new signal or roundabout
at these projected development levels be advanced through the scoping process.
The intersections that are candidates for scoping include:
1. VT 116 / Tilley Drive
6
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 36
2. VT 116 / Meadowland Drive / Rye Circle
3. VT 116 / VanSicklen Road
5
4. VT 116 / Cheesefactory Road
6
5. VT 116 / Old Farm Road
7
The first set of bicycle and pedestrian improvements should also be evaluated
further based on the likelihood of development in the area regardless of proposed
larger scale infrastructure projects. The new shared use paths that should be
programmed for scoping include:
x VT 116 (Hinesburg Road): Williston Road to VanSicklen Road
x Kimball Avenue: Kennedy Drive to Potash Brook
x Old Farm Road: Hinesburg Road to Kimball Avenue
With the Swift Street Extension added in as an additional connector road, additional
east-west connectivity would be provided in this area. The need for east-west
connectivity, which has been identified in South Burlington’s Comprehensive Plan,
would be enhanced by this connection. In addition to meeting the east-west
connectivity need, the Swift Street Extension would also enhance emergency vehicle
access to the area.
However, the extension of Swift Street would also have implications for residents of
the Village at Dorset Park who would see evening peak hour volumes along Swift
Street increase from approximately 125 PM peak hour trips to approximately 1,200
PM peak hour trips with full land use build-out of the study area. The Swift Street
Extension would also draw traffic off adjacent arterials designed to handle higher
traffic volumes (e.g. Kennedy Drive is expected to see traffic volumes reduce
approximately 24% with the Swift Street Extension in place). Additionally, as shown
previously in this report, the Swift Street Extension would also have environmental
impacts to potential wetlands, habitat blocks, and threatened species.
The Swift Street Extension could be designed and constructed in a manner that
discourages cut-through trips (i.e. through traffic calming and/or curvilinear
features), however the environmental impacts would remain. The decision of
whether to proceed with the Swift Street Extension should be based on a wide-range
of factors including both traffic and environmental impacts, along with broader
policy implications (e.g. merits of enhanced connectivity vs. concerns over cut-
5 Although the VanSicklen Road, Cheesefactory Road, and Old Farm Road approaches to VT 116 reach Level of Service E in either the
one-third or two-thirds build-out scenario (flagging the need for a new traffic signal or roundabout), it was noted that adding
traffic control to these intersections may result in a significant increase in diverted trips using these sidestreets as cut throughs.
The effects of these potential traffic diversions should be weighed against public sentiment and City policy goals during the
scoping process.
6 See above
7 See above
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
p. 37
through traffic, connectivity to a future educational complex, future development of
the Hill Farm parcel, emergency vehicle connectivity), costs, and public input.
Construction of Exit 12B at the current overpass of VT 116 would provide direct
vehicular access to the study area from I-89. While a new interchange would likely
provide enhanced bicycle and pedestrian accommodations through this area (the
plan evaluated in this report included both a sidewalk and a shared-use path along
VT 116 over I-89), it should be noted that the increased traffic volumes and vehicle
conflicts triggered by the construction of a new interchange could adversely affect
cyclists and pedestrians traveling through the interchange area. Although there are
more regional benefits from this significant update to the transportation network
such as reductions in traffic at Exits 12 and 14, the traffic capacity benefits in the
immediate study area are limited. This new interchange will be further evaluated as
part of the CCRPC’s Chittenden County I-89 2050 Study to evaluate the potential
benefits of this investment beyond the geographical scope of this present study.
Given the likelihood of development in the study area parcels, the higher priority
investments recommended to meet the anticipated transportation demand should
be integrated into the South Burlington Official Map, assessed for impact fees, and
prioritized in the City’s Capital Improvement Program.
VT 116 / Kimball Avenue / Tilley Drive Area Land Use & Transportation Plan
Appendix
1 Natural Resources Map
2 Existing Conditions Assessment Memorandum
3 Trip Generation - Full Build Out
4 Transportation System LOS Summary
5 Incremental Build-Out Analyses
6 Public Outreach Summary
Eastview* at O’Brien Farm Preliminary Plat Meeting #4May 18, 2021*Working name of the Project for Permitting Purposes. 2
3Phasing Plan
4Phasing Plan
5Open Space Plan
6
7Meadow Loop
8Meadow Loop Paths
9Meadow Loop
10Eastview Overall Plan
11Eastview Overall Plan
12
13
14