HomeMy WebLinkAboutCars to People Deliverables Complete 2011 - 09182009 MEMORANDUM
BUCKHURST FISH & JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
To: Paul Conner, Director of Planning and Zoning, City of South Burlington
From: Harlan Sexton AICP, Senior Associate; Georges Jacquemart PE AICP, Principal
Subject: Cars to People: Task 1 & Task 2 Memo, Project Initiation
Date: September 18, 2009
Project Background
South Burlington’s Planning and Zoning Department has undertaken a long-range planning project called
Cars to People. The project focuses on the city’s two major commercial corridors, Shelburne Road and
Williston Road. The end result is to be new development controls encouraging pedestrian-scale development
in these heavily trafficked areas. These controls are called “the toolbox.” The city recognizes that businesses
on both these roads will remain primarily auto-dependent. But there is potential, in some areas and for
some kinds of businesses, for drivers to park their car once and then walk to a number of stores and
services. This is noted in the city’s Request for Proposals, the first planning document on the project: “South
Burlington is a city in transition. Long a suburban/rural community with prominent commercial corridors
providing services to automobile travelers, it has witnessed substantial infill growth in recent years [absorbing
20% of the Vermont’s total population growth since 2000]. Located in the growing heart of Chittenden
County, it has reached a point of being able to – and in some ways, needing to – develop a new relationship
between transportation and land use. Williston and Shelburne Roads are generally not pedestrian-friendly
environments. The location, siting, massing, and orientation of buildings along these key commercial
corridors encourage automobile use over all other modes of transportation. They also create barriers to
neighboring residential neighborhoods, which is counter to many of the City’s development goals.”
The Cars to People goal is to “revise [the City’s] Land Development Regulations (combined zoning and
subdivision regulations) to foster a transformation of existing built environments from auto-dependency to
human-scale places served by multiple transportation nodes. At the core of such a transition will be the
redevelopment of individual properties along these corridors….The toolbox of solutions will need to account
for current realities in addition to fostering a more mixed-use, pedestrian-scale environment for the future. In
the short term, businesses will continue to rely on automobile traffic for the majority of their customers. The
Land Development Regulations will need to recognize this need while at the same time creating the
conditions under which public transit, walking, and cycling will thrive over time.”
The City hired BFJ Planning and created a working group, directed by Planning and Zoning staff Paul
Conner and Cathyann LaRose. The members represent groups doing long-range planning, providing
transportation services, and investing in local development projects: the South Burlington Planning
Commission, Development Review Board and City Council, the City’s Energy Committee and Recreation Path
Committee, the County Metropolitan Planning Organization and Transit Authority, Smart Growth Vermont,
and the development community.
The contract with BFJ Planning calls for three planning memos, one draft and one final report. This first
planning memo covers Tasks 1 and 2 of the Cars to People project.
MEMORANDUM
Date: September 18, 2009 Page 2 of 10
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
Study Areas
The study areas are Williston Road (Route2) and Shelburne Road (Route 7). (See Figure 1: South Burlington).
In each case, the study area encompasses the road’s full length in South Burlington. Williston Road runs
roughly east-west from the city line with Burlington on the west and Williston on the east. It is defined by the
I-89 interchange to the far west, and a gradually decreasing density as the road travels east towards the
Town of Williston. Shelburne Road is South Burlington’s portion of one of Vermont’s important state routes.
Route 7 runs north-south and connects the city to Burlington on the north and Shelburne on the south. A
significant interchange also defines Shelburne Road: near its northern boundary with the City of Burlington,
Route 7 and the 189 connector intersect. Its character shifts towards decreased density and somewhat
deeper setbacks as it crosses IDX Boulevard and travels south towards the Town of Shelburne
The study areas have a dual purpose in the Cars to People project. The project will result in a toolbox - a set
of recommended changes to the LDRs that aim directly at Williston and Shelburne Roads. Secondarily, the
project may yield some toolbox concepts that can be used elsewhere in South Burlington.
Working Group Meeting #1
BFJ met with the working group for the first time on July 22, visited the study corridors on the 22nd and the
23rd, and met with planning staff. The working group meeting covered the contract, project objectives,
workshops, initial impressions of the study corridors, their zoning, streetscaping, and ownership patterns,
proposed roads, bus transit plans, and development visions,. The discussion was organized around large-
scale maps of the study areas, which BFJ marked up to record the working group’s input. The working
group’s preliminary ideas for the study areas support a range of development options depending on the
parcel and its location, from infill to wholly new development on parcels considered blank canvases. There is
some support for a moderate increase in density in selected locations, possibly through incentives. The group
asked for a demonstrated link between density, pedestrian-friendly circulation, and good urban design and
getting drivers out of their cars to walk from business to business. The group and staff agree that, given a
choice, the city wants good quality development first.
Comprehensive Plan Goals and Recommendations
South Burlington’s 2006 Comprehensive Plan recognized a history of planning for Williston and Shelburne
Roads. The earlier 1995 plan called for “encouraging the transformation of the City's Williston Road and
Shelburne Road corridors into a more attractive, mixed-use, traffic safe environment.” (p.6). The current
plan has called for “continued investment and growth” in the corridors, to promote economic
development, good urban design, increase pedestrian and bicycle use outside City Center, reduce travel
distance, and increase transit use.
SOUTH BURLINGTON, VT
N.T.S.
September 2009
STUDY AREAS FIGURE 1: SOUTH BURLINGTON
SOURCE: GOOGLE MAPS
MEMORANDUM
Date: September 18, 2009 Page 4 of 10
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
The plan’s recommendations are:
• Commercial Development and Type: The two corridors should continue to be primarily commercial,
meeting “local and regional shopping and employment needs” but “residential and industrial can be
mixed throughout the area. These centers are generally already developed with commercial
establishments. Therefore, growth will occur primarily as infill or conversion development. “(p.27).
The specific mix of uses should be residential/commercial, or retail/office/restaurant. The result
should be increased “pedestrian movement, use of public transportation services, and shared
parking opportunities.”
• Residential Development and Density: The comprehensive plan sees the density of Williston Road
and Shelburne Road as transitional or intermediate. “Moving outward from the proposed urban
core, residential densities transition to moderate density in the Williston Road/White Street area and
Shelburne Road corridor, and then to low moderate density outside of the "core area" and on the
periphery of the City, namely within the SEQ [Southeast Quadrant].” (p.28). The plan defines
moderate density as a range from 1.1 units per acre to 9.95 units per acre. The plan expects that
incentives will be needed to encourage mixed residential/commercial development projects.
• Traffic and Circulation: The plan’s transportation chapter describes a “particularly strong” need on
Williston and Shelburne Roads for safe pedestrian and bicycle circulation. The plan recommends
either “separate or shared facilities for bicycle/pedestrian use” and a pedestrian phase at signalized
intersections to allow safe passage across these busy roads. (p.114)
The plan’s recommendations for both roads are similar. It is expected that the Cars to People project will fine
tune the recommendations so that each road has its own compartment in the toolbox. Densities, road
connections, building heights and placement on the lot, urban design concepts, and landscaping, among
other controls, will likely vary some between the two corridors.
Land Development Regulations in the Study Areas
Figure 2 shows the city's zoning. The following page shows the dimensional regulations and generalized uses
taken from Table C of the Land Development Regulations (LDRs). The dimensional regulations
govern the lot area and building bulk on each lot. The list of uses is generalized from the specific uses listed
in Table C. It is apparent that South Burlington has made progress towards creating zoning districts that
allow a mix of general land uses along its most highly trafficked and densely developed corridors. All the
primarily non-residential districts allow a range of commercial, industrial, and public and quasi-public uses.
Three of the non-residential districts - C1(R12), C1(R15), and C2 – also allow mid-density multi-family uses.
The two residential districts – R4 and AR – allow very limited commercial uses.
SOUTH BURLINGTON, VT
N.T.S.
September 2009
FIGURE 2: CITY-WIDE ZONING MAP
Willis
t
o
n
R
o
a
d
Shelburne Road
Lot Size (min) Residential in Square Feet (sf) Density (max) Building Site Front Side Rear Stories FeetC1 (R12) (Commercial 1 - Residential 12)Multi-family 3,500 sf12 du per lot 40% 70% 30 10 30 3 35/40Non-residential: 40,000 sf na 40% 70% 30 10 30 3 35/40Public & quasi-public usesCommercial usesIndustrial usesCD 1 (Central District 1)C1-AIR (Commercial 1 - Airport)40,000 sfna40% 70% 30 15 30 3 35/40Public & quasi-public usesCommercial usesIndustrial usesIA North (Institutional & Agricultural - North)10 acres na20% 40% 75 50 50 3 35/40AgriculturePublic & quasi-public usesCommercial usesRetail as a principal use limited to 5,000 GFAIC (Mixed Industrial & Commercial)40,000 sfna40% 70% 30 10 30 3 35/40AgriculturePublic & quasi-public usesCommercial usesIndustrial usesR4 (Residential 4)Single family9,500 sf4 du per lot20% 40% 30 10 30 3 35/40Two-family 12,000 sf4 du per lot20% 40% 30 10 30 3 35/40Multi-family6,000 sf 4 du per lot20% 40% 30 10 30 3 35/40Non-residential 40,000 sf na 30% 60% 30 10 30 3 35/40Public and quasi-public usesBed & breakfast C1 (R15) (Commercial 1 - Residential 15)Multi-family 3,500 sf15 du per lot 40% 70% 30 10 30 3 35/40Non-residential 40,000 sf na 40% 70% 30 10 30 3 35/40C1 - AUTO (Commercial 1 - Automobile)40,000 sf na40% 70% 30 15 30 3 35/40Public & quasi-public usesCommercial usesIndustrial usesC2 (Commercial 2)Multi-family 6,000 sf7 du per lot40% 70% 30 10 30 3 35/40Non-residential 40,000 sfna40% 70% 30 10 30 3 35/40Public & quasi-public usesCommercial usesIndustrial usesAR (Allen Road)Single family6,000 sf12 du per lot 30% 40% 30 10 30 3 35/40Two-family 8,000 sf12 du per lot 30% 40% 30 10 30 3 35/40Multi-family3,500 sf12 du per lot 40% 70% 30 10 30 3 35/40Non-residential 20,000 sfna40% 70% 30 10 30 3 35/40Retail (5,000 GFA max)na40% 70% 30 10 30 3 35/40Study Areas Zoning: Dimensional Regulations and Generalized Uses WILLISTON ROAD (ROUTE 2)SHELBURNE ROAD (ROUTE 7)Coverage (max)Setbacks (ft) Controlled by Article 8, Central District Height (non-waiver)
MEMORANDUM
Date: September 18, 2009 Page 7 of 10
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
Williston Road. All but the central part is zoned for primarily commercial activity. (See Figure 3: Williston
Road). The western stretch is zoned Commercial 1- Residential 12, which is a mixed use commercial district
that allows residential uses. There is a small area zoned for City Center use, at Mary Street, and a small area
zoned Institutional & Agricultural North near the University of Vermont campus. The eastern stretch is a mix
of Commercial 1- Residential 12, Commercial 1- Airport, Mixed Industrial & Commercial, and a small area
of Residential 4. The center of Williston Road is zoned for residential use, with the same Residential 4 zoning
as large areas to the north and south. (This swath of R4 constitutes the core of northern South Burlington.)
With the exception of the residential district and the airport district, the commercial districts on Williston Road
are mapped nowhere else in the city.
Shelburne Road. Shelburne Road is zoned for commercial use, with residentially zoned areas primarily east
of the corridor. (Figure 4: Shelburne Road). The central portion of the road is zoned Commercial 1-
Automobile. North of these auto dealerships, the road is zoned Commercial 1- Residential 15, which is a
mixed use commercial district that allows residential uses. Most of the southern stretch is zoned Commercial
2, with a unique district mapped around Allen Road. As with Williston Road, the zoning on Shelburne Road is
found only here in the city, with the exception of a very small area also zoned Commercial 2 in the north
part of the city.
Development Process. The Development Review Board of South Burlington uses site plan review to approve
development applications. Uses subject to site plan review are known as principal permitted uses, as stated
in LDR Appendix C, Table C-1. (Such uses are also colloquially called as-of-right or by-right uses.) The
process is governed by Article 14 of the LDRs. Site plan approval is required for 1) any new land use,
changes in use, or expansion of use in any district, 2) alterations or changes to approved site plans, 3) new
parking lots or expansions of existing lots, and 4) conversions of residences to non-residential uses. There
are exemptions to this list, primarily one- and two-family houses, forestry, agricultural, and horticultural uses,
and renovations and repairs. Application review is governed by a process and standards detailed in Article
14. A modified version of site plan review is used for conditional uses (also known as special permit or
special exception uses in other municipalities and states). Development along Williston and Shelburne Roads
has been reviewed and approved using the city’s site plan process.
In addition, South Burlington allows Planned Unit Developments (PUDs), which have their own approval
process. This is appropriate because a PUD is both a physical plan for a site (a development type) and a
legal concept (the process of approving that development type). The intent of the PUD provision (Article 15)
is to “provide for relief from the strict dimensional standards for individual lots in these Regulations in order
to encourage innovation in design and layout, efficient use of land, and the viability of infill development
and re-development in the City’s Core Area[.]” Article 15 unifies PUD review and subdivision review into
one consolidated process.
The city’s PUD controls are both restrictive and liberal. Table C-1 of the LDRs regulates those districts and
uses where PUDs are allowed. In some districts, certain uses are only allowed if part of a PUD: the SEQ,
SOUTH BURLINGTON, VT SOURCE: GIS MAPSZONING AND TAX PARCELS FIGURE 3: WILLISTON ROADN.T.S.September 2009
SOUTH BURLINGTON, VT
N.T.S.
September 2009
ZONING & TAX PARCELS FIGURE 4: SHELBURNE ROAD
MEMORANDUM
Date: September 18, 2009 Page 10 of 10
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
Central District, Commercial 1, and Institutional-Agricultural districts have broad categories of applications
that must be processed as PUDs (Article 15.02.B and Table C-1.) Conversely, the regulations also allow the
applicant for any use in any district to apply as a PUD. The PUD controls allow certain use, density, and
zoning boundary adjustments. The adjustments most used appear to be, first, the automatic setback waiver:
in almost every district, the front, side and rear building setback from a property line can be reduced to five
feet. (The sole exception is the Central District 1, where side yard setbacks cannot be waived.) This has
resulted in development projects where the building is set no more than five feet from the front lot line,
despite the deeper standard setback that may prevail among its neighbors built according to the base
zoning. This irregularity of front yards can be found especially on the east end of Williston Road. Second, the
PUD controls allow lot sizes within the planned development to be smaller than the base zoning, as long as
the overall density is not violated (Article 15.03.B). This adjustment reportedly works well for multi-lot
residential development and is rarely requested for commercial development. For example, in a four-lot
subdivision, three of the lots may be smaller than the minimum required by base zoning with the fourth
being substantially larger, in order to maintain the overall required density. This flexibility is generally not
needed for commercial construction, given the demand for on-site parking, loading, circulation,
landscaping, and building footprint.
CARS TO PEOPLE
South Burlington, Vermont
DRAFT REPORT:
PROJECT INITIATION AND PHYSICAL ASSESSMENT
BFJ PLANNING
September 30, 2009
MEMORANDUM
To: Paul Conner, Director of Planning and Zoning, City of South Burlington
From: Harlan Sexton AICP, Senior Associate; Rashi Puri, Urban Designer
Subject: Cars to People: Task 3 & Task 4 Memo, Physical Assessment of Study Areas
Date: September 22, 2009
On July 22 and 23 and August 26, BFJ visited the two study areas, Williston Road and Shelburne Road. On
August 26, BFJ and planning staff also met with local developers and large property owners to introduce
them to the Cars to People project. This memo covers the third and fourth tasks of the project, largely
focusing on the built character of the two commercial corridors. The information consolidates the site visits,
the July 22 working group meeting, and August 26 stakeholder meeting.
Williston Road
Williston Road (Route 2) is zoned for commercial use at either end of its east-west stretch. These areas are
separated by an R4 residential area. The zoning is Commercial 1- Residential 12, which is a mixed use
commercial district that allows residential uses. There is a small area commercially zoned for City Center use
at Mary Street, and a small area institutionally zoned to support the University of Vermont (UVM) campus, at
the far western end of Route 2 (Institutional & Agricultural North). The analysis below focuses on Williston
Road east of the UVM area. The area’s character is largely determined by the road’s arterial/collector
nature: through traffic uses Route 2 as a four-lane suburban highway connecting Burlington to the city’s west
to Williston, and towns beyond, to its east. A full clover-leaf I-89 interchange occupies significant land area
at its western end. There is also local traffic on Williston Road, due to the many intersections with local roads
serving moderately dense residential areas north and south of the road. The businesses here are oriented
towards car-driving custom, each business having its own on-site parking.
East Terrace/City Line to Cottage Grove Avenue
Area Character and Land Uses. The western portion of Williston Road from East Terrace to just east of
Cottage Grove Avenue is primarily zoned and developed for retail uses. The land uses here are local
businesses, national franchises and chains, banks, hotels, restaurants, entertainment, convenience shopping
for local residents, and comparison and tourist-oriented shopping. (See Figures 1A to 1E for selected land
uses.) The road is straight and flat, lined primarily with low-scale businesses: with the exception of the
hotels, nearly all land uses are one-or one and one-half story. There is little that is distinctive about the road
or its landscaping. As a result, the established design and visual character of this road portion is created
entirely by the businesses, their signs, driveways, and site-by-site landscaping.
BUCKHURST FISH & JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGSeptember 2009WILLISTON ROAD FIGURE 1A: SELECTED LAND USESAlpine Shop; Cheese TradersOpine Computers Al’s French FrysShell StationMobil Station: Hinesburg RoadVermont Gift Barn
September 2009WILLISTON ROAD FIGURE 1B: BANKS AND HOTELSHoliday InnChittenden BankSOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGDoubleTree Hotel Northfi eld Savings BankLa Quinta HotelSwiss Host Hotel
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGSeptember 2009WILLISTON ROAD FIGURE 1C: STRIP CENTERSStaples centerPrice Chopper centerChicken Charlies centerBlockbuster center
September 2009Hinesburg Road intersectionWhite Street intersectionCottage Grove Road intersectionWILLISTON ROAD FIGURE 1D: INTERSECTIONS AND SMALL BUSINESSESSOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGMary Street residencesWhite Street mixed-use buildingWhite Street intersection: Travel Agency
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGSeptember 2009Arcadia DinerWILLISTON ROAD FIGURE 1E: SELECTED LAND USES (EAST)SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGOffi ce BuildingAce HardwareExecutive Car CareGround Round, Kinney DrugsPour HouseHo Hum Motel
MEMORANDUM
Date: September 22, 2009 Page 7 of 31
From: Harlan Sexton AICP, Senior Associate;
Rashi Puri, Urban Designer
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
All commercial districts on Williston Road (not considering the small frontage of the Central District) all
required a minimum lot size of 40,000 sf. The built character of the western stretch is much less regular than
a standard one-acre lot size would suggest; this area has a mix of small lots, large lots with single uses,
large lots with multiple uses, irregularly shaped lots and street intersections. The scale is generally
substantially lower than the allowed three-story height would indicate. The building frontages are staggered
irregularly, with some set back from the road in a suburban strip-mall urban design, and other closely
fronting the sidewalk as would be found in a traditional downtown. Site coverage limits (70%) are in line with
the 40,000 sf required lot size and the required yards. If greater density were sought here, this coverage
maximum would likely be too restrictive. The front and rear setbacks are on paper deep, at 30 feet, but in
reality the front yards vary considerably. While all land uses have on-site parking, the businesses are
generally close together, with entrances off the street and thus the sidewalk, enabling pedestrian access to
the stores and services.
The businesses themselves vary in age and design quality. The businesses fronting on the triangle created by
Williston Road, White Street, and Patchen Road are convenience-oriented and likely serve a more local
residential market than most of the businesses directly fronting on Williston Road. Some of the Williston Road
businesses have a local flavor due to their design: Al’s French Frys, Cheese Traders, Alpine Shop, Swiss Host
Hotel, Vermont Gift Barn, and Zachary’s likely serve a mix of local and through traffic, but do not have a
generic corporate designs typically required for local franchises and operations. Northfield Bank is a good
example of a new building aimed at creating a traditional residential character; it matches the other
Northfield Bank branch in the city and so creates a corporate image without straying too far from the local
architectural tradition. The brick Chittenden Bank is also an attractive updated traditional design. Most of the
lots are occupied by one business, with only a few suburban strip malls. In the area just east of the
interchange, some businesses are stacked: one fronts the road, while another occupies the rear of the lot.
There is no design conformity between the two buildings in these instances. If commercial design standards
are adopted, the city should attempt to preserve the kind of variety and peculiar character shown by some of
the existing businesses.
Blocks and Lots. The north side and south side of Williston Road do not have mirror image blocks. The
north side has just three intersections, the off-set one with White Street/Midas Drive, the four-way intersection
with Patchen Road/Hinesburg Road, and the intersection with Cottage Grove Avenue. These intersections are
close to one another and irregularly spaced. The long stretch from the interchange ramps/ Dorset Street
(south side of Williston Road) to White/Midas has no formal blocks, only a number of curb cuts leading to
connected parking lots. This creates a design character that is both choppy, due to the irregularly sized lots
and curb cuts, and unrelieved or monolithic.
The south side of this part of Williston Road has only one more intersection than the north side, but is more
regularly divided into blocks and intersections. Moving east from the Dorset Street intersection, the
intersections with Mary Street, Midas Drive, and Hinesburg Road follow one another in somewhat predictable
spacing. The street frontages of the lots vary some, but are more regular than on the north side. Anecdotally,
BFJ noted that more pedestrians walk on the south side than the north side, perhaps due to the smaller scale
MEMORANDUM
Date: September 22, 2009 Page 8 of 31
From: Harlan Sexton AICP, Senior Associate;
Rashi Puri, Urban Designer
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
of the established design character.
As mentioned above, the lots vary in size and street frontage. However, the Holiday Inn, Best Western, Price
Chopper center, and Doubletree Inn sites have relatively narrow frontage compared to their depth. This
characteristic helps the road feel somewhat uniform in lot spacing. The buildings themselves are varied in
their placement on their lots. As can be seen in the photographs, some have an urban placement where the
buildings are placed close to the sidewalk and have their parking to side and rear. Others have been sited in
a suburban style, with the building set back and parking in the front yard.
Connection to Nearby Residential Areas. The frontage along this part of Williston Road is entirely
commercial, with the exception of the modest houses along Mary Street and the nearly-obscured public
school. The residential areas lie north and south of Williston, with Patchen/Hinesburg Road as their spine.
Geographically, the communities are nearby but there is little sense of them from this part of Williston Road,
with the exception of White Street and Cottage Grove Drive. The commercial frontage on these two streets is
short and the streets themselves have a much smaller and more local scale than Route 2. These streets and
Patchen/Hinesburg Road are the only way for nearby residents to travel back and forth from Williston Road
stores and businesses.
Urban Public Space. In an urban settlement of some size, there will be areas where people unacquainted
with one another share the same public space, whether walking along a sidewalk, passing each other in
crosswalks, resting on public benches or walls, or waiting on a corner for the light to change or for a bus.
Williston Road provides no formal public space, but many informal elements. A few of the restaurants
provide outdoor seating, which is a secondary form of public space. The sidewalk is the main element and
one that connects all the blocks, lots, and individual buildings, both sides of the corridor, and connects the
corridor to nearby neighborhoods. Any design corrections to the corridor and its public space (also called the
public realm) should focus on the quality of the sidewalk and the pedestrian experience. (See Figures 2A and
2B for building features, sidewalks, and landscaping.) This might mean sidewalk widening and extensions
(the Post Office on White Street), more street trees, shorter sidewalk lamps (pedestrian-scale) in some areas,
and improved crosswalks.
Landscaping. This part of Williston Road gives an overall impression of being relatively landscaped. Most of
the planting is on private property, and is a mix of trees, shrubs, and flowering perennials and annuals.
There is little scope for public street tree planting, given how close the sidewalk runs to the road. The
sidewalks are detached from the road. However, their character reads more as part of the road than the
front yards of the properties because there is not a deep grass strip with trees between the sidewalks and the
traffic. As the landscaping is private, there is an appealing idiosyncrasy. The quality and quantity varies, and
not all lots are well-landscaped. One benefit of the predominance of private landscaping is the unusual
character, particularly exemplified by Al’s French Frys. Compared to other northeast municipalities,
commercial landscaping in South Burlington incorporates many more summer-blooming flowers along with
the expected trees and shrubs. BFJ also noted unexpected choices for some street trees: the apple trees
planted in a few places along the corridor would not be found typically in other locales, and thus help create
September 2009WILLISTON ROAD FIGURE 2A: BUILDING FEATURESChittenden Bank: building and roof materialsFraming business: no front entryMcDonalds: entry at sideSOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGBicycle store: building materialsSouth side (looking east): signs, curb cutsUS Post Offi ce: building materials- domestic scaleSmall Businesses: building materials, signs, yards
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGSeptember 2009WILLISTON ROAD FIGURE 2B: SIDEWALKS AND LANDSCAPINGMerchants Bank and USPO: parking lot stairsZacharys: sign and landscapingDoubleTree Hotel: sign and landscapingGulf station: new landscape island Hinesburg Road: sidewalk, stone wallSouth side: detached sidewalk, landscapingDetached sidewalk bends for tree
MEMORANDUM
Date: September 22, 2009 Page 11 of 31
From: Harlan Sexton AICP, Senior Associate;
Rashi Puri, Urban Designer
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
a unique South Burlington identity. Future planning should focus on identifying gaps in permanent
landscaping (trees and long-lived shrubs), determining regular tree spacing appropriate for the “lite” urban
character of this stretch, and opportunities for using local materials, such as the stone wall in front of the
Marco’s Pizza strip mall.
Circulation. Williston Road is obviously the spine of the corridor, with a few local roads intersecting along
this length. (See discussion above on blocks.) The local roads do not connect themselves to either side of
Williston Road, thus no formal secondary system exists to relieve traffic congestion or provide quieter areas
for pedestrians and cyclists. (See Figure 3: Circulation). However, the lots along the north side from the Best
Western to White Street have had their rear parking lots connected across lot lines and some curb cuts
closed. For those who know, these connected lots provide a way to move from one business to another
without driving back out onto Williston Road. In addition, there are pedestrian-only paths, some formal and
at least one not (the path created for rear access to Starbucks). Crosswalks exist only at vehicle intersections.
There is no crosswalk midblock where the proposed City Center would front onto Williston Road; Mary Street
is a potential location. The CCTA #23 bus runs along Williston Road, currently stopping in this western part
of the study area at the Kennedy Drive intersection. CCTA will be instituting “backbone service,” but no
expansion onto secondary roads is planned. The new direct route will provide service on Williston Road with
more frequent service and potentially more stops than at present. Future planning for new commercial
development will mean planning for the new bus stops with crosswalks and pedestrian connections from rear
buildings on deep lots out to the stops.
Heath Street to Victoria Drive
The residential center of Williston Road lies generally from just west of Heath Street to just east of Victoria
Drive. This area is zoned R4 and is primarily developed with modest houses, no more than two generations
old, a church, and a few businesses. Some of the businesses are located in converted residences. (See Figure
4.) The lots here in the central area are fairly uniformly developed for one-family houses on lots just under
one-quarter acre (9,500 square feet) in size. The regularity in the lot platting leads to a consistent block
pattern: with one exception, the blocks with frontage on Williston Road tend to be the equivalent of seven lots
wide. Of the five intersections in this area, two are full (four-way), one is off-set, and two are T-intersections.
Driveways enter directly upon Williston Road. Street landscaping is largely provided by the individual
property owners.
As experienced by a driver along Williston, the houses and their regular spacing come as an unexpected
calm space in the midst of commercial heterogeneity. When seen on a map or aerial photograph, it is clear
that this was once the predominant character of Williston Road and many of the oldest neighborhoods in
South Burlington. The working group agreed that this R4 area and its character must be protected against
commercial encroachment; there is no interest in extending economic development fully along Williston
Road. Any new commercial development should be restricted to conversions of residences to businesses. In
these cases, the residential fronts should remain oriented towards Williston Road, with parking to the side
September 2009WILLISTON ROAD FIGURE 3: CIRCULATIONSOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGBest Western: pedestrian pathCITGO Station: detached sidewalk with no landscape buffer North side (rear lots): inter-lot connections, bicycle racksDorset Street intersection: vehicles and pedestriansGulf station at Hinesburg Road: crosswalks at intersectionZacharys and Post Offi ce: parking lot connectionWhite Street: offset intersection
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGSeptember 2009WILLISTON ROAD FIGURE 4: RESIDENTIAL AREADinosaur DaycareEthan Allen Motel Dental Offi ce: converted residenceLutheran ChurchOffi ce Building at Victory RoadResidenceResidenceResidence
MEMORANDUM
Date: September 22, 2009 Page 13 of 31
From: Harlan Sexton AICP, Senior Associate;
Rashi Puri, Urban Designer
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
and rear. Signs and eventual expansions should remain residential in character. In addition, future planning
should include a crosswalk, perhaps at Elsom Parkway to connect to the Lutheran Church, community
garden, the sidewalk, and other north side and uses.
Victoria Drive to Gregory Drive/City Line
Area Character and Land Uses. The area east of the residential center and the airport access has a
markedly different character from the western part of Williston Road. (See Figure 4.) The eastern stretch is a
mix of Commercial 1- Residential 12, Commercial 1- Airport, Mixed Industrial & Commercial, and a small
area of Residential 4. The C1-R12 and C1-Airport zones are mapped only one lot deep. The IC district is
significantly larger, as this part of South Burlington is planned for economic development. The IC area is
well-served by east-west Williston Road, the parallel east-west Kimball Road, a north-south road network,
and the airport, and potentially a new interchange on I-89. The land around the airport has reportedly
gained value since the Town of Williston adopted zoning changes that prohibit new industrial uses. As a
result, the land uses here are a highway or general business type, with some vacant lots out towards the
town line; more can be expected given the location’s assets. Williston Road appears wider here than in the
western stretch, largely due to the deeper setbacks: there is more visual space between a driver and a
building. The road is relatively featureless and is anonymous, as there is little about the built environment
that has a South Burlington identity.
The buildings are oriented fully towards the driving customer, with prominent front setback parking lots and
large signs. The small Commercial 1-Residential 12 district mapped just west of Kennedy Drive has the
greatest visual variety of this stretch of Route 2. The Arcadia Diner, Ho Hum Motel, the Ethan Allen motel, a
small group of residences, an antiques store, and Vermont Soup are typical of the small businesses found in
the corresponding Commercial 1-Residential 12 found towards the west. However, this area also has
highway commercial scale businesses - Rags to Riches, Car Quest, Hooters, Ground Round, Kinney Drugs,
Executive Car Care, the medical office building and the gas station - only some of which are well-
maintained: Past Kennedy Drive, the front setbacks vary, possibly given the reductions allowed in the PUD
(planned unit development) process. The buildings here are largely generic, lacking the quirkiness or brick
and clapboard traditional character of the western part’s businesses.
Thus, this corridor has two distinct commercial characters. “Williston Road” is an appropriately local and
historic name for the western section. Route 2 is more descriptive of the highway quality of the eastern
section.
Blocks and Lots. The highway character of this area is partially created by the block structure. There are few
intersections once east of Kennedy Drive and the spacing is very irregular between the intersections. While
the lots are somewhat standard in their frontage, this regularity is counter-cut by the variety in front yard
setbacks. This is not a pedestrian area, so the need for crosswalks at block intersections is negligible.
MEMORANDUM
Date: September 22, 2009 Page 15 of 31
From: Harlan Sexton AICP, Senior Associate;
Rashi Puri, Urban Designer
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
Connection to Nearby Residential Areas. Most of this area is zoned Mixed Industrial and Commercial, and
is platted with very large lots suited towards significant non-residential development. Embedded within this
zone are two small R4 areas (Millham Court and Shunpike Road). There is no plan to expand these small
communities and no possibility of linking them, other than through the Recreation Path system, to other
South Burlington neighborhoods. Future planning for this part of Williston Road need not focus on residential
connections.
Urban Public Space. The character of the IC area is not conducive to planning for a detailed public realm.
(See Figure 6.) There are fully constructed sidewalks up until just east of Kennedy Drive. Past this
intersection, on the south side, the sidewalk ends part-way on the Ace Hardware site. It picks up again on
several disconnected sites. Sidewalks are similarly incomplete on the north side. While efforts should be
made to complete the sidewalk or Recreation Path system to provide pedestrian access to bus stops and
outdoor exercise for local employees, there is not the need here as with the western stretch of Williston Road.
Landscaping. The open and green quality of eastern Route 2 is created by private landscaping on each site
and those sites with deep setbacks and lawns. Future planning should encourage maintaining this quality:
owners should maintain healthy lawns and plant trees as advised by the city’s arborist. Where possible, a
sense of gateway into South Burlington’s modern economic quadrant could be fostered by careful tree
selection and the use of local materials, such as stone and brick. The spacing and selection of street trees in
this area should be different than the C1-R12 area to the far west. Where those trees might be space closely
and regularly, this IC area should have a looser and more irregular quality to maintain a sense of a rural
area in careful transition.
Circulation. The larger IC area has been developed over time for good circulation. The road network has a
number of connections, allowing vehicles different routes to get to their destination. (See Figure 7.)The
number of curb cuts is potentially a problem, as each left turn out of or into a business represents a traffic
conflict. Future planning should monitor the accident rates here, and possibly consider installing features that
make safe left-turns and U-turns possible.
MEMORANDUM
Date: September 22, 2009 Page 16 of 31
From: Harlan Sexton AICP, Senior Associate;
Rashi Puri, Urban Designer
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
Williston Road Planning Questions
The next step for the working group will be consider and discuss the following questions. These are taken
from the first working group meeting, the stakeholders/developers meeting, discussions with planning staff,
and BFJ observations.
Development along Williston Road is not monolithic. While the road already has a number of different
zoning districts, the districts could be a better fit:
• Strip commercial west of interchange: Zone for straight-forward highway commercial. Currently this
area has the same zoning as other commercial areas on Williston Road which are developed quite
differently. Consider commercial design regulations.
• Dorset Street to Patchen/Hinesburg Road:
• Zone for a traditional mix of commercial uses and intensities, perhaps allowing greater
intensity and shallower front yards (or a tight range of minimum and maximum front yard).
While this area will not have the intensity of use planned for City Center, it could have more
of a commercial core appearance and less of a highway commercial one.
• Alternatively to moving the buildings closer to the road, the road could be widened to provide
bicycle lanes on both sides and wider, detached sidewalks with street trees.
• Consider reducing parking requirements if an applicant can demonstrate that pedestrians are
able to comfortably walk to the place of business, e.g., sidewalks, good lot-to-lot connections,
within reasonable walking distance of public parking (City Center?).
• Require more parking lot connections, even fewer curb cuts, and greater pedestrian comfort
(wider sidewalks, deeper planting strips, crosswalks, and trees). Where parking lots are well-
connected, consider all parking to be pooled so that parking requirements can be reduced.
(See Manchester’s retail center for an example of this). This would benefit small businesses
and their landlords, making it easier to change over tenants.
• Location of parking is a difficult issue, whether to be located primarily in the front or to the
side and rear. Consider establishing a district-wide best practices standard that would be
applied or modified sensitively on a case by case basis.
• Consider the impact of the Whole Foods application: traffic, pedestrian use, visibility from
Williston Road, opportunity to add another piece of the inter-lot connections behind the
businesses on Williston Road. What is the impact on Williston Road intersections if there is
eventually a connector road through this site up to Patchen Road, in essence extending Dorset
Street north across Williston Road?
• Consider commercial design regulations, with a focus on physical form (not architectural
styles per se) and a roster of preferred local materials. In this district, density and urban
design should be combined.
• Hinesburg intersection and the White/Patchen/Williston triangle: Create a sub-district with design
MEMORANDUM
Date: September 22, 2009 Page 17 of 31
From: Harlan Sexton AICP, Senior Associate;
Rashi Puri, Urban Designer
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
regulations. Keep allowed uses here more oriented towards neighborhood convenience. Consider
re-aligning the offset intersection and allowing left-turn lanes.
• City Center – Should this be expanded to front onto Williston Road? Would provide visibility and
development density on both Williston and Dorset; eliminates small lot uses on Williston and gives
more development space to City Center zone.
• Residential Area: Agreement that this must remain this way; needs protection. Enforce conversions
from residential to commercial to remain residential in character.
• Airport Road Area: This area has an ambiguous identity. Is it one end of the highway commercial
area west of Kennedy Drive? Is it a moderate-scale transition area from highway commercial to
modest residential? Is it South Burlington’s gateway for visitors arriving from the airport? Is it the
convenience retail area for the R4 areas in the immediate vicinity? Once this identity is chosen, the
right zoning can be suggested. No matter the specific zoning, some city-wide commercial standards
should be maintained here: inter-lot connections, shared parking, good pedestrian access, and wide
detached sidewalks.
• Kennedy Drive to City Line: A very deep area is zoned Mixed Industrial & Commercial. Should there
be a different zone or an IC sub-district or overlay that recognizes that this area is one of the City’s
main gateways. Frontage and visibility on Williston Road attracts a different market than similarly
zoned lots off Shunpike Road, Kimball Avenue, and Community Road. Public action here should
focus on completing the sidewalk/recreation path system and creating a cohesive landscaping
approach. Minimal design standards should be created.
• Traffic Overlay District: This district influences the intensity of development. It is mapped on the full
length of Williston Road, and covers all approaches of the key intersections at Dorset Street, White
Street/Cottage Grove/Hinesburg Road and Airport Drive/Kennedy Drive. The TOD reportedly works
well but leads to lot assemblage in order for one use to obtain the necessary approvals, rather than
multiple or mixed-uses on a lot.
MEMORANDUM
Date: September 22, 2009 Page 18 of 31
From: Harlan Sexton AICP, Senior Associate;
Rashi Puri, Urban Designer
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
Shelburne Road
Shelburne Road runs from the city line with Burlington south to the city line with Shelburne. The north end of
the road lies on the far side of the 189 connector ramps and intersections. South of 189, Shelburne Road
runs without bend or change to the city line. The character of this long stretch is largely highway commercial,
with a mix of stand-alone businesses, strip malls, office buildings, and a cluster of car dealerships. Shelburne
Road is zoned for commercial use, with residentially zoned areas primarily east of the corridor. (See Figures
5A to 5C for selected land uses.) Shelburne Road Area, Land Uses).From the north end to Holmes Road/IDX
Drive, the road is zoned Commercial 1. Most of the zoned area is zoned C1-R15 which allows the city's
highest density residential land use. Embedded within the larger C1 area is a significant strip of C1-Auto,
where the businesses are dependent on car (not foot) traffic. South of the Holmes Avenue/IDX Drive
intersection, Shelburne Road is zoned Commercial 2 and largely developed with car dealerships. There is a
unique district mapped around Allen Road, with some frontage on Shelburne Road. As with Williston Road,
the zoning on Shelburne Road is found only here in the city, with the exception of a very small area in the
north part of the city also zoned Commercial 2. The two major zones - C1 and C2 -Auto - shape the
character of the road. Shelburne Road is also VT Route 7. This is apparent in the road's engineering: it is
long, straight, wide, and highly uniform. The planning and design challenge for South Burlington is to
impose local character on this predictable route.
City Line/Proctor Avenue to 189 South Ramp
This short length of the study area has frontage in South Burlington only on the east side. As you travel north
on Shelburne Road into Burlington, there is a seamless transition between the two municipalities, whether
seen across the street from one another or at the city line near Proctor Avenue. With the exception of the
Shaw's center, development here is low scale, confined to relatively small lots, and generally vintage. There is
however new investment in the larger area, with the significant residential construction on Farrell Street, the
City Lights building, and the new multi-family structure between White Street and Proctor Avenue.
Connection between the commercial frontage and the residential neighborhood to the rear is good.
Shelburne Road here reads more as an urban street than a major inter-municipality connector, largely due
to the landscaping, close placement of the buildings to the street, and the obvious proximity of the residential
streets behind the commercial frontage. There are no substantial planning issues here. (Shaws is reportedly
used as an informal park-and-ride, which may indicate the need for a formal site at some future point). The
need is more for clear design standards so that new investment compliments the best of the street's
character.
When and if the southern connector from 189 to Holmes Avenue is activated (the road exists), the character
of the street will be unchanged as 189 is below grade. The intent for 189 is to connect South Burlington’s
center to downtown Burlington at Battery Street. Much of the connector is built, but is stopped at a brownfield
site requiring remediation. Currently, Pine Street (Burlington) intersects with Queen City Park Road. One plan
September 2009SHELBURNE ROAD AREA FIGURE 5A: LAND USES (NORTH END, SELECTED)SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGHannaford supermarketFarrell Distributing Corp. (Lewis Road)KmartMobil StationRemaxLarkin Realty mixed use building (north of Swift Street)Storefronts (north of Swift Street)Lowe’s
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGSeptember 2009SHELBURNE ROAD AREA FIGURE 5B: LAND USES (CENTER, SELECTED)SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGShelburne Square strip center (IDX Drive)Olde Orchard Park multi-family project (Fayette Road)Aerie Lodge and mixed-use complexGarden apartments (Fayette Road)Palace 9 (Fayette Road)Mc Donalds, Zen Palace, medical offi ces strip mall (Fayette Road)Portland Glass
September 2009SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGDirect Autobody (Bartlett Bay Road)Magic Hat Brewery (Bartlett Bay Road)Dodge DealershipThe Crate Escape, vacant lot (Nesti Drive) Vacant lotSHELBURNE ROAD AREA FIGURE 5C: LAND USES (CENTER AND SOUTH, SELECTED)
MEMORANDUM
Date: September 22, 2009 Page 22 of 31
From: Harlan Sexton AICP, Senior Associate;
Rashi Puri, Urban Designer
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
for 189 shows this important linkage being broken, with Pine Street converted into a dead-end.
According to planning staff, development on Farrell Street presents two planning issues. This area is a newly
developed PUD. Development here is a mix of affordable housing (using a density bonus available in the
LDRs), senior citizen housing, and open market apartment buildings. The development scale was partly
achieved with height waivers. According to the LDRs, a developer can be awarded a height bonus if there is
no impact on scenic views from a public street. This is too open-ended a criterion for the DRB to administer
comfortably; greater clarity is needed. Second, a better definition for open space is needed so that parks and
open space are not treated as the same.
Swift Street to Holmes Road/IDX Drive
Area Character and Land Uses. A discussion of this area's character and land uses is also a discussion of
development potential. This area has commercial frontage one lot deep on the east side of Shelburne Road.
On the west side, the commercial zone extends west to the railroad tracks and is mapped C1-R15, C1-Auto,
and C2.The land uses are nearly all commercial, with the exception of a garden apartment complex and the
newer Olde Orchard multi-family complex on Fayette Road and a small complex accessed from Lewis Road.
The businesses are a mix of old and new, stand-alone and strip mall stores, national or franchise businesses
and local ones. Similarly, some buildings are close to the sidewalk while others have parking and
landscaping separating them from the street. The overall character along the road frontage is low-scale,
dispersed commercial that serves both through traffic and local residents.
On the west side of Shelburne Road, the commercial character is different. This area has large deep parcels
and is organized around the intersection of Hannaford Drive and Fayette Road. Development here is mostly
new, with significant vacant available land. Hannaford, as Southland, holds the master land lease and so is
the developer of the Hannaford Plaza site, comprising the supermarket, Lowe's, Kmart, Merchant's Bank, and
some vacant sites. The Kmart site is considered a development site once its lease expires in about ten or
more years. (Reportedly Southland is not able to take control of the Kmart lease and so will not redevelop the
full site until it has full control.) While the existing zoning allows residences, Southland is reportedly solely
interested in commercial development, presumably retail. According to its calculations, additional density is
not possible given parking constraints. Concept plans done for Southland show new infill mixed use non-
residential development at a smaller scale than the new big boxes, along Shelburne Road. The buildings will
be one-story, with a three-story hotel as the exception. Fayette Road is planned to be developed with a series
of detached retail buildings, on one or both sides, depending on site conditions. The parking calculations in
the concept plan rely on shared parking. The road is intended to be curved in order to slow down traffic.
Reportedly, Southland has all necessary permits and needs only the appropriate market and tenant
conditions to resume development.
Residential uses in this area are the Olde Orchard multi-family development and the non-conforming
Section 8 garden apartments at the corner of Fayette Road and Shelburne Road. Other small-scale retail,
MEMORANDUM
Date: September 22, 2009 Page 23 of 31
From: Harlan Sexton AICP, Senior Associate;
Rashi Puri, Urban Designer
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
medical, office, banking, entertainment (Palace 9 movie theater), and cemetery uses occupy sites along
Shelburne Road, some with access from Fayette Road. Fayette Road is striped already in anticipation of
future development on the west side (Lowes side) of the street, which is expected to be strip-style and oriented
towards the street. The large vacant site on the other side of the street is not a development site as it hosts a
sewer line. There may be room for infill development in the Olde Orchard site, amongst the existing
residential buildings.
Further south, towards Holmes Road/IDX Drive, the land area shrinks and the parcels on average grow
larger. The single largest use is Farrell Distribution, with access from Lewis Road (private)and Holmes Road.
The other uses are a mix of residential, auto-related, and commercial. The Farrell site marks the northern
edge of the large C2 district.
The northern edge, abutting Queen City Park Road, is occupied by municipal utilities and developmentally
constrained by wetlands, woods, and steep areas. The far side of the railroad tracks is Allenwood, a possible
300 d.u. residential development site, with no existing direct access across the tracks except at Bartlett Bay
Road. The property owns a linear parcel with frontage on Shelburne Road, considered a possible entry to the
large Allenwood tract. There may also be two new access points to Allenwood from Fayette Road.
Future planning issues in this area focus on the remaining development potential. There are vacant and
underdeveloped sites, potential new road connections, and infill possibilities. The existing zoning already
allows commercial and residential uses; the question is whether the density (15 du/acre) is sufficient to
stimulate residential development. Certain points along the Shelburne Road spine could serve as a gateway,
announcing the large picture of South Burlington, while other areas function as discrete residential areas and
commercial developments with little relationship to the bigger picture.
Blocks, Lots, and Circulation. Shelburne Road is the commercial spine here. On the shallow commercial
east side, the blocks are determined by the existing and traditionally laid-out grid of eight local streets
intersecting at right angles with the Shelburne Road collector. The east side is punctuated regularly by these
side streets, with the exception forced on the grid by the elementary school. The lots with frontage on
Shelburne Road have generally the same frontage length. Given the disparate type and quality of the
businesses, the regular spacing of the lots, blocks, and intersections provides predictable urban design.
The west side has a different scale. The blocks are longer, with only five intersections, all nearly equally
spaced one from the next. On paper, the lots have about the same frontage length; however, this is not
perceptible from the road as there seems to be great variety in the building and parking lot sizes. The city's
critical step in this area was the creation of a new local street paralleling Shelburne Road. Fayette Road does
not serve as a bypass road to Route 7, but is a "service" road, providing necessary access to and circulation
among the rear properties, and giving them visibility from new street frontage. It also provides on-street
parking. Its main intersection, with Hannaford Drive, is an important organizing principal for the large area,
once built-out. There remain possible extensions of this secondary network: to the north, Fayette Road should
MEMORANDUM
Date: September 22, 2009 Page 24 of 31
From: Harlan Sexton AICP, Senior Associate;
Rashi Puri, Urban Designer
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
connect to Queen City Park Road and to the south, a new short section of "link" road should break off from
Fayette Road to connect with Lewis Road, and thus to Holmes Road. There exist right-of-way studies that
show possible alignments for the Fayette Road section north to Queen City Park Road and the south "link"
road to Lewis Road.
Another connection should be sought to connect Hannaford Drive at its west end with Old Orchard Park
Road. This one is more difficult as it would transform a residential cul-de-sac. It may be that a street is not
possible, but a recreation path/emergency vehicle access would allow residences ready access to Lowes,
Hannaford, and future development.
Connection to Nearby Residential Areas. The west side has little sense of connection to the large,
established neighborhoods on the east side of Shelburne Road, or the residential areas on the other side of
the rail line. The residential projects that lie within the west side - Olde Orchard Park, the garden
apartments, and any future development on the Hannaford site - are discrete elements in largely commercial
area.
On the east side, the commercial strip and the residential streets are physically well-connected. Each street
that intersects with Shelburne Road provides stores and businesses that don't require residents to cross Route
7 traffic. The streets have sidewalks and the recreation path system exists here to connect one development
pod to another. However, there is a disconnection experienced by the residents. The neighborhoods are not
visible from the main corridor - which may not be a problem - and the residents reportedly do not use the
businesses for their convenience shopping needs to any great degree. Future planning for this area should
first determine if a stronger connection is warranted.
Urban Public Space and Landscaping. The public space along Shelburne Road and Fayette Road is
created by the sidewalks, bicycle lane, and bus stops - all parts of a circulation system. (See Figure 6: Design
Elements.) The lack of a sit-and-look quality to the public realm here may be appropriate given the road's
own character of constant traffic movement. There is one small park at the intersection of Shelburne Road
and Farrell Street. This doubles (triples?) as a bus stop and stray shopping cart depot. The small cemetery on
the west side of the road provides a small green space, but is easily overlooked. The road triangle at IDX
Drive is landscaped. The sidewalks are wide, with substantial planting strips detaching them from the busy
road. The landscaping is provided entirely on private property, with varying design results depending on the
depth of the building setbacks, the plant material choice, and the use of local stone and brick. The car-
dominated character of Shelburne Road limits the scope of creating a pedestrian-scale quality to the public
space. There is more scope on Fayette Road, where the traffic speeds are lower, the volume is less, and there
is more likelihood of people walking from one business to the next. Fayette Road also offers some possibility
of a park, or designed open space, at its main intersection with Hannaford Drive, given the sewer line site
that abuts this intersection.
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGSeptember 2009SHELBURNE ROAD AREA FIGURE 6: DESIGN ELEMENTSSOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGDance School at Allen Road GE Healthcare (IDX Drive)Merchants BankPrice ChopperShelburne/ Fayette RoadsShelburne Road / IDX DriveSmall businessLaw offi ces (north of Swift Street)Multi-family structure (north of Swift Street)
MEMORANDUM
Date: September 22, 2009 Page 26 of 31
From: Harlan Sexton AICP, Senior Associate;
Rashi Puri, Urban Designer
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
Holmes Road/IDX Drive to City Line/Allen Road
Area Character and Land Uses. Shelburne Road is nearly equally split between its northern and southern
stretches, with the split occurring at the Holmes Road/IDX Drive intersection. At this juncture, the character of
Shelburne Road changes: the lots are larger, with longer frontages; in some cases the front setbacks are
quite deep, resulting in more lawn and landscaping; the zoning and thus the land uses change; there are no
residences in the study area or nearby, as there are in the northern length. Many land uses are not just car
traffic-dependent, but also directly provide vehicle sales and services. The city's greatest concentration of car
dealerships lies in the central portion. The southern lots are generally light industrial and wholesale uses,
including warehousing and dog day care. The two largest single properties are the Chevrolet dealerships,
which has expansion permits and GE Healthcare. The GE office complex occupies one large quadrant of the
road's main intersection, Holmes Road/IDX Drive. Retail, restaurants, an old motel, and other goods and
services are located along this stretch. Some sites are vacant, with the largest being on the east side between
Green Mountain Drive and Harbor View Road, others are underutilized, and others - the car dealerships
especially - facing uncertain future market demand. The 15-acre Redstone site (which includes the Crate
Escape, storage parking for the nearby car dealership, and other buildings)is one of the underutilized sites. It
may have potential for multi-family residential and retail.
The very southern end of Shelburne Road's east side is mapped in the Allen Road District. This is a mixed-use
district that recognizes the existing heterogeneity of this end of Allen Road, with its small businesses, a
church, a Pepsi distributor, a mix of housing types, and some light industry. It serves as an effective transition
from the car-oriented commercial uses on Shelburne Road to the wholly residential areas further out on Allen
Road.
Shelburne Road south of Holmes Road/IDX Drive has development potential but the key will be to determine
the market and design character. Some of the market potential is being driven reportedly by Town of
Shelburne decisions. That portion of Route 7 is considered less attractive than South Burlington's. It also has
onerous development restraints: the front yard setback is a whopping 400 feet which has reportedly reduced
visibility and has led to commercial vacancies. New construction and commercial relocations have shifted
north along Route 7 into South Burlington, where there are better development conditions, available sites,
and non-viable businesses ready for redevelopment.
Block, Lots, and Circulation. Shelburne Road was recently improved with a median that has resolved
circulation problems and a bicycle lane. (See Figures 7A and 7B.) Reportedly, traffic movement is better now.
This southern stretch of Shelburne Road is punctuated by five intersections, only two of which are full four-
way. Nesti Drive is privately owned; the owners do not reportedly own any other land in the area. The T-
intersection with Harbor View Road may be modified to a four-way with possible new road that would
provide public road access to the underutilized Redstone property. The lots have varied depths and
frontages, but the overall impression is one of spacious development: the long blocks, large lots and large
buildings predominate, the road appears open and wide, and the vacant lots provide - even if temporarily -
September 2009SHELBURNE ROAD AREA FIGURE 7A: ROADSSOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGIDX Drive and Holmes Road intersectionOlde Orchard Park interior, possible link to Lowe’sBus stop near Shaws parking lotFayette Road: Olde Orchard Park entryFayette Road: stub ends and bump-outsFayette Road: onstreet parkingLowe’s: possible future connection
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGSeptember 2009SHELBURNE ROAD AREA FIGURE 7B: PEDESTRIAN AND BICYCLE CIRCULATIONSOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGPalace 9 steps from Fayette Road to parking lotNesti Drive: dealership footpathMerchants Bank bikerackIDX Drive (to Shelburne Road)Fayette StreetMerchants Bank steps from sidewalkSidewalk from KMart lot
MEMORANDUM
Date: September 22, 2009 Page 29 of 31
From: Harlan Sexton AICP, Senior Associate;
Rashi Puri, Urban Designer
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
visual green space.
CCTA provides bus transit along Shelburne Road. The Hannaford/Lowes bus stop is designed to be an
eventual bus transfer point. Future planning needs to identify other planned CCTA hubs so that additional
commercial and residential growth can be located efficiently.
Future planning should also consider the need for additions to the overall circulation network: Harbor View
Road and Green Mountain Road could have a north-south link road, with an east-west branch off that
connecting to Shelburne Road. These links might benefit the eastern side of the road where the lots are deep,
just as Fayette Roads on the deep west side over IDX Drive.
Urban Public Space and Landscaping. As with the northern stretch of Shelburne Road, the public space
here is largely sidewalks, bicycle lanes, and bus stops. The wide sidewalks have substantial planting strips
detaching them from the busy road. The landscaping is provided entirely on private property. GE Healthcare
provides an example of effective large-scale landscaping, with its parking lot plantings that screen the cars
and a small tree-planted triangle at its intersection. The dance school at the intersection with Allen Road
provides a good example of small scale landscaping: a stone wall, apple trees, and some grass.
Shelburne Road Planning Questions
The next step for the working group will be consider and discuss the following questions. These are taken
from the first working group meeting, the stakeholders/developers meeting, discussions with planning staff,
and BFJ observations.
Development Potential
Residential: The larger Hannafords site zoning allows residential use but doesn't require it. (The C1-R15
zoning is permissive). Multi-family development is not likely to be the owner's preference. The city will have to
decide what it wants here and if the zoning has to be changed to require high density housing. Other
residential potential can be found in infill development (e.g., Olde Orchard Park), redevelopment (e.g.,
Section 8 garden apartments), and rezoned parcels (e.g.,The Crate Escape). The planning questions require
decisions on where mixed-uses are desired, at what density, and what road links are needed to make it
happen.
Economic: South Burlington's portion of Route 7 appears to be experiencing a natural turn-over of vintage
properties (e.g., Tuscan Kitchen) and development of greenfield sites. The planning questions thus focus on
recruiting businesses and ensuring good design. Are commercial applications and change-of-use
applications efficiently managed? Do the parking requirements and traffic overly district help or hinder
MEMORANDUM
Date: September 22, 2009 Page 30 of 31
From: Harlan Sexton AICP, Senior Associate;
Rashi Puri, Urban Designer
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
economic development? Is the high quality design of new buildings a function of luck or good design
regulations? If the DRB needs clear design regulations, they should be similar to the SEQ Regulating Plan,
where the emphasis is not on architectural style but on good urban design. As with Williston Road, there is
tension between the reviewing boards and builders about parking lot placement. The city should have a
standard, that is then applied on a case-by-case basis. In some locations, entry doors placed at the
building's corner have worked well, and in others (the McDonald's on Shelburne Road), the customers are
directed into parking lot traffic. Overall, the long-range design goal may be to transform the dominating
vehicle orientation of Route 7 businesses into an orientation that blends in a pedestrian approach.
The two main sections of Shelburne Road (divided at Holmes Road/IDX Drive) already have somewhat
different characters. Future planning should keep this, rather than homogenizing the whole corridor. The
northern area is more of a commercial and mixed-use corridor, where there may be potential nodes of
greater intensity, perhaps between Swift Street and Hannaford Drive/Laurel Hill Drive. South of the break at
Holmes Road/IDX Drive, development character should be lower density, with deeper setbacks, and rural
landscaping. If another density node is desired to serve residents and employees in this area, it should build
upon the existing commercial cluster south of Harbor View Road and use the development potential of the
light industrial area off Nesti Drive.
Last, the Traffic Overlay District is mapped on the full length of Shelburne Road. It also somewhat covers the
intersections with Swift Street and Queen City Park Road. The TOD reportedly works well but leads to lot
assemblage in order for one use to obtain the necessary approvals, rather than multiple or mixed-uses on a
lot.
Circulation and Landscaping
Overall, vehicle traffic works well on Route 7. Future planning should focus on completing internal road
links, providing access to the rear of deep lots, completing intersections, and the pedestrian experience. It is
difficult for walkers and cyclists to cross Shelburne Road. This may require adjustments in signal timing, more
crosswalks, pedestrian bump-outs to lessen the crossing distance, and/or pedestrian refuges on a
landscaped median. Additional crosswalks will be key once CCTA goes to backbone service on Shelburne
Road. Sidewalks on Shelburne Road seem sufficient, but could be more sheltered by trees. They are
detached a good distance from the traffic and provide an adequate sense of protection.
The quality of the walking experience on the secondary (internal) roads is different, and may require different
standards than Shelburne Road itself. The secondary systems are Fayette Road and potentially Green
Mountain Road/Harbor View Road and the Allenwood access system for 300 units. Planning should identify
sidewalk widths, enlarged paved areas for benches, and a street tree character - all of which may be more
urban in character than Shelburne Road.
MEMORANDUM
Date: September 22, 2009 Page 31 of 31
From: Harlan Sexton AICP, Senior Associate;
Rashi Puri, Urban Designer
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
The second design linkage between circulation and landscaping involves gateways. Typically gateways
combine elements of road change, signs, and landscaping to capture drivers' attention. The southern end of
Shelburne Road should distinguish between Shelburne and South Burlington. The gateway here is between
the two municipalities and also to introduce Shelburne Road itself. Planning should identify the best available
site, even if it is not right at the city line. A new intersection at Harbor View Road may provide the best
opportunity. A northern gateway is more likely to simply mark the beginning of moderately intense
commercial development.
Workshop Report
BFJ PLANNING November 2, 2009
TABLE OF CONTENTS
INTRODUCTION ......................................................................................................... 3
WORKSHOP ............................................................................................................... 5
WILLISTON ROAD ....................................................................................................... 6
SHELBURNE ROAD .................................................................................................... 12
AGENDA .................................................................................................................. 15
SLIDESHOW ............................................................................................................. 16
DISCUSSION QUESTIONS ON WILLISTON ROAD ........................................................ 20
DISCUSSION QUESTIONS ON SHELBURNE ROAD ....................................................... 23
City of South Burlington: Cars to People Project 2
Workshop #1, October 21, 2009 (BFJ Planning)
INTRODUCTION
“South Burlington is a city in transition. Long a suburban/rural community with prominent
commercial corridors providing services to automobile travelers, it has witnessed substantial infill
growth in recent years [absorbing 20% of the Vermont’s total population growth since 2000].
Located in the growing heart of Chittenden County, it has reached a point of being able to – and
in some ways, needing to – develop a new relationship between transportation and land use.
Williston and Shelburne Roads are generally not pedestrian-friendly environments. The location,
siting, massing, and orientation of buildings along these key commercial corridors [Williston
Road and Shelburne Road] encourage automobile use over all other modes of transportation.
They also create barriers to neighboring residential neighborhoods, which is counter to many of
the City’s development goals.”
City of South Burlington, Planning & Zoning Department
The Planning and Zoning Department has undertaken a long-range planning project called Cars
to People to implement the city’s Comprehensive Plan goals (listed below) for Williston and
Shelburne Roads:
• Economic development: Continued
investment through infill & conversion;
local & regional shopping
/employment
• Character: Good urban design, mix of
land uses, residential development
desired
• Circulation: More pedestrian, bike &
transit use, less travel distance
(shared parking, road links)
The Cars to People study areas are Williston Road
(Route2) and Shelburne Road (Route 7). In each
case, the study area encompasses the road’s full
length in South Burlington. Williston Road runs
roughly east-west from the city line with
Burlington on the west and Williston on the east.
It is defined by the I-89 interchange to the far
west, and a gradually decreasing density as the
road travels east towards the Town of Williston.
Shelburne Road is South Burlington’s portion of
one of Vermont’s important state routes. Route 7
runs north-south and connects the city to
Burlington on the north and Shelburne on the
south. A significant interchange also defines
City of South Burlington: Cars to People Project 3
Workshop #1, October 21, 2009 (BFJ Planning)
Shelburne Road: near its northern boundary with the City of Burlington, Route 7 and the 189
connector intersect. Its character shifts towards decreased density and somewhat deeper setbacks
as it crosses IDX Boulevard and travels south towards the Town of Shelburne.
The end result of Cars to People is to be new development controls encouraging pedestrian-scale
development in these heavily trafficked areas. The Cars to People goal is to “revise [the City’s]
Land Development Regulations (combined zoning and subdivision regulations) to foster a
transformation of existing built environments from auto-dependency to human-scale places
served by multiple transportation nodes. At the core of such a transition will be the redevelopment
of individual properties along these corridors….The toolbox of solutions will need to account for
current realities in addition to fostering a more mixed-use, pedestrian-scale environment for the
future. In the short term, businesses will continue to rely on automobile traffic for the majority of
their customers. The Land Development Regulations will need to recognize this need while at the
same time creating the conditions under which public transit, walking, and cycling will thrive over
time.”
In order to arrive at these toolbox recommendations, the city organized a Working Group to
advise staff planner and the consulting firm BFJ Planning. The project began in the summer of
2009 and will end in early spring 2010. There are three phases to the project: (1) data-
gathering and analysis, (2) creating the toolbox elements, and (3) writing the final report. BFJ
Planning meets with the Working Group and staff every six weeks. There will be two public
workshops held during the planning process and one meeting with stakeholders in the city’s
development community. This report documents the first workshop.
City of South Burlington: Cars to People Project 4
Workshop #1, October 21, 2009 (BFJ Planning)
WORKSHOP
The workshop was held on the evening of October 21, 2009 at the Holiday Inn on Williston Road
in South Burlington. There were about 35 people attending, along with members of the Working
Group, staff, and consulting planners. The evening was organized in three parts. (See attached
agenda.) Harlan Sexton AICP, BFJ Planning, presented a slideshow on the existing conditions and
planning issues found on Williston and Shelburne Roads. (See attached PowerPoint handout.) The
public then worked in small groups to discuss the two corridors. Attendees could choose a
Williston Road table or a Shelburne Table. Four Williston Road tables were created, and one
Shelburne Road table. Discussion time lasted about 45 minutes. The discussions were organized
via a set of questions given to the facilitator at each table. (See attached questions.) One person
at each table was the designated scribing, writing down what the participants said. Each table
also had a map of its study area to be marked up. The workshop concluded with one person
from each group reporting to the larger reassembled audience, summarizing the table
discussion.
In order to provide a record of the group discussions, BFJ Planning kept the table notes and
annotated maps. The bulk of this report transcribes the table and map notes. Notes from the
three Williston Road tables and maps are combined for the reader’s ease.
This report also includes comments that the Planning staff received from South Burlington
residents who could not be at the workshop.
City of South Burlington: Cars to People Project 5
Workshop #1, October 21, 2009 (BFJ Planning)
WILLISTON ROAD
Each of the three Williston Road tables had a list
of questions to work through. This list is
included towards the end of this report. The
questions were intended to jump-start a
discussion about the road; there was no
expectation that participants would be able to
get through all the questions or get through
them in similar detail. Often, as discussants
answered one question, other questions would
be answered at the same time. Given this, the
notes below are presented in themes rather
than rigidly following the question format.
Nearly all the discussion on Williston Road focused on the area west of the residential central
section. The lack of discussion on this central area should be understood as complete support for
the City’s established goal of protecting this area from commercial encroachment. Towards the
end of this summary the reader will find comments on the eastern portion of Williston Road, past
Kennedy Drive.
It is worth noting that a number of participants cited the difficulties in the stretch of road from
UVM to Hinesburg Road and also their enjoyment of living and shopping in that same area. They
appreciate being able to walk, ride their bikes, or take the bus to the post office, bank, grocery
store, restaurants, bus stops, playground and school, and businesses. It “feels good, could look
better. Reduces our global footprints or in this case adds them in a gentle way.”
SHOPPING. The following are the most frequently used stores or visited areas on Williston Road.
Areas near Williston Road were also mentioned.
• Section between Hinesburg Road and Dorset Road is the most travelled.
• Price Chopper, RiteAid, Aubuchon Hardware, Cheese Traders, Ace Hardware, University
Mall, Healthy Living, Kinney’s, Central School.
• Off Williston: (1) Dorset Street - Barnes & Noble and the U Mall are major destinations, (2)
Hannaford Supermarket on Shelburne Road.
• Enjoyed: Variety of businesses in the Hinesburg Road area
• Williston Road for [should primarily serve the] community, instead of through [drivers].
GETTING TO SHOPPING. Many comments concerned how people get to the stores on Williston
Road by avoiding walking or driving on Williston for any length.
• Alternate routes are used to avoid Route 2 at all costs. Want to walk but avoid walking on
Williston Road; instead, cut through side streets and paths. Will walk along Market Street to
avoid Williston Road. Will cut down side streets to avoid Williston Road. Will walk along
Patchen Road to Williston Road. Will get to Williston Road from the triangle at Hinesburg
Road/White Street. Everyone takes alternate routes to get off or avoid Williston Road – afraid
of accidents, cars, debris.
City of South Burlington: Cars to People Project 6
Workshop #1, October 21, 2009 (BFJ Planning)
• Redesign the entrances and exits to
businesses in the Dorset-to-White Street
part. Control the on-off from Williston
Road. More green space; less pavement.
• Interconnected paths are needed. More
crosswalks needed. Minimize curb cuts
along Williston Road. Consolidate curb
cuts. Create planned connections behind
businesses.
• More buses are needed every 15 minutes.
PARKING BEHIND THE STORES ON THE NORTH SIDE. Participants know about the
interconnected lots and have reactions and recommendations.
• Yes to using the parking lot connections especially on the north side of the road, but it’s a
jungle; too many curb cuts. Parking lots are not well-marked; very dangerous. No [apparent]
system.
• Parking lots need new entrances, one at each end, so traffic flows in a controlled manner.
• Need better management of connections between parking lots on the north side of the street.
BIKING. Many of the participants had first-hand experience bicycling on Williston. Some are
willing to try once the road is safer for bicycles.
• Bicycles on sidewalks – dangerous, but it’s also dangerous to ride on Williston Road. One
comment: “I know I should bike in the road, but I am terrified of it.” Clover Path [?] behind
the Windjammer Inn is used. Cloverleaf area at interchange very dangerous for bicycles.
Good chance of getting hit on bicycle entrance and exit. Too many curb cuts on Williston
Road; need access road.
• Not enough bike racks. Would like more bike racks at Price Chopper and Blockbuster.
• Reduce Williston Road to three lanes with one being a bike path. Try a combined bus/bike
lane. Bicycles lanes should be asphalt and not concrete.
• Storm drains need work; are a problem for bicyclists.
WALKING AND SIDEWALKS. There were more comments on the quality of sidewalks and the
walking experience than on any other question. Participants reported that they do try to go from
store to store on foot.
Sidewalks and Connections
• One constant is the inconsistent sidewalks along Williston Road and its side streets.
• North side of road is used more frequently for walking than south side. More connections are
needed between sidewalks and businesses. Don’t want to have to walk through parking lots,
when parking is behind buildings.
City of South Burlington: Cars to People Project 7
Workshop #1, October 21, 2009 (BFJ Planning)
• Sidewalks and bicycle paths: the road forces
the path near the sidewalk. Have a sidewalk
and a bike path in the road. Sidewalk is too
close to road; very narrow. Sidewalks are
too narrow for bikes and walkers. Sidewalks
are so close to the road that there is the risk
of getting soaked from passing cars if there
has been a recent rain. Widen the sidewalks.
Create a berm or barrier from the street.
Trees are needed between sidewalk and
road.
• Sidewalk in front of Holiday Inn is sunk,
rough, deteriorating. Paths behind Holiday
Inn are useful.
• The sidewalk disappears in front of the post office. Need ability to get to the Post Office boxes
on both sides of the street at the Post Office.
• Walking is better east of Hinesburg Road. The sidewalk from Hinesburg Road to Kennedy
Drive should be like the Kennedy Drive sidewalk.
Crosswalks and Intersections
• Williston and Hinesburg are terrible intersections to walk through. “I would not let my eight
year old walk on either [Williston or Shelburne Roads] or ride her bike. Think of the people
that walk over the bridges on Williston road. Even worse in the winter when our Public Works
people plow in the sidewalks, and no sidewalk plow right there to remove for our walking
residents, this also occurs on Shelburne Road.” Safe crosswalks are #1 need; there is no path
between the sidewalks and businesses. Safe crosswalks and better connections are needed
between north and south side of road. Not enough time at intersections for pedestrians to
cross.
• Cars going through red lights are a problem.
• Keep in mind that students do walk to the middle and high schools.
Good Models
• Use Mall as an example: the trees and sidewalks lead you to the mall.
• Improvements to Shelburne Road seem great.
• “The best bike paths are the ones that are separated from the road, like Kennedy Drive and
Swift Street. Those are great!”
• A “Kennedy Drive” style bike path is needed on north side of Williston Road, or a “Dorset
style” bike path.
• Long block between Hinesburg Road and Kennedy Drive: “very few businesses, very
residential feel for such a busy road. Walking along this stretch is much more peaceful and
safe because there aren’t as many entrances and exits from businesses here as there are on
other sections of Williston Road.”
FINDING THE GATEWAY. Participants were asked what they consider to be South Burlington’s
“entry” or “gateway. “ They were also asked what improvements were needed.
City of South Burlington: Cars to People Project 8
Workshop #1, October 21, 2009 (BFJ Planning)
• Areas identified as gateways or have
potential to be gateways: UVM area on
Main Street, strip mall [Chicken Charlies’
strip?], Dorset Street, and Muddy Brook at
city line. There should be a sign and
sculpture at the Muddy Brook line.
• Plant large trees. Improve lighting. Bury
electric lines. Need public art at Dorset
Street as gateway, drawing upon the
mountain-scape visible at this junction.
NEW DEVELOPMENT. Participants feels Williston Road could absorb more development in
certain areas. However, the Whole Foods development proposal concerns them.
• More development, especially retail, is needed along the eastern portion (east of Kennedy
Drive). The stretch of road east of Shunpike is underutilized. Another grocery store is needed
along Williston Road.
• More pedestrian-friendly development west of Kennedy Drive: rethink parking, green space
needed, reduce number of curb cuts.
• “Hope (and pray) that this residential character [of the central section of Williston Road] would
be preserved. There are many, many homes on and adjacent to this road and they are, for
the most part, very well maintained. This is what makes the area so livable.”
• Concerned about the placement of the planned Whole Foods and the effect on
Dorset/Williston intersection. Whole Foods is seen as a threat to the following Comprehensive
Plan goals for the west side of Williston Road:
o Fewer curb cuts
o Reduction in traffic lanes
DESIGN QUALITY. Participants noted a natural break in the character of Williston Road, from
Dorset Street to Hinesburg Road and Hinesburg Road to Kennedy Drive. They would like to see
aesthetic improvements in all the commercial areas, drawing upon the examples of other places.
Issues
• The White Street triangle is junky and needs a complete redesign.
• The area near Earls Cyclery & Fitness (Valley Road) is hostile to pedestrians.
• Essential point: Route 2 is grubby.
Improvements
• Storefronts should be closer to Williston Road, with parking to the side or rear and more
direct pedestrian access to businesses. This would make the businesses pedestrian friendly.
Stores close to the road with parking on side or in back, so walkers and bikers don't have to
risk their lives getting across the parking lot.
• Encourage shared parking lots or parking garages instead of lots for individual stores. That
way people can park, then visit several places on foot. Create incentives for having small or
shared parking lots. There needs to be enough parking close by, but not necessarily at the
front door.
City of South Burlington: Cars to People Project 9
Workshop #1, October 21, 2009 (BFJ Planning)
• Prominent bike racks at every business.
• On-street parking is good. It creates a
buffer between walkers and drivers, and
creates obstacles in the road that slow
people down.
• Commercial buildings with residential
rentals on top are good because they put
people in the area without them having to
drive there.
• Encourage businesses that people who like
to walk and bike want to visit. Chain
restaurants and car dealerships are not the
types of businesses that people usually walk
or bike to.
• Landscaping: street trees would improve aesthetics; large trees are better than small trees.
Plant trees between road and sidewalk.
• Bury the utility poles. Add public spaces: parks, picnic tables, bike racks.
• Apply a Design Review District be applied to Williston Road.
• Favorite aspects of the road: Northfield Savings Bank, Moes (no curb cuts), Starbucks,
McDonalds. Stone walls are nice in front of LaQuinta. Landscaping at Zachary’s and Al’s.
Being able to walk up to services.
• Improvement in Essex: great; buried power lines. Brattleboro and Seattle are also a good
examples.
ROADWAY IMPROVEMENTS. Participants were asked if certain roadway improvements would
help or hurt Williston Road’s character. They noted the planned improvement in CCTA corridor
service.
• Biking and pedestrian use feel very left out. The route is vehicle-friendly. Support a bike path
behind the north side businesses.
• Get rid of the White Street triangle. Connect Mary Street to Market Street for pedestrians and
bicyclers.
WILLISTON ROAD, EASTERN SECTION. While participants had less to say about the stretch of
road east of Kennedy Drive, there is support for some additional development, and greater
bicycle- and pedestrian-friendliness.
• Industrial/Commercial Zone – not in favor of more industrial use, but would consider “lite”
industrial. Prefer retail and commercial, not industrial. Is there room for development at
Aviation Avenue, around the Pour House/Avis rentals? Airport area: Can there be a park-
and-ride in the area where the houses will be torn down? Kennedy Drive area is congested
due to airport. Can there be public transport to the airport?
• Need bike path east of Hinesburg Road on the south side. The section down by Earl’s Cyclery
& Fitness (Valley Road) is hostile to pedestrians. Needs a sidewalk or bike path.
• What kind of effect would a new interchange on the interstate have on Williston Road?
City of South Burlington: Cars to People Project 10
Workshop #1, October 21, 2009 (BFJ Planning)
MAJOR IMPLEMENTATION MEASURES. As a summary, the following are the actions the
participants listed that would best accomplish the Comprehensive Plan goals for Williston Road to
have safe pedestrian and bicycle circulation, more use of public transportation services, shared
parking opportunities, and some moderate density housing in a primarily commercial
environment.
• Formalize the pedestrian connections. Create pedestrian pathways behind businesses.
Parking lots on north side need to be redesigned to develop a café/pedestrian feel, with
beautiful natural areas.
• Enhance crosswalks: more visible, use textured bricks, more time for walkers to cross, middle
islands (pedestrian refuges); clear visibility for pedestrian crossings. Create mid-block
crossings.
• Change Williston Road lanes: (1) Remove one lane from Williston Road (example: Paris;
motorists soon learned to take public transportation as opposed to driving), (2) dedicate a
turn lane (example: Pearl Street in Essex), or (3) dedicatee a bicycle lane (example: Essex) or
bus and bicycle lane. Bike lanes need to be visible and well-travelled for safety
City of South Burlington: Cars to People Project 11
Workshop #1, October 21, 2009 (BFJ Planning)
SHELBURNE ROAD
The one Shelburne Road table had a list of
questions to work through. This list is included
towards the end of this report. The questions
were intended to jump-start a discussion about
the road; there was no expectation that
participants would be able to get through all
the questions or get through them in similar
detail. Often, as discussants answered one
question, other questions would be answered
at the same time.
SHOPPING. The following are the most frequented businesses: Hannaford Supermarket, the
banks, Shaws, Creative Habitat, Twin Oaks Sports & Fitness, and Price Chopper.
GETTING TO SHOPPING and PARKING. Participants mostly drive to the commercial corridor,
with one person walking and one bicycling. They use the parking lot connections between the
stores if they are able to combine shopping trips, noting that this is easier for a
Hannaford/Lowe’s trip and even a Shaws/Price Chopper trip.
WALKING AND BICYCLING. As with Williston Road, there was substantial discussion about
making Shelburne Road more walking- and biking-friendly. Everyone at the table has walked the
sidewalk along the road. The conversation also covered how children walk to the local school.
Crosswalks and Intersections
• Crossing Shelburne Road as a bicyclist or pedestrian is a real problem, even harder with
children. No place for kids to cross Shelburne Road to get to Orchard School. I-189 crossing
is impossible to cross ever.
• “Walking along Shelburne Road is not too difficult. My family and I occasionally walk along
the bike path from Stonehedge through to Laurel Hill Road. The biggest obstacle for us is
crossing Shelburne Road, in particular at the intersection of Queen City Park Road. It is very
challenging, especially crossing from west to east, where many cars take a right turn on red
even when the light indicates they are not permitted to do so.”
• Crosswalks need to be well-marked.
• “While I ride my bike to Shaw's and visit Creative Habitat, and visit a client, HomeShare
Vermont, all in one bike ride, or drive if the weather is bad, it has never occurred to me to
also cross Shelburne Rd. and go to Price Chopper and the stores in that mall in the same trip.
The reason it has never occurred to me is there is no reasonable pedestrian crossing there.
That further led me to think about the one most important thing S. Burlington could do as
soon as possible on Shelburne Rd. is to establish 4 clear, well marked, four way stop
pedestrian crossings ( at Shaw's, Orchard School, Hannaford's and somewhere further south)
and while you are at it, perhaps you could do the same for the corner of Swift and Spear
which is a nightmare of a crossing for pedestrians and cars as well. That traffic light really
needs to be upgraded to a light that indicated when right turns can and cannot be made.
City of South Burlington: Cars to People Project 12
Workshop #1, October 21, 2009 (BFJ Planning)
The little square light off to the right of the
Swift St. is just not user friendly because it
takes your eyes off the traffic light itself.
• At Queen City Park Road, cars stop in all
directions. At other crosswalks, cars don’t
stop.
• “Right on red” [is] terrible [for bicyclists
and pedestrians.]. Mark pedestrian traffic
lights.
Bicycle Lane
• “The bike lanes on Shelburne road are
pretty much useless. They are just a
shoulder with a bike painted in them. To
make them more useful, they should be at least twice as wide, and be kept clean of debris.
Most cyclists I see on Shelburne road are on the sidewalk because they don't feel safe using
the shoulder. “
Improvements Needed
• Connect neighborhoods to rest of town: full pedestrian sidewalk and/or bike path along Allen
Road to connect to Spear Street, connecting neighborhoods west of Spear to Shelburne Road.
Make formal the path from Kearl Lane to Shelburne Road. Swift Street should have full
pedestrian/bikeway. Connect Stone House Village development (off Van Sicklen Road in the
Southeast Quadrant – “This development is essentially cutoff from the rest of the South
Burlington recreation path. There are a number of bikers, walkers, children in Stone House
Village with no safe or easy access to the recreation path. The grade and narrowness of Van
Sicklen Road make it very dangerous for bikers and walkers. [Consider] construction of a
path through the Muddy Brook Preserve owned by Burlington International Airport to the
Dubois Avenue neighborhood [or if] that it is not possible perhaps widening Van Sicklen Road
or construction of a path from Kendrick Drive to Hinesburg road is more feasible.” More
sidewalks or connections between neighborhoods east of Shelburne Road are needed, and
better sidewalks or connections from the neighborhoods to Shelburne Road.
• Involve the Safe Routes to School group at Orchard School.
• Create fund to connect neighborhood with pedestrian/bike path.
NEW DEVELOPMENT and DESIGN.
Participants suggested that Shelburne Road
could absorb more mixed use development
similar to the housing/commercial mix west of
Shaws along Farrell Street. Such development
should include affordable housing. They also
asked for more places “to stop” for coffee or
restaurant visits, so that Shelburne Road trips
are not solely just for going from point A to
point B. The group noted Allen Road as the
gateway into South Burlington.
City of South Burlington: Cars to People Project 13
Workshop #1, October 21, 2009 (BFJ Planning)
SUMMARY OF MAIN ACTIONS NEEDED:
• Pedestrian/bike friendly crossings on Shelburne Road – at least four.
• Multi-use development similar to the Shaws’ area mix of commercial and low cost housing.
• Sidewalks, especially on the roads connecting east and west across Shelburne Road.
• Create bicycle routes and sign them well.
• Create a fund to help connect the dots of bike paths between neighborhoods.
City of South Burlington: Cars to People Project 14
Workshop #1, October 21, 2009 (BFJ Planning)
AGENDA
AGENDA
CARS TO PEOPLE WORKSHOP
October 21, 2009
Holiday Inn
South Burlington, Vermont
1. Welcome and Introductions: Paul Conner, Director of Planning & Zoning 5 minutes
2. “Cars to People” presentation: Harlan Sexton AICP, BFJ Planning 20 minutes
3. Refreshments 10 minutes
4. Small Group Discussions 30 – 40 minutes
a. Williston Road - 5 tables
b. Shelburne Road - 5 tables
5. Report-Back to Whole Workshop 15 – 20 minutes
6. Conclusion
City of South Burlington: Cars to People Project 15
Workshop #1, October 21, 2009 (BFJ Planning)
10/27/2009
16
Williston Road and Shelburne RoadWilliston Road and Shelburne Road
South Burlington, VermontSouth Burlington, Vermont
CARS TO PEOPLECARS TO PEOPLE
Public Workshop
October 21, 2009
Sponsored by
Department of Planning & Zoning BFJ Planning
STUDY AREAS
BFJ Planning
COMP PLAN RECOMMENDATIONS
Economic development: Continued investment through
infill & conversion; local & regional shopping
/employment
Character:Good urban design, mix of land uses,
residential development desired
Circulation: More pedestrian, bike & transit use,
less travel distance (shared parking, road links)
BFJ Planning
PROJECT MANDATE: A TOOLBOX
Now: City in transition
People: substantial growth, 20% of VT population
growth since 2000
Character: rural town to urban center
Needed: New land use / circulation connection
Focus: Williston & Shelburne Roads
Goal: Transform built environment from auto-only to
car/walker/bicycle mix
BFJ Planning
TIMETABLE
BFJ Planning
Team: City Planning Staff, Working Group, BFJ Planning
Public Outreach
WILLISTON ROAD
BFJ Planning
10/27/2009
17
WEST SECTION
BFJ Planning
Split “entry” into City
Interchange & major intersection
Uses: regional highway commercial
Utilitarian public space
Primarily retail: local, national
Low-scale businesses (sub-zoning)
Design: signs, driveways, landscaping
Interconnected lots
Residential emerges; transition
Offset intersection
Same zoning; different character
CENTRAL / RESIDENTIAL
BFJ Planning
10/27/2009
18
EAST SECTION
Distinct change to route, not street
Highway commercial + houses
Varied setbacks, landscaping
Not walker-friendly
SHELBURNE ROAD
BFJ Planning
NORTH END
BFJ Planning
Urban street, seamless city to city
Mix of new & old investment
Farrell Street: new density model
CENTRAL AREA
BFJ Planning
10/27/2009
19
SOUTH END
BFJ Planning
Auto environment + retail
New median, trees, bike lanes
Public spaces: sidewalks, bus stops
Development potential
SMALL GROUPS
Short break (10 minutes)
Tables:
3 each per road
Same format at each table Same format at each table
Each table: facilitator, scribe, questions, maps
Discussion time: 30 minutes
Re-group & report back: final 15 minutes
BFJ Planning
Refreshments Break
WORKSHOP #1 - OCTOBER 21, 2009
SOUTH BURLINGTON – CARS TO PEOPLE PROJECT
WILLISTON ROAD PLANNING ISSUES
FACILITATOR:
• Go around the table asking people to introduce themselves and state where they live in
South Burlington.
• Ask for a volunteer “scribe” – someone who will write down the gist of what each person
says on the supplied paper.
• Work through the questions below in order, giving everyone a chance to answer. Some
questions are similar to others in order to stimulate thinking and talking. Welcome all
ideas. Encourage everyone to speak up and to listen to each other.
• PLEASE MARK UP THE MAP WITH IDEAS.
• At the end, ask for a volunteer “reporter” – someone who will summarize the table’s
discussion in front of the whole workshop group.
DISCUSSION QUESTIONS ON WILLISTON ROAD:
• Which part of Williston Road do you most frequent? Where do you shop for everyday items?
Where do you shop for specialty items?
• How do you get to Williston Road? How easy or difficult is it for you to navigate the road, find
parking or a bike rack, move from store to store? What would it take for you to park your car
once and then walk to the stores or businesses you need?
• Do you use the parking lot connections behind the stores on the north side of the road?
Which ones do you use most often? How could these connections be improved? Where are
new connections needed?
• Have you walked along the sidewalks? Describe that experience. Which sections of sidewalk
are more pleasant than others?
• If you walk from a nearby neighborhood, do you use both sides of Williston Road, or find
yourself on just one side?
• Do your children walk to school? What route do they take? Can this be improved?
• Where do you consider the South Burlington “entry” or “gateway” to be? Describe how it
looks now. How could this area be improved?
City of South Burlington: Cars to People Project 20
Workshop #1, October 21, 2009 (BFJ Planning)
• Which parts of Williston Road could absorb more development: more stores or businesses
and/or apartments over businesses? Can you locate specific blocks or sites where
redevelopment would be welcome? Conversely, are there areas that should not be changed?
• Identify the natural breaks in the character of Williston Road – where the road’s character
visibly changes. Are these good and pleasing changes or do they signal deterioration in
character?
• What do you think about the design quality of the buildings and landscaping along Williston
Road? Would design guidelines be useful or not? What are your preferred building features
for commercial areas like Williston Road?
• Describe your favorite aspect of Williston Road’s character. Is it changing?
• Which recent development has echoed or reinforced Williston Road’s best character? Which
has threatened it? Describe how.
• Is there another VT town whose commercial streets look the way you’d like Williston Road to
look? Describe why these places are attractive to you.
• If you moved away, and returned in ten years, what positive changes would you hope to see
with regard to Williston Road’s character?
• Do you have family or friends who have stayed at hotels on Williston Road? Have they
shopped on Williston? Did they walk to the stores? How did they describe the area?
• Which roadway improvements to Williston Road would help or hurt its character? These might
include new road connections, re-aligned intersections, widening (more travel lanes), left turn
lanes, widened sidewalks, changes in traffic signal timing, dedicated bicycle lanes.
• If all the discussion has focused on the western section of Williston Road (west of Kennedy
Drive), shift gears and describe the eastern section. What is this section’s best feature, and its
worst? How could this section be made distinctive?
• South Burlington’s Comprehensive Plan calls for Williston Road to have safe pedestrian and
bicycle circulation, more use of public transportation services, shared parking opportunities,
and some moderate density housing in a primarily commercial environment.
o Name three actions (private or public/municipal) that would accomplish this.
City of South Burlington: Cars to People Project 21
Workshop #1, October 21, 2009 (BFJ Planning)
DISCUSSION QUESTIONS ON SHELBURNE ROAD (if there is time):
• South Burlington’s Comprehensive Plan calls for Shelburne Road to have safe pedestrian and
bicycle circulation, more use of public transportation services, shared parking opportunities,
and some moderate density housing in a primarily commercial environment.
o Name three existing features that hinder this vision.
o Name three actions (private or public/municipal) that would accomplish this.
City of South Burlington: Cars to People Project 22
Workshop #1, October 21, 2009 (BFJ Planning)
WORKSHOP #1 - OCTOBER 21, 2009
SOUTH BURLINGTON – CARS TO PEOPLE PROJECT
SHELBURNE ROAD PLANNING ISSUES
FACILITATOR:
• Go around the table asking people to introduce themselves and state where they live in
South Burlington.
• Ask for a volunteer “scribe” – someone who will write down the gist of what each person
says on the supplied paper.
• Work through the questions below in order, giving everyone a chance to answer. Some
questions are similar to others in order to stimulate thinking and talking. Welcome all
ideas. Encourage everyone to speak up and to listen to each other.
• PLEASE MARK UP THE MAP WITH IDEAS.
• At the end, ask for a volunteer “reporter” – someone who will summarize the table’s
discussion in front of the whole workshop group.
DISCUSSION QUESTIONS ON SHELBURNE ROAD:
• Which part of Shelburne Road do you most frequent? Where do you shop for everyday items?
Where do you shop for specialty items?
• How do you get to Shelburne Road? What would it take for you to park your car once and
then walk to the stores or businesses you need?
• Do you use the parking lot connections between stores? How could these connections be
improved? Where are new connections needed?
• Have you walked along the sidewalks? Describe that experience. Which sections of sidewalk
are more pleasant than others?
• Do your children walk to school? What route do they take? Can this be improved?
• Where do you consider the South Burlington “entry” or “gateway” to be? Describe how it
looks now. How could this area be improved?
• Which parts of Shelburne Road could absorb more development: more stores or businesses
and/or apartments over businesses? Can you locate specific blocks or sites where
redevelopment would be welcome? Conversely, are there areas that should not be changed?
• Identify the natural breaks in the character of Shelburne Road – where the road’s character
visibly changes. Are these good and pleasing changes or do they signal deterioration in
character?
City of South Burlington: Cars to People Project 23
Workshop #1, October 21, 2009 (BFJ Planning)
City of South Burlington: Cars to People Project 24
Workshop #1, October 21, 2009 (BFJ Planning)
• What do you think about the design quality of the buildings and landscaping along Shelburne
Road? Would design guidelines be useful or not? What are your preferred building features
for commercial areas like Shelburne Road?
• Describe your favorite aspect of Shelburne Road’s character. Is it changing?
• Which recent development has echoed or reinforced Shelburne Road’s best character? Which
has threatened it? Describe how.
• Is there another VT town whose commercial roads look the way you’d like Shelburne Road to
look? Describe why these places are attractive to you.
• If you moved away, and returned in ten years, what positive changes would you hope to see
with regard to Shelburne Road’s character?
• Shelburne Road has newly planted street trees and a landscaped median. Are they other
roadway improvements that would help the road’s character? These might include more road
connections, left turn lanes, widened sidewalks, more crosswalks, changes in traffic signal
timing.
• South Burlington’s Comprehensive Plan calls for Shelburne Road to have safe pedestrian and
bicycle circulation, more use of public transportation services, shared parking opportunities,
and some moderate density housing in a primarily commercial environment.
o Name three actions (private or public/municipal) that would accomplish this.
DISCUSSION QUESTIONS ON WILLISTON ROAD (if there is time):
• South Burlington’s Comprehensive Plan calls for Williston Road to have safe pedestrian and
bicycle circulation, more use of public transportation services, shared parking opportunities,
and some moderate density housing in a primarily commercial environment.
o Name three existing features that hinder this vision.
o Name three actions (private or public/municipal) that would accomplish this.
CARS TO PEOPLE
SOUTH BURLINGTON, VERMONT
DRAFT REPORT
BFJ PLANNING
November 10, 2009
2
CARS TO PEOPLE
SOUTH BURLINGTON, VERMONT
DRAFT REPORT
November 10, 2009
PREPARED FOR:
City of South Burlington Planning & Zoning Department
Cars to People Working Group
PREPARED BY:
BFJ PLANNING
115 Fifth Avenue
New York, NY 10003
3
TABLE OF CONTENTS PAGE
1.0 INTRODUCTION : PROJECT BACKGROUND 5
1.1 Project Background 5
1.2 Study Areas 5
1.3 Comprehensive Plan Goals and Recommendations 6
Figure 1.1: South Burlington: Study Areas 7
1.4 Land Development Regulations in the Study Areas 8
Table 1.1: Study Areas Zoning 9
Figure 1.2: City-Wide Zoning Map 10
Figure 1.3: Williston Road Zoning 11
Figure 1.4: Shelburne Road Zoning 13
2.0 STUDY AREA: WILLISTON ROAD 15
2.1 East Terrace/City Line to Cottage Grove Avenue 15
Figure 2.1: Williston Road: West Section 16
Figure 2.2: Selected Land Uses 17
Figure 2.3: Banks and Hotels 18
Figure 2.4: Strip Centers 19
Figure 2.5: Intersections and Small Businesses 20
2.2 Heath Street to Victoria Drive 23
Figure 2.6: Williston Road: Central/Residential 24
Figure 2.7: Building Features 25
Figure 2.8: Sidewalks and Landscaping 26
Figure 2.9: Circulation 27
Figure 2.10: Selected Land Uses 28
2.3 Victoria Drive to Gregory Drive/City Line 29
Figure 2.11: Williston Road: East Section 30
Figure 2.12: Selected Land Uses 31
Figure 2.13: Selected Land Uses 32
FIigure 2.14: Design Features 34
2.4 Williston Road Planning Questions and Preliminary Recommendations 35
4
3.0 STUDY AREA: SHELBURNE ROAD 38
3.1 City Line/Proctor Avenue to I-189 Ramps 38
Figure 3.1: Shelburne Road: North End 39
Figure 3.2: Selected Land Uses 40
3.2 Swift Street to Holmes Road/IDX Drive 41
Figure 3.3: Shelburne Road: Central Area 42
Figure 3.4: Selected Land Uses 43
Figure 3.5: Selected Land Uses 44
Figure 3.6: Design Features 47
3.3 Holmes Road/IDX Drive to City Line/Allen Road 48
Figure 3.7: Shelburne Road: South End 49
Figure 3.8: Roads 50
Figure 3.9: Pedestrian and Bicycle Circulation 51
3.4 Shelburne Road Planning Questions and Preliminary Recommendations 52
ACKNOWLEDGMENTS 55
5
1.0 INTRODUCTION : PROJECT BACKGROUND
1.1 Project Background
South Burlington’s Planning and Zoning Department has undertaken a long-range planning
project called Cars to People. The project focuses on the city’s two major commercial corridors,
Shelburne Road and Williston Road. The end result is to be new development controls
encouraging pedestrian-scale development in these heavily trafficked areas. These controls are
called “the toolbox.” The city recognizes that businesses on both these roads will remain primarily
auto-dependent. But there is potential, in some areas and for some kinds of businesses, for
drivers to park their car once and then walk to a number of stores and services. This is noted in
the city’s Request for Proposals, the first planning document on the project: “South Burlington is a
city in transition. Long a suburban/rural community with prominent commercial corridors
providing services to automobile travelers, it has witnessed substantial infill growth in recent years
[absorbing 20% of the Vermont’s total population growth since 2000]. Located in the growing
heart of Chittenden County, it has reached a point of being able to – and in some ways, needing
to – develop a new relationship between transportation and land use. Williston and Shelburne
Roads are generally not pedestrian-friendly environments. The location, siting, massing, and
orientation of buildings along these key commercial corridors encourage automobile use over all
other modes of transportation. They also create barriers to neighboring residential
neighborhoods, which is counter to many of the City’s development goals.”
The Cars to People goal is to “revise [the City’s] Land Development Regulations (combined
zoning and subdivision regulations) to foster a transformation of existing built environments from
auto-dependency to human-scale places served by multiple transportation nodes. At the core of
such a transition will be the redevelopment of individual properties along these corridors….The
toolbox of solutions will need to account for current realities in addition to fostering a more
mixed-use, pedestrian-scale environment for the future. In the short term, businesses will continue
to rely on automobile traffic for the majority of their customers. The Land Development
Regulations will need to recognize this need while at the same time creating the conditions under
which public transit, walking, and cycling will thrive over time.”
The City hired BFJ Planning and created a working group, directed by Planning and Zoning staff
Paul Conner and Cathyann LaRose. The members represent groups doing long-range planning,
providing transportation services, and investing in local development projects: the South
Burlington Planning Commission, Development Review Board and City Council, the City’s Energy
Committee and Recreation Path Committee, the County Metropolitan Planning Organization and
Transit Authority, Smart Growth Vermont, and the development community. Over the course of
the project, BFJ met with the working group and planning staff, visited the study corridors, and
conducted two public workshops and a stakeholders meeting.
1.2 Study Areas
The study areas are Williston Road (Route2) and Shelburne Road (Route 7). (See Figure 1.1:
South Burlington: Study Areas). In each case, the study area encompasses the road’s full length in
South Burlington. Williston Road runs roughly east-west from the city line with Burlington on the
6
west and Williston on the east. It is defined by the I-89 interchange to the far west, and a
gradually decreasing density as the road travels east towards the Town of Williston. Shelburne
Road is South Burlington’s portion of one of Vermont’s important state routes. Route 7 runs north-
south and connects the city to Burlington on the north and Shelburne on the south. A significant
interchange also defines Shelburne Road: near its northern boundary with the City of Burlington,
Route 7 and the 189 connector intersect. Its character shifts towards decreased density and
somewhat deeper setbacks as it crosses IDX Boulevard and travels south towards the Town of
Shelburne.
The study areas have a dual purpose in the Cars to People project. The project results in a
toolbox - a set of recommended changes to the LDRs that aim directly at Williston and Shelburne
Roads. Secondarily, the project yields some toolbox concepts that can be used elsewhere in South
Burlington.
1.3 Comprehensive Plan Goals and Recommendations
South Burlington’s 2006 Comprehensive Plan recognized a history of planning for Williston and
Shelburne Roads. The earlier 1995 plan called for “encouraging the transformation of the City's
Williston Road and Shelburne Road corridors into a more attractive, mixed-use, traffic safe
environment.” (p.6). The current plan has called for “continued investment and growth” in
the corridors, to promote economic development, good urban design, increase pedestrian and
bicycle use outside City Center, reduce travel distance, and increase transit use.
The plan’s recommendations are:
Commercial Development and Type: The two corridors should continue to be primarily
commercial, meeting “local and regional shopping and employment needs” but “residential and
industrial can be mixed throughout the area. These centers are generally already developed with
commercial establishments. Therefore, growth will occur primarily as infill or conversion
development. “(p.27). The specific mix of uses should be residential/commercial, or
retail/office/restaurant. The result should be increased “pedestrian movement, use of public
transportation services, and shared parking opportunities.”
Residential Development and Density: The comprehensive plan sees the density of Williston Road
and Shelburne Road as transitional or intermediate. “Moving outward from the proposed urban
core, residential densities transition to moderate density in the Williston Road/White Street area
and Shelburne Road corridor, and then to low moderate density outside of the "core area" and on
the periphery of the City, namely within the SEQ [Southeast Quadrant].” (p.28). The plan defines
SOUTH BURLINGTON, VT
N.T.S.
November 2009
STUDY AREAS FIGURE 1.1: SOUTH BURLINGTON
SOURCE: GOOGLE MAPS
8
moderate density as a range from 1.1 units per acre to 9.95 units per acre. The plan expects that
incentives will be needed to encourage mixed residential/commercial development projects.
Traffic and Circulation: The plan’s transportation chapter describes a “particularly strong” need
on Williston and Shelburne Roads for safe pedestrian and bicycle circulation. The plan
recommends “separate or shared facilities for bicycle/pedestrian use” and a pedestrian phase at
signalized intersections to allow safe passage across these busy roads. (p.114)
The plan’s recommendations for both roads are similar. It is expected that the Cars to People
project will fine tune the recommendations so that each road has its own compartment in the
toolbox. Densities, road connections, building heights and placement on the lot, urban design
concepts, and landscaping, among other controls, will likely vary some between the two
corridors.
This report supports the Comprehensive Plan goals for the two corridors. Both Williston and
Shelburne Roads should have more residences incorporated into or very near the commercial
areas, fulfilling the Cars to People policy of having goods and services within walking distance of
residents.
1.4 Land Development Regulations in the Study Areas
Table 1.1 shows the dimensional regulations and generalized uses controlling the study areas’
zoning, taken from Table C of the Land Development Regulations (LDRs). The dimensional
regulations govern the lot area and building bulk on each lot. The list of uses is generalized from
the specific uses listed in Table C. It is apparent that South Burlington has made progress towards
creating zoning districts that allow a mix of general land uses along its most highly trafficked and
densely developed corridors. (See Figure 1.2: City-Wide Zoning Map). All the primarily non-
residential districts allow a range of commercial, industrial, and public and quasi-public uses.
Three of the non-residential districts - C1(R12), C1(R15), and C2 – also allow mid-density multi-
family uses. The two residential districts – R4 and AR – allow very limited commercial uses.
Williston Road
All but the central part is zoned for primarily commercial activity. (See Figure 1.3: Williston Road
Zoning). The western stretch is zoned Commercial 1- Residential 12, which is a mixed use
commercial district that allows residential uses. There is a small area zoned for City Center use,
at Mary Street, and a small area zoned Institutional & Agricultural North near the University of
Vermont campus. The eastern stretch is a mix of Commercial 1- Residential 12, Commercial 1-
Airport, Mixed Industrial & Commercial, and a small area of Residential 4. The center of Williston
Road is zoned for residential use, with the same Residential 4 zoning as large areas to the north
and south. (This swath of R4 constitutes the core of northern South Burlington.)
With the exception of the residential district and the airport district, the commercial districts on
Williston Road are mapped nowhere else in the city. The Land Development Regulations create
this unique situation in the statement of purpose for Commercial 1 districts: “A Commercial 1
District is hereby formed in order to encourage the location of general retail and office uses in a
manner that serves as or enhances a compact central business area. Other uses that would
Lot Size (min) Residential in Square Feet (sf) Density (max) Building Site Front Side Rear Stories FeetC1 (R12) (Commercial 1 - Residential 12)Multi-family 3,500 sf12 du per lot 40% 70% 30 10 30 3 35/40Non-residential: 40,000 sf na 40% 70% 30 10 30 3 35/40Public & quasi-public usesCommercial usesIndustrial usesCD 1 (Central District 1)C1-AIR (Commercial 1 - Airport)40,000 sfna40% 70% 30 15 30 3 35/40Public & quasi-public usesCommercial usesIndustrial usesIA North (Institutional & Agricultural - North)10 acres na20% 40% 75 50 50 3 35/40AgriculturePublic & quasi-public usesCommercial usesRetail as a principal use limited to 5,000 GFAIC (Mixed Industrial & Commercial)40,000 sfna40% 70% 30 10 30 3 35/40AgriculturePublic & quasi-public usesCommercial usesIndustrial usesR4 (Residential 4)Single family9,500 sf4 du per lot20% 40% 30 10 30 3 35/40Two-family 12,000 sf4 du per lot20% 40% 30 10 30 3 35/40Multi-family6,000 sf 4 du per lot20% 40% 30 10 30 3 35/40Non-residential 40,000 sf na 30% 60% 30 10 30 3 35/40Public and quasi-public usesBed & breakfast C1 (R15) (Commercial 1 - Residential 15)Multi-family 3,500 sf15 du per lot 40% 70% 30 10 30 3 35/40Non-residential 40,000 sf na 40% 70% 30 10 30 3 35/40C1 - AUTO (Commercial 1 - Automobile)40,000 sf na 40% 70% 30 15 30 3 35/40Public & quasi-public usesCommercial usesIndustrial usesC2 (Commercial 2)Multi-family 6,000 sf7 du per lot40% 70% 30 10 30 3 35/40Non-residential 40,000 sfna40% 70% 30 10 30 3 35/40Public & quasi-public usesCommercial usesIndustrial usesAR (Allen Road)Single family6,000 sf12 du per lot 30% 40% 30 10 30 3 35/40Two-family 8,000 sf12 du per lot 30% 40% 30 10 30 3 35/40Multi-family3,500 sf12 du per lot 40% 70% 30 10 30 3 35/40Non-residential 20,000 sfna40% 70% 30 10 30 3 35/40Retail (5,000 GFA max)na40% 70% 30 10 30 3 35/40Study Areas Zoning: Dimensional Regulations and Generalized Uses WILLISTON ROAD (ROUTE 2)SHELBURNE ROAD (ROUTE 7)Coverage (max)Setbacks (ft) Controlled by Article 8, Central District Height (non-waiver)
SOUTH BURLINGTON, VT
N.T.S.
November 2009
FIGURE 1.2: CITY-WIDE ZONING MAP
Willis
t
o
n
R
o
a
d
Shelburne RoadSOURCE: CITY OF SOUTH BURLINGTON
November 2009ZONING AND TAX PARCELS FIGURE 1.3: WILLISTON ROADN.T.S.SOUTH BURLINGTON, VT SOURCE: GIS DATA
12
benefit from nearby access to a central business area, including clustered residential
development and small industrial employers, may be permitted if they do not interfere with
accessibility and continuity of the commercial district.” The LDRs anticipate residential uses in the
C1 District on Williston Road around Dorset Street, spelling out the allowed residential density.
Shelburne Road
Shelburne Road is zoned for commercial use, with residentially zoned areas primarily east of the
corridor. (Figure 1.4: Shelburne Road Zoning). The central portion of the road is zoned
Commercial 1- Automobile. North of these auto dealerships, the road is zoned Commercial 1-
Residential 15, which is a mixed use commercial district that allows residential uses. Most of the
southern stretch is zoned Commercial 2, with a unique district mapped around Allen Road.
As with Williston Road, the zoning on Shelburne Road is found only here in the city, with the
exception of a very small area also zoned Commercial 2 in the north part of the city. The LDRs
statement of purpose for Commercial 1 districts (quoted above) covers Shelburne Road as well as
Williston Road. The LDRs anticipate residential uses in the C1 District on Shelburne Road, spelling
out the allowed residential density.
Development Process
The Development Review Board of South Burlington uses site plan review to approve
development applications. Uses subject to site plan review are known as principal permitted uses,
as stated in LDR Appendix C, Table C-1. (Such uses are also colloquially called as-of-right or by-
right uses.) The process is governed by Article 14 of the LDRs. Site plan approval is required for
1) any new land use, changes in use, or expansion of use in any district, 2) alterations or changes
to approved site plans, 3) new parking lots or expansions of existing lots, and 4) conversions of
residences to non-residential uses. There are exemptions to this list, primarily one- and two-family
houses, forestry, agricultural, and horticultural uses, and renovations and repairs. Application
review is governed by a process and standards detailed in Article 14. A modified version of site
plan review is used for conditional uses (also known as special permit or special exception uses in
other municipalities and states). Development along Williston and Shelburne Roads has been
reviewed and approved using the city’s site plan process.
In addition, South Burlington allows Planned Unit Developments (PUDs), which have their own
approval process. This is appropriate because a PUD is both a physical plan for a site (a
development type) and a legal concept (the process of approving that development type). The
intent of the PUD provision (Article 15) is to “provide for relief from the strict dimensional
standards for individual lots in these Regulations in order to encourage innovation in design and
layout, efficient use of land, and the viability of infill development and re-development in the
City’s Core Area[.]” Article 15 unifies PUD review and subdivision review into one consolidated
process.
The city’s PUD controls are both restrictive and liberal. Table C-1 of the LDRs regulates those
districts and uses where PUDs are allowed. In some districts, certain uses are only allowed if part
of a PUD: the SEQ, Central District, Commercial 1, and Institutional-Agricultural districts have
broad categories of applications that must be processed as PUDs (Article 15.02.B and Table C-
1.) Conversely, the regulations also allow the applicant for any use in any district to apply as a
PUD. The PUD controls allow certain use, density, and zoning boundary adjustments. The
adjustments most used appear to be, first, the automatic setback waiver: in almost every district,
SOUTH BURLINGTON, VT
N.T.S.
November 2009
ZONING & TAX PARCELS FIGURE 1.4: SHELBURNE ROAD
SOURCE: GIS DATA
14
the front, side and rear building setback from a property line can be reduced to five feet. (The
sole exception is the Central District 1, where side yard setbacks cannot be waived.) This has
resulted in development projects where the building is set no more than five feet from the front lot
line, despite the deeper standard setback that may prevail among its neighbors built according to
the base zoning. This irregularity of front yards can be found especially on the east end of
Williston Road. Second, the PUD controls allow lot sizes within the planned development to be
smaller than the base zoning, as long as the overall density is not violated (Article 15.03.B). This
adjustment reportedly works well for multi-lot residential development and is rarely requested for
commercial development. For example, in a four-lot subdivision, three of the lots may be smaller
than the minimum required by base zoning with the fourth being substantially larger, in order to
maintain the overall required density. This flexibility is generally not needed for commercial
construction, given the demand for on-site parking, loading, circulation, landscaping, and
building footprint.
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2.0 STUDY AREA: WILLISTON ROAD
Williston Road (Route 2) is zoned for commercial use at either end of its east-west stretch. These
areas are separated by an R4 residential area. The zoning is Commercial 1- Residential 12,
which is a mixed use commercial district that allows residential uses. There is a small area
commercially zoned for City Center use at Mary Street, and a small area institutionally zoned to
support the University of Vermont (UVM) campus, at the far western end of Route 2 (Institutional &
Agricultural North). The analysis below focuses on Williston Road east of the UVM area. The
area’s character is largely determined by the road’s arterial/collector nature: through traffic uses
Route 2 as a four-lane suburban highway connecting Burlington to the city’s west to Williston, and
towns beyond, to its east. A full clover-leaf I-89 interchange occupies significant land area at its
western end. There is also local traffic on Williston Road, due to the many intersections with local
roads serving moderately dense residential areas north and south of the road. The businesses
here are oriented towards car-driving custom, each business having its own on-site parking.
2.1 East Terrace/City Line to Cottage Grove Avenue
Area Character and Land Uses
The western portion of Williston Road from East Terrace to just east of Cottage Grove Avenue is
primarily zoned and developed for retail uses. (See Figure 2.1: Williston Road: West Section.) The
land uses here are local businesses, national franchises and chains, banks, hotels, restaurants,
entertainment, convenience shopping for local residents, and comparison and tourist-oriented
shopping. (See the following figures for photos of selected land uses.) The road is straight and
flat, lined primarily with low-scale businesses: with the exception of the hotels, nearly all land uses
are one-or one and one-half story. There is little that is distinctive about the road or its
landscaping. As a result, the established design and visual character of this road portion is
created entirely by the businesses, their signs, driveways, and site-by-site landscaping.
All commercial districts on Williston Road (not considering the small frontage of the Central
District) all required a minimum lot size of 40,000 sf. The built character of the western stretch is
much less regular than a standard one-acre lot size would suggest; the western stretch has a mix
of small lots, large lots with single uses, large lots with multiple uses, irregularly shaped lots and
street intersections. The scale is generally substantially lower than the allowed three-story height
would indicate. The building frontages are staggered irregularly, with some set back from the
road in a suburban strip-mall urban design, and other closely fronting the sidewalk as would be
found in a traditional downtown. Site coverage limits (70%) are in line with the 40,000 sf required
lot size and the required yards. If greater density were sought here, this coverage maximum
would likely be too restrictive. The front and rear setbacks are on paper deep, at 30 feet, but in
reality the front yards vary considerably. While all land uses have on-site parking, the businesses
are generally close together, with entrances off the street and thus the sidewalk, enabling
pedestrian access to the stores and services.
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGNovember 2009WILLISTON ROAD FIGURE 2.1: WEST SECTIONN.T.S.SOUTH BURLINGTON, VT SOURCE: GIS DATA
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGNovember 2009WILLISTON ROAD FIGURE 2.2: SELECTED LAND USESAlpine Shop; Cheese TradersOpine Computers Al’s French FrysShell StationMobil Station: Hinesburg RoadVermont Gift Barn
November 2009WILLISTON ROAD FIGURE 2.3: BANKS AND HOTELSHoliday InnChittenden BankSOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGDoubleTree Hotel Northfi eld Savings BankLa Quinta HotelSwiss Host Hotel
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGNovember 2009WILLISTON ROAD FIGURE 2.4: STRIP CENTERSStaples centerPrice Chopper centerSmall Meadows Shopping CenterBlockbuster center
November 2009Hinesburg Road intersectionWhite Street intersectionCottage Grove Road intersectionWILLISTON ROAD FIGURE 2.5: INTERSECTIONS AND SMALL BUSINESSESSOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGMary Street residencesWhite Street mixed-use buildingWhite Street intersection: Travel Agency
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The businesses themselves vary in age and design quality. The businesses fronting on the triangle
created by Williston Road, White Street, and Patchen Road are convenience-oriented and likely
serve a more local residential market than most of the businesses directly fronting on Williston
Road. Some of the Williston Road businesses have a local flavor due to their design: Al’s French
Frys, Cheese Traders, Alpine Shop, Swiss Host Hotel, Vermont Gift Barn, and Zachary’s likely
serve a mix of local and through traffic, but do not have generic corporate designs typically
required for local franchises and operations. Northfield Bank is a good example of a new
building aimed at creating a traditional residential character; it matches the other Northfield
Bank branch in the city and so creates a corporate image without straying too far from the local
architectural tradition. The brick Chittenden Bank is also an attractive updated traditional design.
Most of the lots are occupied by one business, with only a few suburban strip malls. In the area
just east of the interchange, some businesses are stacked: one fronts the road, while another
occupies the rear of the lot. There is no design conformity between the two buildings in these
instances. If commercial design standards are adopted, the city should allow some variety in
order to sustain the character peculiar to Williston Road, as shown by some of the existing
businesses. The intent should be to allow redevelopment without homogenizing the appearance
of Williston Road so that it loses its local flavor.
Blocks and Lots
The north side and south side of Williston Road do not have mirror image blocks. The north side
has just three intersections, the off-set one with White Street/Midas Drive, the four-way
intersection with Patchen Road/Hinesburg Road, and the intersection with Cottage Grove Avenue.
These intersections are close to one another and irregularly spaced. The long stretch from the
interchange ramps/ Dorset Street (south side of Williston Road) to White/Midas has no formal
blocks, only a number of curb cuts leading to connected parking lots. This creates a design
character that is both choppy, due to the irregularly sized lots and curb cuts, and unrelieved or
monolithic.
The south side of this part of Williston Road has only one more intersection than the north side,
but is more regularly divided into blocks and intersections. Moving east from the Dorset Street
intersection, the intersections with Mary Street, Midas Drive, and Hinesburg Road follow one
another in somewhat predictable spacing. The street frontages of the lots vary some, but are
more regular than on the north side. Anecdotally, BFJ noted that more pedestrians walk on the
south side than the north side, perhaps due to the smaller scale of the established design
character.
As mentioned above, the lots vary in size and street frontage. However, the Holiday Inn, Best
Western, Price Chopper center, and DoubleTree Hotel sites have relatively narrow frontage
compared to their depth. This characteristic helps the road feel somewhat uniform in lot spacing.
The buildings themselves are varied in their placement on their lots. As can be seen in the
photographs, some have an urban placement where the buildings are placed close to the
sidewalk and have their parking to side and rear. Others have been sited in a suburban style,
with the building set back and parking in the front yard.
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Connection to Nearby Residential Areas
The frontage along this part of Williston Road is entirely commercial, with the exception of the
modest houses along Mary Street and the nearly-obscured public school. The residential areas lie
north and south of Williston, with Patchen/Hinesburg Road as their spine. Geographically, the
communities are nearby but there is little sense of them from this part of Williston Road, with the
exception of White Street and Cottage Grove Drive. The commercial frontage on these two streets
is short and the streets themselves have a much smaller and more local scale than Route 2. These
streets and Patchen/Hinesburg Road are the only way for nearby residents to travel back and
forth from Williston Road stores and businesses.
Urban Public Space
In an urban settlement of some size, there will be areas where people unacquainted with one
another share the same public space, whether walking along a sidewalk, passing each other in
crosswalks, resting on public benches or walls, or waiting on a corner for the light to change or
for a bus. Williston Road provides no formal public space, but many informal elements. A few of
the restaurants provide outdoor seating, which is a secondary form of public space. The sidewalk
is the main element and one that connects all the blocks, lots, and individual buildings, both
sides of the corridor, and connects the corridor to nearby neighborhoods. Any design corrections
to the corridor and its public space (also called the public realm) should focus on the quality of
the sidewalk and the pedestrian experience. (See Figures 2.7 for building features and 2.8 for
sidewalks, and landscaping.) This might mean sidewalk widening and extensions (the Post Office
on White Street), more street trees, shorter sidewalk lamps (pedestrian-scale) in some areas, and
improved crosswalks.
Landscaping.
This part of Williston Road gives an overall impression of being relatively landscaped. Most of the
planting is on private property, and is a mix of trees, shrubs, and flowering perennials and
annuals. There is little scope for public street tree planting, given how close the sidewalk runs to
the road. The sidewalks are detached from the road. However, their character reads more as part
of the road than the front yards of the properties because there is not a deep grass strip with trees
between the sidewalks and the traffic. As the landscaping is private, there is an appealing
idiosyncrasy. The quality and quantity varies, and not all lots are well-landscaped. One benefit of
the predominance of private landscaping is the unusual character, particularly exemplified by Al’s
French Frys. Compared to other northeast municipalities, commercial landscaping in South
Burlington incorporates many more summer-blooming flowers along with the expected trees and
shrubs. BFJ also noted unexpected choices for some street trees: the apple trees planted in a few
places along the corridor would not be found typically in other locales, and thus help create a
unique South Burlington identity. Future planning should focus on identifying gaps in permanent
landscaping (trees and long-lived shrubs), determining regular tree spacing appropriate for the
“lite” urban character of this stretch, and opportunities for using local materials, such as the stone
wall in front of the Marco’s Pizza/Blockbuster strip mall.
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Circulation
Williston Road is obviously the spine of the corridor, with a few local roads intersecting along this
length. (See discussion above on blocks.) The local roads do not connect themselves to either side
of Williston Road, thus no formal secondary system exists to relieve traffic congestion or provide
quieter areas for pedestrians and cyclists. (See Figure 2.9: Circulation). However, the lots along
the north side from the Best Western to White Street have had their rear parking lots connected
across lot lines and some curb cuts closed. For those who know, these connected lots provide a
way to move from one business to another without driving back out onto Williston Road. In
addition, there are pedestrian-only paths, some formal and at least one not (the path created for
rear access to Starbucks). Crosswalks exist only at vehicle intersections. There is no crosswalk
midblock where the proposed City Center would front onto Williston Road; Mary Street is a
potential location. The CCTA #23 bus runs along Williston Road, currently stopping in this
western part of the study area at the Kennedy Drive intersection. CCTA will be instituting
“backbone service,” but no expansion onto secondary roads is planned. The new direct route will
provide service on Williston Road with more frequent service and potentially more stops than at
present. Future planning for new commercial development will mean planning for the new bus
stops with crosswalks and pedestrian connections from rear buildings on deep lots out to the
stops.
2.2 Heath Street to Victoria Drive
The residential center of Williston Road lies generally from just west of Heath Street to just east of
Victoria Drive. (See Figure 2.6, Williston Road: Central/Residential.) The zoning is R4 and the
areas is primarily developed with modest houses, no more than two generations old, a church,
and a few businesses. Some of the businesses are located in converted residences. (See Figure
2.10) The lots here in the central area are fairly uniformly developed for one-family houses on
lots just under one-quarter acre (9,500 square feet) in size. The regularity in the lot platting leads
to a consistent block pattern: with one exception, the blocks with frontage on Williston Road tend
to be the equivalent of seven lots wide. Of the five intersections, two are full (four-way), one is off-
set, and two are T-intersections. Driveways enter directly upon Williston Road. Street landscaping
is largely provided by the individual property owners.
As experienced by a driver along Williston, the houses and their regular spacing come as an
unexpected calm space in the midst of commercial heterogeneity. When seen on a map or aerial
photograph, it is clear that this was once the predominant character of Williston Road and many
of the oldest neighborhoods in South Burlington. The working group agreed that this R4 area and
its character must be protected against commercial encroachment; there is no interest in
extending economic development fully along Williston Road. Any new commercial development
should be restricted to conversions of residences to businesses. In these cases, the residential
fronts should remain oriented towards Williston Road, with parking to the side and rear. Signs
and eventual expansions should remain residential in character. In addition, future planning
November 2009WILLISTON ROAD FIGURE 2.6: CENTRAL/ RESIDENTIALN.T.S.SOUTH BURLINGTON, VT SOURCE: GIS DATA
November 2009WILLISTON ROAD FIGURE 2.7: BUILDING FEATURESChittenden Bank: building and roof materialsFraming business: no front entryMcDonalds: entry at sideSOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGBicycle store: building materialsSouth side (looking east): signs, curb cutsUS Post Offi ce: building materials- domestic scaleSmall Businesses: building materials, signs, yards
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGNovember 2009WILLISTON ROAD FIGURE 2.8: SIDEWALKS AND LANDSCAPINGMerchants Bank and USPO: parking lot stairsZacharys: sign and landscapingDoubleTree Hotel: sign and landscapingGulf station: new landscape island Hinesburg Road: sidewalk, stone wallSouth side: detached sidewalk, landscapingDetached sidewalk bends for tree
November 2009WILLISTON ROAD FIGURE 2.9: CIRCULATIONSOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGBest Western: pedestrian pathCITGO Station: detached sidewalk with no landscape buffer North side (rear lots): inter-lot connections, bicycle racksDorset Street intersection: vehicles and pedestriansGulf station at Hinesburg Road: crosswalks at intersectionZacharys and Post Offi ce: parking lot connectionWhite Street: offset intersection
November 2009WILLISTON ROAD FIGURE 2.10: SELECTED LAND USESDinosaur DaycareEthan Allen Motel Dental Offi ce: converted residenceLutheran ChurchOffi ce Building at Victory RoadResidenceResidenceResidence SOUTH BURLINGTON, VT SOURCE: BFJ PLANNING
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should include new crosswalks. There is nearly one mile of roadway with no pedestrian crossing.
To better connect the neighborhoods and to encourage the use of bus transit, crosswalks should
be striped in several locations. At minimum, one should be striped at Elsom Parkway to connect
to the Lutheran Church, community garden, the sidewalk, and other
north side and uses.
2.3 Victoria Drive to Gregory Drive/City Line
Area Character and Land Uses
The area east of the residential center and the airport access has a markedly different character
from the western part of Williston Road. (See Figure 2.11: Williston Road: East Section). The
eastern stretch is a mix of Commercial 1- Residential 12, Commercial 1- Airport, Mixed Industrial
& Commercial, and a small area of Residential 4. The C1-R12 and C1-Airport zones are
mapped only one lot deep. The IC district is significantly larger, as this part of South Burlington is
planned for economic development. The IC area is well-served by east-west Williston Road, the
parallel east-west Kimball Road, a north-south road network, and the airport, and potentially a
new interchange on I-89. The land around the airport has reportedly gained value since the
Town of Williston adopted zoning changes that prohibit new industrial uses. As a result, the land
uses here are a highway or general business type, with some vacant lots out towards the town
line; more can be expected given the location’s assets. Williston Road appears wider here than in
the western stretch, largely due to the deeper setbacks: there is more visual space between a
driver and a building. The road is relatively featureless and is anonymous, as there is little about
the built environment that has a South Burlington identity.
The buildings are oriented fully towards the driving customer, with prominent front setback
parking lots and large signs. The small Commercial 1-Residential 12 district mapped just west of
Kennedy Drive has the greatest visual variety of this stretch of Route 2. The Arcadia Diner, Ho
Hum Motel, the Ethan Allen motel, a small group of residences, an antiques store, and Vermont
Soup are typical of the small businesses found in the corresponding Commercial 1-Residential 12
found towards the west. (See Figure 2.12: Selected Land Uses.) There are also highway
commercial scale businesses - Rags to Riches, Car Quest, the former Hooters site (now a sports
bar/restaurant under construction), Ground Round, Kinney Drugs, Executive Car Care, the
medical office buildings and the gas station - only some of which are well-maintained. Past
Kennedy Drive, the front setbacks vary, possibly given the reductions allowed in the PUD (planned
unit development) process. The buildings here are largely generic, lacking the quirkiness or brick
and clapboard traditional character of the western part’s businesses. (See Figure 2.13: Selected
Land Uses.)
Thus, this corridor has two distinct commercial characters. “Williston Road” is an appropriately
local and historic name for the western section. Route 2 is more descriptive of the highway quality
of the eastern section.
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGNovember 2009WILLISTON ROAD FIGURE 2.11: EAST SECTIONN.T.S.SOUTH BURLINGTON, VT SOURCE: GIS DATA
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGNovember 2009Arcadia DinerWILLISTON ROAD FIGURE 2.12: SELECTED LAND USES (EAST & NEAR AIRPORT)SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGOffi ce BuildingAce HardwareExecutive Car CareGround Round, Kinney DrugsPour HouseHo Hum Motel
November 2009Residences and converted residencesWILLISTON ROAD FIGURE 2.13: SELECTED LAND USESSOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGResidencesPet Food Warehouse; Earl’s Fitness & CyclingPete’s RV CenterMulti-tenant buildings, Kennedy DriveMulti-tenant buildings, Kennedy DriveMulti-tenant building, midpoint
33
Blocks and Lots
The highway character is partially created by the block structure. There are few
intersections once east of Kennedy Drive and the spacing is very irregular between the
intersections. While the lots are somewhat standard in their frontage, this regularity is counter-cut
by the variety in front yard setbacks. This is not at present a pedestrian area, so the lack of
crosswalks is not a pressing issue. However, the city has demonstrated that once sidewalks (and
bicycle lanes) are installed, pedestrian and cyclists follow. Future planning should cover the
completion of the sidewalk system, consideration of bicycle paths or lanes, and crosswalks.
Connection to Nearby Residential Areas
Most of the eastern stretch of Williston Road is zoned Mixed Industrial and Commercial, and is
platted with very large lots suited towards significant non-residential development. Embedded
within this zone are two small R4 areas (Millham Court and Shunpike Road). There is no plan to
expand these small communities and no possibility of linking them, other than through the
Recreation Path system, to other South Burlington neighborhoods. Future planning for this part of
Williston Road should focus on improving the sidewalk and Recreation Path system for the current
residents and Williston Road employees; see below. There are no other significant planning
issues needed to improve connections between the commercial part of the corridor to its
residential areas. Rather, the greater need may be to protect the houses along Shunpike Road
from the impact of through traffic between Williston Road and Kimball Avenue.
Urban Public Space
The character of the IC area is not conducive to planning for a detailed public realm. There are
fully constructed sidewalks up until just east of Kennedy Drive. (See Figure 2.14: Design Features.)
Past this intersection, on the south side, the sidewalk ends part-way on the Ace Hardware site. It
picks up again on several disconnected sites. Sidewalks are similarly incomplete on the north
side. While efforts should be made to complete the sidewalk or Recreation Path system to provide
pedestrian access to bus stops and outdoor exercise for local employees, there is not the need
here as with the western stretch of Williston Road.
Landscaping and Gateway
The open and green quality of eastern Route 2 is created by private landscaping on each site and
those sites with deep setbacks and lawns. Future planning should encourage maintaining this
quality: owners should maintain healthy lawns and plant trees as advised by the city’s arborist.
Where possible, a sense of gateway into South Burlington’s modern economic quadrant could be
fostered by careful tree selection and the use of local materials, such as stone and brick. The
spacing and selection of street trees should be different than the C1-R12 area to the far west.
Where those trees might be space closely and regularly, this IC area should have a looser and
more irregular quality to maintain a sense of a rural area in careful transition.
At the far eastern end of Williston Road, there is no sense of entry into South Burlington. For those
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGNovember 2009WILLISTON ROAD FIGURE 2.14: DESIGN FEATURESSigns, landscaping; setback depths; no sidewalks; building materialsSigns, landscaping; no sidewalks; setback depthsMuddy Brook signSOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGSigns, landscaping; sidewalks; setback depthsWelcome to South Burlington sign
35
who know the boundary, the small, unassuming Muddy Brook sign alongside the road is a
marker. Nearby, on the north side of the road and up a hillside, there is a larger sign
announcing South Burlington. This sign is hard to see and old. There should also be a sense of
entry near the airport for arriving travelers who turn onto Williston Road. A gateway sign and
landscaping here should have both a “Welcome to South Burlington” and a “Welcome to
Vermont” presence. Given the topography of Williston Road here, a natural sense of arrival
occurs at the crest of the road traveling east, when the mountains come into view. Although a
welcome sign here would not be located near a city line, it would however take advantage of a
location with an impressive view.
Circulation
The larger IC area has been developed over time for good circulation. The road network has a
number of connections, allowing vehicles different routes to get to their destination. The number
of curb cuts is potentially a problem, as each left turn out of or into a business represents a traffic
conflict. Future planning should monitor the accident rates here, and possibly consider installing
features that make safe left-turns and U-turns possible. As mentioned above, there may be a
need to protect the houses along Shunpike Road from the impact of through traffic between
Williston Road and Kimball Avenue. The city may consider a new road connection from Kimball
to Williston to divert through and commercial traffic away from Shunpike.
2.4 Williston Road Planning Questions and Preliminary Recommendations
Development along Williston Road is not monolithic. While the road already has a number of
different zoning districts, the districts could be a better fit. Urban design and circulation could be
improved.
West of I-89 Interchange
This strip commercial area should be zoned for straight-forward highway commercial. Currently it
has the same zoning as other commercial areas on Williston Road which are developed quite
differently. Commercial design regulations should however be considered.
Dorset Street to Patchen/Hinesburg Road
Zoning, Design and Landscaping.
• Consider new zoning for a traditional mix of commercial uses and intensities, perhaps
allowing greater intensity and shallower front yards (or a tight range of minimum and
maximum front yard). While Dorset-to-Patchen will not have the intensity of use planned for
City Center, it could have more of a commercial core appearance and less of a highway
commercial one. Density and urban design should be combined.
• Consider commercial design regulations, with a focus on physical form (not architectural
styles per se) and a roster of preferred local materials. Design controls should encompass on-
36
site landscaping, keeping in mind that new buildings need not be smothered in trees and
shrubs – when a building is well-designed and employs attractive materials, the building need
not be over-landscaped.
• There is support for planting more street trees. These need to be chosen and located with
care so that they do not mature to a size that blocks business signs or road signs.
Sidewalks and Bicycle Lanes
Williston Road cannot be widened given its current right-of-way width. This was studied recently,
and determined to be too costly for the benefit. Therefore the road likely cannot be configured to
provide bicycle lanes. A second significant difficulty for cyclists is crossing over the I-89 ramps.
Despite these constraints, there is strong desire on the part of cyclists and walkers for some kind
of accommodation. Ideally, the road would have a bike lane separated from the sidewalk (to
avoid cyclist/walker conflicts). Walkers like the detached sidewalks but would like a wider
sidewalk lined with more street trees. Another option would be significantly wider sidewalks that
would accommodate both walkers and cyclists. Cyclists use connected parking lots where they
exist, as these are a safer alternative to biking in the road.
Parking
• Consider reducing parking requirements if an applicant can demonstrate that pedestrians are
able to comfortably walk to the place of business, e.g., sidewalks, good lot-to-lot connections,
within reasonable walking distance of public parking (possibly provided at City Center).
• Require more parking lot connections, even fewer curb cuts, and greater pedestrian comfort
(wider sidewalks, deeper planting strips, crosswalks, and trees). Where parking lots are well-
connected, consider all parking to be pooled so that parking requirements can be reduced.
(See Manchester’s retail center for an example of this). This would benefit small businesses
and their landlords, making it easier to change over tenants.
• Location of parking is a difficult issue, whether to be located primarily in the front or to the
side and rear. Consider establishing a district-wide best practices standard that would be
applied or modified sensitively on a case by case basis.
• Consider the impact of the Whole Foods application: traffic, pedestrian use, visibility from
Williston Road, and the opportunity to add another piece of the inter-lot connections behind
the businesses on Williston Road. The city will need to determine the impact on Williston Road
intersections if there is eventually a connector road through this site up to Patchen Road, in
essence extending Dorset Street north across Williston Road.
Hinesburg intersection and the White/Patchen/Williston triangle
Create a sub-district with design regulations. Keep allowed uses here more oriented towards
neighborhood convenience. Consider re-aligning the offset intersection and allowing left-turn
lanes.
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City Center
If this district were expanded to front onto Williston Road, there would be visibility and
development density on both Williston and Dorset. This would eliminate small lot uses on
Williston in the immediate City Center area, and give more development area to City Center.
Residential Area
This central area must remain residential. Crosswalks are needed to allow walkers to safely move
across the street to other residences, businesses, the church, and community garden.
Airport Road Area
The Airport Road area an ambiguous identity. Is it one end of the highway commercial area west
of Kennedy Drive? Is it a moderate-scale transition area from highway commercial to modest
residential? Is it South Burlington’s gateway for visitors arriving from the airport? Is it the
convenience retail area for the R4 areas in the immediate vicinity? Once this identity is chosen,
the right zoning can be suggested. No matter the specific zoning, some city-wide commercial
standards should be maintained here: inter-lot connections, shared parking, good pedestrian
access, and wide detached sidewalks.
Kennedy Drive to City Line
The Kennedy Drive to city line stretch is more than Route 2 frontage: it is a deep area zoned
Mixed Industrial & Commercial. A different zone, IC sub-district, or overlay may be warranted
that recognizes that this part of Williston Road as one of the City’s main gateways. Frontage and
visibility on Williston Road attracts a different market than similarly zoned lots off Shunpike Road,
Kimball Avenue, and Community Drive. Public action here should focus on completing the
sidewalk/recreation path system on both sides of the corridor, creating a cohesive landscaping
approach, and designing a sense of gateway. Minimal design standards should be created.
Traffic Overlay District
This district influences the intensity of development. It is mapped on the full length of Williston
Road, and covers all approaches of the key intersections at Dorset Street, White Street/Cottage
Grove/Hinesburg Road and Airport Drive/Kennedy Drive. The TOD reportedly works well but
leads to lot assemblage in order for one use to obtain the necessary approvals, rather than
multiple or mixed-uses on a lot.
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3.0 STUDY AREA: SHELBURNE ROAD
Shelburne Road runs from the city line with Burlington south to the city line with Shelburne. The
north end of the road lies on the far side of the 189 connector ramps and intersections. South of
189, Shelburne Road runs without bend to the city line. The character of this long stretch is
largely highway commercial, with a mix of stand-alone businesses, strip malls, office buildings,
and a cluster of car dealerships. Shelburne Road is zoned for commercial use, with residentially
zoned areas primarily east of the corridor. (Refer back to Figure 1.4: Shelburne Road: Zoning.)
From the north end to Holmes Road/IDX Drive, the road is zoned Commercial 1. Most of the
zoned area is zoned C1-R15 which allows the city's highest density residential land use.
Embedded within the larger C1 area is a significant strip of C1-Auto, where the businesses are
dependent on car (not foot) traffic. South of the Holmes Avenue/IDX Drive intersection, Shelburne
Road is zoned Commercial 2 and largely developed with car dealerships. There is a unique
district mapped around Allen Road, with some frontage on Shelburne Road. As with Williston
Road, the zoning on Shelburne Road is found only here in the city, with the exception of a very
small area in the north part of the city also zoned Commercial 2. The two major zones - C1 and
C2 -Auto - shape the character of the road. Shelburne Road is also VT Route 7. This is apparent
in the road's engineering: it is long, straight, wide, and uniform. The planning and design
challenge for South Burlington is to impose local planning policy and character.
3.1 City Line/Proctor Avenue to I-189 Ramps
From the city line to the I-189 ramps, this short length of the study area has frontage in South
Burlington only on the east side. (See Figure 3.1: Shelburne Road: North End.) As you travel north
on Shelburne Road into Burlington, there is a seamless transition between the two municipalities,
whether seen across the street from one another or at the city line near Proctor Avenue. With the
exception of the Shaw's center, development here is low scale, confined to relatively small lots,
and generally vintage. (See Figure 3.2: Selected Land Uses.) There is however new investment in
the larger area, with the significant residential construction on Farrell Street, the City Lights
building, and the new multi-family structure between White Street and Proctor Avenue.
Connection between the commercial frontage and the residential neighborhood to the rear is
good. Shelburne Road here reads more as an urban street than a major inter-municipality
connector, largely due to the landscaping, close placement of the buildings to the street, and the
obvious proximity of the residential streets behind the commercial frontage. There are no
substantial planning issues here. (Shaws is reportedly used as an informal park-and-ride, which
may indicate the need for a formal site at some future point). The need is more for clear design
standards so that new investment compliments the best of the street's character.
When and if the southern connector from 189 to Holmes Avenue is activated, the character of the
street will be unchanged as 189 is below grade. The intent for 189 is to connect South
Burlington’s center to downtown Burlington at Battery Street. Much of the connector is built, but is
stopped at a brownfield site, known as the Barge Canal, requiring Super Fund remediation.
Currently, Pine Street (Burlington) intersects with Queen City Park Road. One plan
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGNovember 2009SHELBURNE ROAD FIGURE 3.1: NORTH ENDN.T.S.SOUTH BURLINGTON, VT SOURCE: GIS DATA
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGNovember 2009SHELBURNE ROAD AREA FIGURE 3.2: LAND USES (NORTH END, SELECTED)SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGHannaford supermarketFarrell Distributing Corp. (Lewis Road)KmartMobil StationRemaxLarkin Realty mixed use building (north of Swift Street)Storefronts (north of Swift Street)Lowe’s
41
for I-189 shows this important link being broken, with Pine Street converted into a dead-end. A
somewhat new road alignment may be needed, possibly using a combination of the built road
and Pine Street. Planning for 189 should also involve the need for public parking in the area.
Reportedly, the Kmart parking lot is used as an informal parking lot for cyclists and for park-and-
ride arrangements.
According to planning staff, development on Farrell Street presents two planning issues. The new
PUD (planned unit development) here is a mix of affordable housing (using a density bonus
available in the Land Development Regulations), senior citizen housing, and open market
apartment buildings. The development scale was partly achieved with height waivers. According
to the LDRs, a developer can be awarded a height bonus if there is no impact on scenic views
from a public street. This is too open-ended a criterion for the DRB to administer comfortably;
greater clarity is needed. Second, a better definition for open space is needed for development
throughout the city, not solely the Farrell Street area, so that parks and open space are not
treated as the same.
3.2 Swift Street to Holmes Road/IDX Drive
Area Character and Land Uses
Shelburne Road’s character changes markedly in the area around Imperial Drive and Holmes
Road/IDX Drive. For purposes of this discussion, Holmes Road/IDX Drive is used as the dividing
line because it is a full four-way intersection and thus a clearer dividing line. (See Figure 3.3:
Shelburne Road: Central Area.) Here, a discussion of character and land uses is also a discussion
of development potential. Shelburne Road here has commercial frontage one lot deep on the
east side of Shelburne Road. On the west side, the commercial zone extends west to the railroad
tracks and is mapped C1-R15, C1-Auto, and C2.The land uses are nearly all commercial, with
the exception of a garden apartment complex and the newer Olde Orchard multi-family complex
on Fayette Road and a small complex accessed from Lewis Road. The businesses are a mix of old
and new, stand-alone and strip mall stores, national or franchise businesses and local ones.
Similarly, some buildings are close to the sidewalk while others have parking and landscaping
separating them from the street. The overall character along the road frontage is low-scale,
dispersed commercial that serves both through traffic and local residents. (See Figures 3.4 and
3.5 for selected land uses.)
On the west side of Shelburne Road, the commercial character is different. There are large deep
parcels, organized around the intersection of Hannaford Drive and Fayette Road. Development is
mostly new, with significant vacant available land. Hannaford, as Southland, holds the master
land lease and so is the developer of the Hannaford Plaza site, comprising the supermarket,
Lowe's, Kmart, Merchant's Bank, and some vacant sites. The Kmart site is considered a
development site once its lease expires in about ten or more years. (Reportedly Southland is not
able to take control of the Kmart lease and so will not redevelop the full site until it has full
control.) While the existing zoning allows residences, Southland is reportedly solely interested in
commercial development, presumably retail. According to its calculations, additional density is
not possible given parking constraints. Concept plans done for Southland show new infill mixed
use non-residential development at a smaller scale than the new big boxes, along Shelburne
Road. The buildings will be one-story, with a three-story hotel as the
November 2009SHELBURNE ROAD FIGURE 3.3: CENTRAL AREAN.T.S.SOUTH BURLINGTON, VT SOURCE: GIS DATA
November 2009SHELBURNE ROAD AREA FIGURE 3.4: LAND USES (CENTER, SELECTED)SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGShelburne Square strip center (IDX Drive)Olde Orchard Park multi-family project (Fayette Road)Aerie Lodge and mixed-use complexGarden apartments (Fayette Road)Palace 9 (Fayette Road)Mc Donalds, Zen Palace, medical offi ces strip mall (Fayette Road)Portland Glass
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGNovember 2009SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGDirect Autobody (Bartlett Bay Road)Magic Hat Brewery (Bartlett Bay Road)Dodge DealershipThe Crate Escape, vacant lot (Nesti Drive) Vacant lotSHELBURNE ROAD AREA FIGURE 3.5: LAND USES (CENTER AND SOUTH, SELECTED)
45
exception. Fayette Road is planned to be developed with a series of detached retail buildings, on
one or both sides, depending on site conditions. The parking calculations in the concept plan rely
on shared parking. The road is intended to be curved in order to slow down traffic. Reportedly,
Southland has all necessary permits and needs only the appropriate market and tenant
conditions to resume development.
Residential uses in this central areas are the Olde Orchard multi-family development and the
non-conforming Section 8 garden apartments at the corner of Fayette Road and Shelburne Road.
Other small-scale retail, medical, office, banking, entertainment (Palace 9 movie theater), and
cemetery uses occupy sites along Shelburne Road, some with access from Fayette Road. Fayette
Road is striped already in anticipation of future development on the west side (Lowes side) of the
street, which is expected to be strip-style and oriented towards the street. The large vacant site on
the other side of the street may be constrained as a development site as it hosts a sewer line; this
needs verification. There may be room for infill development in the Olde Orchard site, amongst
the existing residential buildings.
Further south, towards Holmes Road/IDX Drive, the land area shrinks and the parcels on average
grow larger. The single largest use is Farrell Distribution, with access from Lewis Road (private)
and Holmes Road. The other uses are a mix of residential, auto-related, and commercial. The
Farrell site marks the northern edge of the large C2 district.
The northern edge, abutting Queen City Park Road, is occupied by municipal utilities and
developmentally constrained by wetlands, woods, and steep areas. The far side of the railroad
tracks is Allenwood, a possible 300 d.u. residential development site, with no existing direct
access across the tracks except at Bartlett Bay Road. The property owns a linear parcel with
frontage on Shelburne Road, considered a possible entry to the large Allenwood tract. There may
also be two new access points to Allenwood from Fayette Road.
Future planning issues in this central area of Shelburne Road focus on the remaining
development potential. There are vacant and underdeveloped sites, potential new road
connections, and infill possibilities. The existing zoning already allows commercial and residential
uses; the question is whether the density (15 du/acre) is sufficient to stimulate residential
development. Certain points along the Shelburne Road spine could serve as a gateway,
announcing the large picture of South Burlington, while other areas function as discrete
residential areas and commercial developments with little relationship to the bigger picture.
Blocks, Lots, and Circulation
Shelburne Road is a commercial spine in the central section. On the shallow commercial east
side, the blocks are determined by the existing and traditionally laid-out grid of eight local streets
intersecting at right angles with the Shelburne Road collector. The east side is punctuated
regularly by these side streets, with the exception forced on the grid by the elementary school. The
lots with frontage on Shelburne Road have generally the same frontage length. Given the
disparate type and quality of the businesses, the regular spacing of the lots, blocks, and
intersections provides predictable urban design.
The west side has a different scale. The blocks are longer, with only five intersections, all nearly
equally spaced one from the next. On paper, the lots have about the same frontage length;
however, this is not perceptible from the road as there seems to be great variety in the building
46
and parking lot sizes. The city's critical step was the creation of a new local street paralleling
Shelburne Road. Fayette Road does not serve as a bypass road to Route 7, but is a "service" road,
providing necessary access to and circulation among the rear properties, and giving them
visibility from new street frontage. It also provides on-street parking. Its main intersection, with
Hannaford Drive, is an important organizing principal for the large area, once built-out. There
remain possible extensions of this secondary network: to the north, Fayette Road should connect
to Queen City Park Road and to the south, a new short section of "link" road should break off
from Fayette Road to connect with Lewis Road, and thus to Holmes Road. There exist right-of-way
studies that show possible alignments for the Fayette Road section north to Queen City Park Road
and the south "link" road to Lewis Road.
Another connection should be sought to connect Hannaford Drive at its west end with Old
Orchard Park Road. This one is more difficult as it would transform a residential cul-de-sac. It
may be that a street is not possible, but a recreation path/emergency vehicle access would allow
residences ready access to Lowes, Hannaford, and future development.
Connection to Nearby Residential Areas
The west side has little sense of connection to the large, established neighborhoods on the east
side of Shelburne Road, or the residential areas on the other side of the rail line. The residential
projects that lie within the west side - Olde Orchard Park, the garden apartments, and any future
development on the Hannaford site - are discrete elements in largely commercial area.
On the east side, the commercial strip and the residential streets are physically well-connected.
Each street that intersects with Shelburne Road provides stores and businesses that don't require
residents to cross Route 7 traffic. The streets have sidewalks and the recreation path system exists
here to connect one development pod to another. However, there is a disconnection experienced
by the residents. The neighborhoods are not visible from the main corridor - which may not be a
problem - and the residents reportedly do not use the businesses for their convenience shopping
needs to any great degree. Future planning should first determine if a stronger connection is
warranted.
Urban Public Space and Landscaping
The public space along Shelburne Road and Fayette Road is created by the sidewalks, bicycle
lane, and bus stops - all parts of a circulation system. (See Figure 3.6: Design Elements.) The lack
of a sit-and-look quality to the public realm here may be appropriate given the road's own
character of constant traffic movement. There is one small park at the intersection of Shelburne
Road and Farrell Street. This doubles (triples?) as a bus stop and stray shopping cart depot. The
small cemetery on the west side of the road provides a small green space, but is easily
overlooked. The road triangle at IDX Drive is landscaped. The sidewalks are wide, with
substantial planting strips detaching them from the busy road. The landscaping is provided
entirely on private property, with varying design results depending on the depth of the building
setbacks, the plant material choice, and the use of local stone and brick. The car-dominated
character of Shelburne Road limits the scope of creating a pedestrian-scale quality to the public
space. There is more scope on Fayette Road, where the traffic speeds are lower, the volume is
less, and there is more likelihood of people walking from one business to the next. Fayette Road
also offers some possibility of a park, or designed open space, at its main intersection with
November 2009SHELBURNE ROAD AREA FIGURE 3.6: DESIGN ELEMENTSSOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGDance School at Allen Road GE Healthcare (IDX Drive)Merchants BankPrice ChopperShelburne/ Fayette RoadsShelburne Road / IDX DriveSmall businessLaw offi ces (north of Swift Street)Multi-family structure (north of Swift Street)
48
Hannaford Drive, given the sewer line site that abuts this intersection.
3.3 Holmes Road/IDX Drive to City Line/Allen Road
Area Character and Land Uses
Shelburne Road is nearly equally split between its northern and southern stretches, with the split
occurring at the Holmes Road/IDX Drive intersection. (See Figure 3.7: Shelburne Road: South
End.) At this juncture, the character of Shelburne Road changes: the lots are larger, with longer
frontages; in some cases the front setbacks are quite deep, resulting in more lawn and
landscaping; the zoning and thus the land uses change; there are no residences in the study area
or nearby, as there are in the northern length. Many land uses are not just car traffic-dependent,
but also directly provide vehicle sales and services. The city's greatest concentration of car
dealerships lies in the central portion. The southern lots are generally light industrial and
wholesale uses, including warehousing and dog day care. The two largest single properties are
the Chevrolet dealerships, which has expansion permits and GE Healthcare. The GE office
complex occupies one large quadrant of the road's main intersection, Holmes Road/IDX Drive.
Retail, restaurants, an old motel, and other goods and services are located along this stretch.
Some sites are vacant, with the largest being on the east side between Green Mountain Drive and
Harbor View Road, others are underutilized, and others - the car dealerships especially - facing
uncertain future market demand. The 15-acre Redstone site (which includes the Crate Escape,
storage parking for the nearby car dealership, and other buildings)is one of the underutilized
sites. It may have potential for multi-family residential and retail.
The very southern end of Shelburne Road's east side is mapped in the Allen Road District. This is
a mixed-use district that recognizes the existing heterogeneity of this end of Allen Road, with its
small businesses, a church, a Pepsi distributor, a mix of housing types, and some light industry. It
serves as an effective transition from the car-oriented commercial uses on Shelburne Road to the
wholly residential areas further out on Allen Road.
Shelburne Road south of Holmes Road/IDX Drive has development potential but the key will be to
determine the market and design character. Some of the market potential is being driven
reportedly by Town of Shelburne decisions. That portion of Route 7 is considered less attractive
than South Burlington's. It also has onerous development restraints: the front yard setback is a
whopping 400 feet which has reportedly reduced visibility and has led to commercial vacancies.
New construction and commercial relocations have shifted north along Route 7 into South
Burlington, where there are better development conditions, available sites, and non-viable
businesses ready for redevelopment.
Block, Lots, and Circulation
Shelburne Road was recently improved with a median that has resolved circulation problems and
a bicycle lane. (See Figure3.8 and 3.9.) Reportedly, traffic movement is better now. This southern
stretch of Shelburne Road is punctuated by five intersections, only two of which are full four-way.
Nesti Drive is privately owned; the owners do not reportedly own any other land in the area. The
T-intersection with Harbor View Road may be modified to a four-way with possible new road that
would provide public road access to the underutilized Redstone property. The lots have
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGNovember 2009SHELBURNE ROAD FIGURE 3.7: SOUTH ENDN.T.S.SOUTH BURLINGTON, VT SOURCE: GIS DATA
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGNovember 2009SHELBURNE ROAD AREA FIGURE 3.8: ROADSSOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGIDX Drive and Holmes Road intersectionOlde Orchard Park interior, possible link to Lowe’sBus stop near Shaws parking lotFayette Road: Olde Orchard Park entryFayette Road: stub ends and bump-outsFayette Road: onstreet parkingLowe’s: possible future connection
November 2009SHELBURNE ROAD AREA FIGURE 3.9: PEDESTRIAN AND BICYCLE CIRCULATIONSOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGPalace 9 steps from Fayette Road to parking lotNesti Drive: dealership footpathMerchants Bank bikerackIDX Drive (to Shelburne Road)Fayette StreetMerchants Bank steps from sidewalkSidewalk from KMart lot
52
varied depths and frontages, but the overall impression is one of spacious development: the long
blocks, large lots and large buildings predominate, the road appears open and wide, and the
vacant lots provide - even if temporarily - visual green space.
CCTA provides bus transit along Shelburne Road. The Hannaford/Lowes bus stop is designed to
be an eventual bus transfer point. Future planning needs to identify other planned CCTA hubs so
that additional commercial and residential growth can be located efficiently.
Future planning should also consider the need for additions to the overall circulation network:
Harbor View Road and Green Mountain Road could have a north-south link road, with an east-
west branch off that connecting to Shelburne Road. These links might benefit the eastern side of
the road where the lots are deep, just as Fayette Roads on the deep west side over IDX Drive.
Urban Public Space and Landscaping
As with the northern stretch of Shelburne Road, the public space here is largely sidewalks, bicycle
lanes, and bus stops. The wide sidewalks have substantial planting strips detaching them from
the busy road. The landscaping is provided entirely on private property. GE Healthcare provides
an example of effective large-scale landscaping, with its parking lot plantings that screen the
cars and a small tree-planted triangle at its intersection. The dance school at the intersection with
Allen Road provides a good example of small scale landscaping: a stone wall, apple trees, and
some grass.
3.4 Shelburne Road Planning Questions and Preliminary Recommendations
The next step for the working group will be consider and discuss the following questions. These
are taken from the first working group meeting, the stakeholders/developers meeting, discussions
with planning staff, and BFJ observations.
Development Potential
Residential: The larger Hannafords site zoning allows residential use but doesn't require it. (The
C1-R15 zoning is permissive). Multi-family development is not likely to be the owner's preference.
The city will have to decide what it wants here and if the zoning has to be changed to require
high density housing. Other residential potential can be found in infill development (e.g., Olde
Orchard Park), redevelopment (e.g., Section 8 garden apartments), and rezoned parcels
(e.g.,The Crate Escape). The planning questions require decisions on where mixed-uses are
desired, at what density, and what road links are needed to make it happen.
Economic: South Burlington's portion of Route 7 appears to be experiencing a natural turn-over
of vintage properties (e.g., Tuscan Kitchen) and development of greenfield sites. The planning
questions thus focus on recruiting businesses and ensuring good design. Are commercial
applications and change-of-use applications efficiently managed? Do the parking requirements
and traffic overly district help or hinder economic development? Is the high quality design of new
buildings a function of luck or good design regulations? If the DRB needs clear design
53
regulations, they should be similar to the SEQ Regulating Plan, where the emphasis is not on
architectural style but on good urban design. As with Williston Road, there is tension between the
reviewing boards and builders about parking lot placement. The city should have a standard that
is then applied on a case-by-case basis. In some locations, entry doors placed at the building's
corner have worked well, and in others (the McDonald's on Shelburne Road), the customers are
directed into parking lot traffic. Overall, the long-range design goal may be to transform the
dominating vehicle orientation of Route 7 businesses into an orientation that blends in a
pedestrian approach.
The two main sections of Shelburne Road (divided at Holmes Road/IDX Drive) already have
somewhat different characters. Future planning should keep this, rather than homogenizing the
whole corridor. The northern area is more of a commercial and mixed-use corridor, where there
may be potential nodes of greater intensity, perhaps between Swift Street and Hannaford
Drive/Laurel Hill Drive. South of the break at Holmes Road/IDX Drive, development character
should be lower density, with deeper setbacks, and rural landscaping. If another density node is
desired to serve residents and employees, it should build upon the existing commercial cluster
south of Harbor View Road and use the development potential of the light industrial area off
Nesti Drive.
Last, the Traffic Overlay District is mapped on the full length of Shelburne Road. It also somewhat
covers the intersections with Swift Street and Queen City Park Road. The TOD reportedly works
well but leads to lot assemblage in order for one use to obtain the necessary approvals, rather
than multiple or mixed-uses on a lot.
Circulation and Landscaping
Overall, vehicle traffic works fairly well on the whole length of Route 7, with even better
conditions south of the Imperial Drive/Holmes Road/IDX Drive divide. Future planning should
focus on completing internal road links, providing access to the rear of deep lots, completing
intersections, and the pedestrian experience. It is difficult for walkers and cyclists to cross
Shelburne Road. This may require adjustments in signal timing, more crosswalks, pedestrian
bump-outs to lessen the crossing distance, and/or pedestrian refuges on a landscaped median.
Additional crosswalks will be key improvements once CCTA goes to backbone service on
Shelburne Road. Sidewalks on Shelburne Road seem sufficient, but could be more sheltered by
trees. They are detached a good distance from the traffic and provide an adequate sense of
protection.
The quality of the walking experience on the secondary (internal) roads is different, and may
require different standards than Shelburne Road itself. The secondary systems are Fayette Road
and potentially Green Mountain Road/Harbor View Road and the Allenwood access system for
300 units. Planning should identify sidewalk widths, enlarged paved areas for benches, and a
street tree character - all of which may be more urban in character than Shelburne Road.
The second design linkage between circulation and landscaping involves gateways. Typically
gateways combine elements of road change, signs, and landscaping to capture drivers' attention.
The southern end of Shelburne Road should distinguish between Shelburne and South Burlington.
The gateway here is between the two municipalities and also to introduce Shelburne Road itself.
Planning should identify the best available site, even if it is not right at the city line. A new
intersection at Harbor View Road may provide the best opportunity. A northern gateway (around
54
Swift Street) may only need to mark the beginning of moderately intense commercial
development.
Meetings with the Working Group and the public demonstrated a strong desire to make
Shelburne Road more attractive for walkers. Pedestrian-friendliness is created when a number of
factors work well: sidewalk width, separation of the sidewalk from the road shoulder, buffers
(either on-street parked cars or planting), the quality of street trees (public landscaping), the
quality of privately maintained landscaping on each lot, stormwater management, the number of
curb cuts (driveways), visual variety, and lighting. South Burlington residents appreciate the efforts
made by local businesses to landscape and maintain their properties. These good neighbors
stand in contrast unfortunately to the public road. The entrance and exit ramps and rights-of-way
to I-189 are not well maintained, needing more regular mowing and litter pick-up, reportedly
due to ownership disputes between the city and the state. Shelburne Road’s intersection with I-
189 is where many people first see South Burlington; it should be better.
Attention needs to be paid to the details. For example, the sidewalk on Shelburne Road is
detached from the road shoulder, which is a good thing. However, walkers are not as protected
as they could be – the planting strip is narrow, so water and slush sprays up on walkers from
passing cars. Some stretches of the sidewalk are so low that stormwater pools; some stormwater
drains are not located at low spots, so crosswalks get puddles. Reportedly, there is a Detectable
Warning Surface for the blind that is sometimes under two inches of water or ice.
Additional future planning should consider a multi-use path west of Shelburne Road that connects
with the Burlington path. This path should intersect with cross-streets and be located relatively
close to west side businesses.
55
ACKNOWLEDGMENTS
CARS TO PEOPLE WORKING GROUP
Chittenden County Metropolitan Planning Organization: Bryan Roberts, Peter Keating
Chittenden County Transit Authority: Meredith Birkett
Precourt Investment Company: Brian Precourt
Smart Growth Vermont: Jason Van Driesche
South Burlington City Council: Jim Knapp
South Burlington Development Review Board: John Dinklage
South Burlington Energy Committee: Steve Crowly
South Burlington Planning Commission: Randall Kay, Robert McDonald
South Burlington Recreation Path Committee: Lou Bresee
White + Burke: David G. White
CITY OF SOUTH BURLINGTON PLANNING & ZONING DEPARTMENT
Paul Conner, Director
Cathyann LaRose, Assistant Planner
BFJ PLANNING
Georges Jacquemart P.E., AICP, Principal
Harlan Sexton AICP, Senior Associate
Rashi Puri LEEP AP, Urban Designer
MEMORANDUM
To: Paul Conner, Director, Planning & Zoning Department
From: Georges Jacquemart PE AICP, Harlan Sexton AICP
Subject: Task 5, Develop Toolbox Concept for Cars to People Project
Date: November 11, 2009
Attached you will find a list of toolbox elements for Williston Road and for Shelburne Road. As
called for in our contract, these lists are preliminary. We will be discussing these at next week’s
meeting on the 18th with the Working Group. Based on that discussion, we will then eliminate
and refine toolbox elements for the final report. The final version of these elements will have
different levels of detail. Some toolbox elements will be critical to creating a pedestrian- and
transit-friendly character, and will require substantial crafting. Others will need more discussion
by city officials and residents. Others may be allowed to stand as policy statements, rather than
fully-worked out zoning language.
The elements are derived from the Working Group meetings, our site visits and research, and
the public workshop. They blend the two approaches shown during this planning process: the
Working Group has tended to think about development and land use planning issues, while the
workshop focused largely on circulation concerns, most especially pedestrian and bicycle
circulation on Williston Road. These approaches are not in conflict. BFJ agrees that there are
connections among design, safety, shopping and walking/biking choices, reduced traffic trips,
and levels of private investment. Next week, you will hear us mention the 4 Ds: density, diversity
(mix of land uses), destinations, and design.
For next week’s meeting, we will bring maps illustrating these elements. This will make it easier to
visualize the proposed actions. Georges will discuss the RSG study of Route 2 improvements, with
a focus on providing bicycle lanes and pedestrian crosswalks. He will also discuss the traffic
overlay district.
The memo addresses Williston Road first, then Shelburne Road. For each, we first address how
private investment can be shaped by altering the development regulations. We then address the
public actions needed to support preferred development and to provide the desired pedestrian
and bicycle environment.
We look forward to seeing all of you again next Wednesday.
1
WILLISTON ROAD
1.0 LAND USE REGULATIONS: SHAPING PRIVATE INVESTMENT
1.1 Zoning
Districts: Create new districts, re-shape existing districts, and superimpose design districts.
Area west of I-89 interchange:
• South side: create a new highway commercial district, with gateway district design controls.
• North side: existing and intended development should guide the new district here. Perhaps
not C1-R12 and IA, but a district aimed at mixing institutional land uses and dense
residential.
Dorset Street to Hinesburg Road (Williston Road commercial core):
• Dorset Street and Williston Road are both zoned C1-R12 but seem very different. (Probably
because C1 and C2 have the same commercial dimensional regulations.) Dorset Street
seems more like the C2 part of Shelburne Road, but without the automotive and light
industrial uses.
• Recommendations: Leave Dorset Street zoned C1-R12 with existing dimensional regulations,
and change Williston Road zoning to either:
o Leave designated C1-R12, but with a Williston Road overlay allowing greater intensity
of use: more building/site coverage, shallower setbacks. Keep as a commercial core
area; therefore, any housing must be located on the upper floors of a commercial
building.
o Designate a new C1-R12 WR zoning district.
o In either case, superimpose a design district.
• Expand City Center district to encompass Mary Street (including Williston Road frontage) to
provide a second “front door.”
• Create a sub-district for the Hinesburg Road intersection and the White/Patchen/Williston
triangle: smaller lot sizes, greater commercial density, design controls.
• See 1.3 Design Controls below.
Residential central area:
• Leave R4 zoning as is.
• Strengthen if needed to prohibit development of residential PUDs on (formerly) commercial
lots. Lot sizes must remain standard.
Kennedy Drive area:
• C1-R12 and C1-AIR have same dimensional regulations and slightly different allowed land
uses. Is this area more like Dorset Street, Williston Road commercial core, Williston Road
eastern length, or the Staples etc. highway commercial west of the interchange?
2
• Recommendation: Treat this area as moderate-scale commercial transition from Williston
Road east to the R4 residential area. Will be the other bookend to the Williston Road
commercial core. See options above for Dorset to Hinesburg:
o Leave designated C1-R12, but with a Williston Road overlay allowing greater intensity
of use: more building/site coverage, shallower setbacks. Keep as a commercial core
area; therefore, any housing must be located on the upper floors of a commercial
building.
o Designate a new zoning district.
o In either case, superimpose a gateway design district, with the purpose of “Welcome
to Vermont.”
• Use same design controls as Williston Road commercial core.
Williston Road east (Hinesburg Road to city line)
• Create a new highway commercial district here (same at Staples strip mall west of
interchange) with design controls, standardized front yards, and landscaping requirements.
Map this district along road frontage, with some additional depth.
o Dimensional requirements: IC has the same dimensional requirements as C1-R12
and C1-AIR. Change this: create a two-tier (graduated density) zoning framework
here to encourage assemblage of lots into fewer land uses on larger lots with design
controls and interconnected parking lots.
o South of new district, leave zoned Mixed Industrial & Commercial (IC).
1.2 Traffic Overlay District
• Need further discussion:
o Which projects have benefited from conforming to the TOD?
o What are the unintended consequences, e.g., potential for lot assemblage in areas
where smaller lots are preferred (Williston Road commercial core); locally generated
traffic is constrained while through traffic continues to increase.
o Can new zoning and design controls eliminate need for the TOD in some locations?
1.3 Design Controls
Adopt a Design Review District.
• For Williston Road commercial core, adopt commercial design controls for new uses, change
of use, and major expansions:
o Design controls for exterior of commercial buildings, focused on building placement,
retail frontage, and general appearance, not architectural styles. Establish maximum
build-to line: buildings should be placed no further than a set distance from sidewalk.
o Illustrated design controls with good local examples, including non-building items
such as stone walls and attractive sign materials and design.
Adopt Gateway Design Districts
• Adopt overlay design districts to create gateway appearance at the following locations:
o Dorset Street intersection
o Strip mall area west of I-89 interchange
o Kennedy Drive area
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o Muddy Brook (city line)
o Elements of a gateway design district
9 Building design
9 Landscaping
9 Signs
2.0 CIRCULATION: PUBLIC DECISIONS AND CAPITAL INVESTMENT
2.1 Parking Lots
Behind the stores on north side:
• Formalize the circulation system so that the system is obvious and safe. Stripe the lots to show
travel lanes, parking spaces, and pedestrian paths.
• Ultimate goal: create a public link road through these lots.
• Install more bike racks, located logically and prominently, and under cover where possible.
Other areas:
• Continue to require parking lot connections.
• Airport: require expanded parking garage to have bicycle racks/lockers.
• Park-and-ride lots: identify a location close to residential areas.
2.2 Bicycle Circulation
Bicycle lane or route location. Determine the most effective method of encouraging bicycle
travel on Williston Road. Route 2 Study (RSG) shows bicycle lane and medians.
Other actions:
• Close more curb cuts on Williston Road; create more cross-connections between parking lots.
• Install more bike racks.
• Improve the storm drains.
• Use asphalt and not concrete for any new bicycle route.
2.3 Pedestrian Circulation
Sidewalks
• Install a complete and consistent sidewalk system along entire length of Williston Road and
the near blocks of White and Patchen.
o Install sidewalk in front of Post Office.
• Repair sidewalks.
• Widen sidewalk on north side of road in City Center area; north side is reportedly used more
often than southern side.
• Widen the planting strip to create a deeper buffer between sidewalk and road.
o Alternatively, allow on-street parking.
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• Adopt the Kennedy Drive sidewalk width and detachment (planting strip) as the city’s standard
in commercial areas.
o Widen sidewalk from Hinesburg Road to Kennedy Drive to match the width of
Kennedy Drive sidewalk.
Crosswalks
• Enhance existing crosswalks and install new: crosswalks should be high visibility, zebra-
striped crosswalks. Install mid-road pedestrian refuges, changes to signal timing to give
pedestrians more time to cross, and count-down pedestrian signals.
• Locate crosswalks near bus stops.
• Locate crosswalks mid-block in the road segments that have long distances between blocks.
• Make the Hinesburg/Williston intersection safer for pedestrians.
2.4 Intersections and Road Network
White/Patchen/Williston Triangle
• Options
o Realign the White/Williston intersection with full four-way intersection, all turning
movements allowed and great care for pedestrian safety.
o Eliminate the triangle entirely.
Dorset/Williston
• Plan for eventual four-way intersection here, due to Whole Foods or other project.
Williston Road – eastern length
• Plan for new roads linking Kimball and Williston, to draw commercial traffic away from
(residential) Shunpike and to create a fully connected network. Options:
o Aviation Drive
o Green Tree Drive
o New road midway between the above two, offset from Community Drive
Mary Street
• Connect Mary Street to Market Street, with safe pedestrian and bicycle access.
2.5 Appearance
Landscaping
• Plant street trees along both sides of commercial area on Williston Road. Locate the trees in
the planting strip.
• Allow residential area to have looser private landscaping, especially with regard to front
yard trees.
• Adopt commercial landscaping standards for parking lots and yards. Require businesses to
install and maintain public street trees.
• Create an annual award for best/most creative commercial landscaping.
Utility Lines: Bury utility lines in the area nearest to City Center.
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SHELBURNE ROAD
1.0 LAND USE REGULATIONS: SHAPING PRIVATE INVESTMENT
1.1 Zoning
North of I-189
• Leave as zoned CI-R15 or change to C1-LR (limited retail) for area north of Farrell Street with
Shelburne Road frontage. C1-LR appears to have more suitable dimensional regulations.
• No change to Farrell Street area C1-R15 zone.
• Adopt general commercial design controls for new uses, change of use, and major
expansions:
o Design controls for exterior of commercial buildings, focused on building placement,
retail frontage, and general appearance, not architectural styles. Establish maximum
build-to line: buildings should be placed no further than a set distance from sidewalk.
o Illustrated design controls with good local examples, including non-building items
such as stone walls and attractive sign materials and design.
Swift Street to Holmes Road/IDX Drive
• Consolidate into one district from C1-AUTO and C1-R15, allowing both residential and non-
residential uses.
• Allow lots with frontage on Shelburne Road to be smaller minimum lot sizes than the interior
lots, to provide commercial variety and the density needed to support CCTA’s backbone
service.
• Require moderate density housing as part of any new commercial development.
• Allow wholly residential buildings (market-rate and below-market) on interior lots.
• Adopt general commercial design controls for new uses, change of use, and major
expansions:
o Design controls for exterior of commercial buildings, focused on building placement,
retail frontage, and general appearance, not architectural styles. Establish maximum
build-to line: buildings should be placed no further than a set distance from sidewalk.
o Illustrated design controls with good local examples, including non-building items
such as stone walls and attractive sign materials and design.
Holmes Road/IDX Drive to City Line
• Leave as zoned C2.
• Allow wholly residential buildings (market-rate and below-market), at moderate density, on
interior portions of lots.
• Adopt general commercial design controls for new uses, change of use, and major
expansions:
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o Design controls for exterior of commercial buildings, focused on building placement,
retail frontage, and general appearance, not architectural styles. Establish maximum
build-to line: buildings should be placed no further than a set distance from sidewalk.
o Illustrated design controls with good local examples, including non-building items
such as stone walls and attractive sign materials and design.
Allen Road
• Leave as zoned.
2.0 CIRCULATION: PUBLIC DECISIONS AND CAPITAL INVESTMENT
2.1 Bicycle Circulation
• Widen the bicycle lanes for greater safety. Possible to take one-half foot from each travel lane
to add to the bike lane?
• Create bicycles routes with good signs.
• Create a fund to construct missing links through the neighborhoods.
2.2 Pedestrian Circulation
Sidewalks and Recreation Path
• Allen Road: Install a sidewalk or recreation path along Allen Road from Shelburne Road to
Spear Street.
• Swift Street: Install a full sidewalk or recreation path.
• Van Sicklen Road: Connect Stone House Village development to other neighborhoods.
Options: construct a path through Muddy Brook Preserve to Dubois Avenue neighborhood;
widen Van Sicklen Road; construct a path from Kendrick Avenue to Hinesburg Road.
• Kearl Lane: Formalize the path to Shelburne Road, possibly linked to new road proposed
below.
• Create different sidewalk standards for Shelburne Road and side streets, focused on
improving the walking experience:
o Sidewalk width
o Width of planting strip (detachment or separation from street)
o Street trees: type, quantity, and spacing; other landscaping
o Sitting areas (benches)
o On-street parking
• Create a recreation path west of Shelburne Road that crosses side streets and connects to the
City of Burlington path.
Crosswalks
• Enhance crosswalks and install new ones aimed at visibility and safety: widen, use raised
materials, have mid-road pedestrian refuges, change signal timing to give pedestrians more
time to cross.
• Improvements (e.g., bump-outs, signal timing) or new crosswalks needed at:
o Farrell Street (at Shaw’s)
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o Queen City Park Road
o Hannaford Drive (connecting to Laurel Hill Drive)
o Baldwin Avenue (or nearby, for crosswalk to Orchard School)
o Newtown Avenue (?) (connecting to Fayette Road)
o Bartlett Bay
o Harbor View Road
2.3 Vehicle Circulation
Intersections
• Swift Street light: improve the pedestrian crossing signal there (?)
• Consider eliminating right-on-red
Road Network
• Fayette Road: complete the connection across Hannaford Drive to Queen City Park Road (via
the north part of the Hannaford/Southland site).
• Old Orchard Park Road: complete the connection to the Hannaford/Southland site (via Lowes
parking lot).
• Harbor View Road: north-south link to Green Mountain Drive, with possible additional new
road east-west to Shelburne Road (across existing vacant lot). Kearl Lane path could connect
to the new north-south link.
• Harbor View Road: east-west link across Shelburne Road, with a new road serving new
development in the light industrial area and possibly connecting to Nesti Drive.
2.4 Traffic Overlay District
• Need further discussion:
o Which projects have benefited from conforming to the TOD?
o What are the unintended consequences, e.g., potential for lot assemblage in areas
where smaller lots are preferred (Williston Road commercial core); locally generated
traffic is constrained while through traffic continues to increase.
o Can new zoning and design controls eliminate need for the TOD in some locations?
5.08 Supplemental Standards for All Commercial Districts
A – D [no change]
E. General Commercial and Industrial Design Standards.
(1) Purpose. For lots with commercial and/or industrial use(s), the City of South Burlington’s
objective is to ensure that lot-by-lot development creates an overall attractive and
pedestrian friendly business district or commercial corridor.
(2) Design elements under review. The Design Review Board shall examine three site plan
elements to determine compatibility with existing structures and conformity with this
Section 5.08(E). Those elements are (1) building placement on the lot, (2) building design
and materials, and (3) site layout. Criteria for each such design element are set forth in
Subsections E(3) through (5) of this section, listed below. Other important design elements
are regulated elsewhere in these Regulations, e.g., parking lot landscaping, front yard
landscaping, signs, and exterior lighting.
(3) Building placement on the lot.
(a) Front yard waiver. Primary structures shall be placed as close as practicable to the
front yard setback line. The Design Review Board shall have the authority to reduce
the front yard setback line or to establish a maximum setback on the site, for the
purpose of establishing on the street a consistent frontage that creates coherent public
space. Buildings that are placed deep within a lot can harm pedestrian friendliness.
The preferred build-to line shall be determined by measuring the lots on either side of
the subject site and calculating the average of that portion of the lot lying between the
front of the building and the front property line. If there is no building on an abutting
lot, then the average shall be measured using other lots on the same block with the
same street frontage.
(b) Orientation:
a. Buildings shall promote and enhance a pedestrian scale and orientation on
the facade facing the public street. Street-side building facades, and dwelling
units within all mixed use developments, shall be varied and articulated to
provide visual interest to pedestrians and avoid a flat appearance.
b. All buildings shall have a frontage line with a street. Principal buildings shall
have a main, usable entrance on the street abutting the front yard, also known
as the fronting street. On a corner lot, the principal entrance in both design
and function shall be from the primary pedestrian street. Entrances shall be
easily identifiable and scaled to the size of the street that they face.
c. To encourage pedestrian friendliness, street level uses should be the retail sale
of goods and services, as allowed under the site’s zoning, or the street level
should be designed for future retail uses.
(4) Building design and materials.
(a) General compatibility. In general, proposed structures and major alterations shall be
compatible with existing structures on the same street frontage based on (1) the
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general spacing, mass and scale of existing structures and (2) the street frontage
relationships of existing structures.
a. Proposed changes in exterior architectural features shall be in harmonious
relationship to the remainder of the structure and to the surrounding area.
Unity and compatibility with adjacent structures is to be achieved to the
maximum extent possible. Areas of review shall include the scale and general
size of the structure or structures in relationship to the existing surroundings;
specifically, the structures overall height, width, street frontage, number of
stories, roof type, facade openings (windows, doors, etc) and architectural
details. Adjacent buildings should have similar scale, height, architectural style,
and configuration, as demonstrated to the Design Review Board with
photographs of the adjacent properties.
b. When proposed structures or major alterations are determined by the Design
Review Board to be incompatible with existing adjacent structures, the
applicant may use design techniques to reduce the visual perception of size
and to integrate larger structures with pre-existing smaller structures, and may
be granted a front yard waiver, as per (3)(a) above.
(b) Windows, doors, and other building elements:
a. Building frontages along streets shall break any flat, monolithic facade by
including architectural elements such as bay windows, recessed entrances or
other articulation so as to provide pedestrian scale to the first floor. For multi-
story buildings, facades shall have a recognizable base course or street level
detailed architecturally at a pedestrian scale. This may consist of thicker walls,
ledges or sills, integrally textured materials such as stone or other masonry,
and/or materials, mullions, or panels that are lighter or darker in color than
the upper floors.
b. Windows, doors, columns, eaves, parapets, and other building components
shall be proportional to the overall scale of the building. Windows shall be
vertically proportioned wherever possible.
c. Treatment of the sides and the rear of the structures shall be comparable in
appearance and amenity to the treatment given to the street frontage
elevation.
d. Buildings shall provide ground floor windows on the building facade facing
and adjacent to a public street, or facing onto a park, plaza or other public
outdoor space. Required windows shall allow views into lobbies or similar
areas of activity, pedestrian entrances, or display windows. At least 70 percent
of the primary structure's width at street level shall be clear and unobstructed
window and/or doorways. Darkly tinted windows and mirrored windows which
block two-way visibility are prohibited.
(c) Corner lots. Structures situated at corners shall have their exterior façade design wrap
the corner by continuing facade elements on all street elevations. These elements
include overall building material, window design, and horizontal features such as the
cornice. Corner lot structures shall have a main entrance on the fronting street, and
may have a second entrance on the other street.
(d) Multi-structure sites. In developments where there will be more than one structure on a
single site, such structures, and their signage, landscaping and lighting, shall be
designed as an integrated part of an overall site design related to other surrounding
development and topographical conditions. Applicants shall arrange the various
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structures on the one lot so that structure facades are generally parallel to the fronting
street or proposed interior streets.
(e) Building materials. Where possible, commercial building walls shall use wood, brick,
cast concrete, local stone, or other materials of similar durability and appearance.
Such structures shall include the principal and accessory buildings, and walls and
fences.
(f) Height. In order to effect a transition between non-residential/mixed use areas and
residential areas, the following may be required: where mixed-use development is
proposed on a site, the height of a building may be lower when such building is
located close to any site boundary abutting an established residential area.
(5) Site Layout.
(a) Each approved site design shall contribute to an overall compact and walkable
development pattern for the area. Sites should be designed to allow cross-access
within large developments and from one development to another. Landscaping that
identifies pedestrian ways is encouraged. The site layout shall provide breaks through
large building masses to allow pedestrians to pass through. Site grading should
promote connectivity with adjacent sites. Pedestrian ways shall connect to any nearby
public pathway.
(b) Driveways, curb cuts, parking and internal roadway/traffic circulation shall be
designed so that uninterrupted vehicular access from parcel to parcel is achieved. The
Development Review Board shall have the authority to waive such open space, design
requirement, screening and landscaping requirements as it deems advisable in order
to create the joint use of and common access to parking lots located on adjoining
non-residential properties.
F. Gateway District. If the City of South Burlington official map or official zoning map
shows a Gateway District mapped within the C2- Shelburne Road District, refer to Article
10.05, Gateway Districts.
C1- LR DISTRICT
Summary:
The area north of I-189 on Shelburne Road is currently zoned C1-R15. One of the
recommendations for this area is to rezone the lots north of Farrell Street and with Shelburne
Road frontage to C1-LR. There is one area at present in the city that is zoned C1-LR, the area
around the intersection of Kimball Avenue, Old Farm Road, and Kennedy Drive. The district is
largely unbuilt, with a few structures built along the north side of Kimball Drive. These structures
are built in conformance with C1-LR.
In order to use the C1-LR district in the northern Shelburne Road location, a variation must be
incorporated into the C1-LR text. The variation reduces the front setback to the existing prevailing
setback as this stretch of Shelburne Road has nearly achieved its preferred character. The city is
interested in adaptive reuse, building renovation, and targeted infill development – all in keeping
with established character of this area. The variation also requires adherence to general
commercial design controls.
Amendments:
5.04 Commercial 1 with Limited Retail (C1-LR)
A – C. No change.
D. Area, Density, and Dimensional Requirements. In the Commercial 1 with Limited Retail C1-
LR District, area, density, and dimensional requirements shall be those shown in Appendix C,
Uses and Dimensional Standards. The maximum residential density shall be twelve (12) units
per acre. Where C1-LR is mapped on Shelburne Road north of Farrell Street, the following
dimensional and parking regulations apply:
(1) For each lot, the maximum required front yard shall be established by the prevailing
build-to line, i.e., by measuring the lots on either side of the subject site and
calculating the average of that portion of the lot lying between the front of the building
and the front property line. If there is no building on an abutting lot, then the average
shall be measured using other lots on the same block with the same street frontage.
The minimum front yard shall be ten (10) feet.
(2) Site coverage, side yard, and rear yard standards remain those shown in Appendix C.
(3) Parking shall not be permitted in the front yard setback. Parking shall be located to
the side and/or rear of the building, including within the setback.
E. Additional Standards. All applications within the Commercial 1-LR District shall be subject to
the supplemental standards in Section 5.08.
C1-R12-CORE DISTRICT
Summary:
Williston Road is the best example of the significant difficulties in the existing LDRs. The
regulations for the city’s various commercial districts are one simple cookie-cutter: no matter what
the location or intent of the commercial area, the dimensional regulations are virtually the same.
The recommendation for Williston Road overall is to bookend the corridor with similar highway
commercial zoning (see the proposed C2-Corridor District). The center length of road will retain
its residential core (R4 District). On either side of the R4 community will be higher density
commercial and mixed-use development. That development will be regulated by a variation on
the existing zoning, to be known as the C1-R12-CORE District. The C1-R12-CORE District
overcomes the current LDR difficulty by recognizing the de facto central business district character
of parts of Williston Road. New development in this district will be subject to the proposed design
controls found in Section 5.08.
The Williston Road commercial core lies from the I-89 interchange to Hinesburg Road, with a
smaller area located at Kennedy Drive and Airport Road. The amendments accomplish the
following:
• Greater intensity of commercial uses due to smaller minimum lot sizes. The intent is to
reduce pressure to consolidate small lots into larger lots for larger footprint
businesses. The core area is to remain developed with small to medium footprint
businesses.
• Residences only allowed on upper floors of mixed-use buildings. Residential use is
restricted in this way so that the core remains a strong business district surrounded by
a dense residential community.
• Mixed use buildings allowed, as well as multiple buildings on a lot housing a mix of
uses. Mixed use means retail, office, services, and residential in any proportion so
long as residences are restricted to upper floors.
• Required shared parking and improved pedestrian and bicycle friendliness.
The smaller C1-R12-CORE District will be mapped on the area around the intersection of
Kennedy Drive/Airport Road. In the Cars to People process, the potential functions of this area
were heavily discussed before correct zoning could be found. The area should serve as a small
business district serving its surrounding R4 neighborhood, enabling residents to shop more easily
without driving or bicycling further west into the central business district. Once an airport hotel is
developed in the larger area, the Kennedy Drive/Airport Road area can serve the convenience
and restaurant needs of South Burlington visitors.
This small area is also a gateway, both to the city and to Vermont itself, as it is the first location
travelers see once they make their way out of the airport. The city would like to see a CCTA
transfer point here. The recreation path is planned to cross the intersection and go onto Airport
Parkway. For all these reasons, the area should be attractive; design controls are needed.
Third, the area does not have the same function or land area as the rest of Williston Road directly
east of the Kennedy Drive intersection. That area will be rezoned to C2-Corridor as it serves a
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different purpose. The Kennedy Drive/Airport Road area is more like the central business district
further east, albeit at a smaller scale.
When the new C1-R12-CORE District is mapped in these two locations on Williston Road, the
footprint of the current C1-R12 District will be somewhat reduced: (1) a small portion of Williston
Road will be remapped to City Center to provide greater City Center frontage on Williston Road,
and (2) the area north of the Holiday Inn will be remapped to R4 (or to another residential-only
district). This area north of the Holiday Inn is too far away from Williston Road to qualify as part
of the central business district. It has more in common with the rest of the large residentially
developed community mapped on either side of Patchen Road. The C1-R12 District, as currently
written, will remain mapped on the northern part of Dorset Street.
Amendments:
5.01.01 C1-R12-CORE
A. Purpose. The purpose of the C1-R12-CORE District is to encourage the location of retail and
office uses in high traffic volume areas where a compact business area exists. Mixed-use
developments, shared parking, and coordinated off-street pedestrian and vehicle circulation
are encouraged. Multi-family development is allowed as an upper floor use in a mixed-use
building as residential use benefits the central business area and benefits from public bus
transit.
B. Comprehensive Plan. These regulations hereby implement the relevant provisions of the City
of South Burlington adopted comprehensive plan and are in accord with the policies set forth
therein.
C. Uses. In the C1-R12-CORE District, principal permitted uses and conditional uses shall be
those shown in Appendix C, Uses and Dimensional Standards.
D. Location. This C1-R12-CORE District is intended to be mapped in two areas of the city: (1)
the area is centered on Williston Road from east of the I-89 interchange and Dorset Street to
just east of Hinesburg Road and (2) the area centered on Kennedy Drive and Airport Parkway.
E. Area, Density, and Dimensional Requirements. In the C1-R12-CORE District, area, density,
and dimensional requirements shall be those shown in Appendix C, Uses and Dimensional
Standards. See below for residential density standards.
F. Additional Standards. All applications within the C1-R12-CORE District shall be subject to
the supplemental standards in Section 5.08. In addition, the following shall apply:
(1) sidential use:Non-re
(a) Dimensional standards:
1. Minimum lot size: 20,000 square feet
2. Maximum coverage: 65% for buildings; 70% for site coverage.
3. Maximum setbacks: 15 feet for front yard, 10 feet for side yard, 20
feet for rear yard.
(b) Uses:
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1. All non-residential uses as listed in Appendix C for C1 Districts shall
be allowed in the C1-R12-CORE District with the following
exceptions:
i. Convenience store, principal use: Principal permitted
ii. Manufacturing & assembly from previously prepared
materials and components: Prohibited
iii. Recreation facility, outdoor: Prohibited
iv. Research facility or laboratory: Prohibited
2. Multiple buildings may be permitted on one site, with coordinated
parking and circulation.
3. Mixed-use buildings are permitted. Residential uses shall only be
located on upper (not street level) floors. Upper floors may also
have compatible non-residential uses, such as professional offices.
(2) Residential use:
(a) Development type and density: Multi-family development shall be
allowed, subject to the standards below and subject to Appendix C, Uses
and Dimensional Standards. The maximum allowable base residential
density shall be twelve (12) dwelling units per acre. Residential units may
be market-rate or affordable (as defined and regulated in Article 13.14).
In no case shall all the residential units in one building be affordable units;
there must be a mix of affordable and market-rate units. Mixed-use
buildings with residential uses shall not be developed as PUDs (planned
unit developments).
(b) Residential use location: Residential development shall be allowed only
as an upper floor use in a mixed-use building where the ground floor is
occupied by non-residential uses, e.g. retail, office, or services. Wholly
residential buildings are not permitted. Access to the residences shall be
via an entrance that is separate from the non-residential use(s) entrance.
(3) ing, Circulation, and Access Management:Park
(a) If a multi-use development is proposed, all parking shall be shared
parking as per Section 13.01.E.
(b) Parking spaces for residential units (if any) shall be non-assigned and
shall be shared with the non-residential use(s).
(c) Parking lots shall be designed with identifiable pedestrian paths through
the lot to the building(s) and the street.
(d) Each parking lot shall be designed so that its internal circulation system
physically connects to the adjoining lot(s). Before approval can be granted,
the applicant shall show proof of cross-access easement(s).
(e) Bicycle racks shall be provided near the building entrance(s).
(f) The TOD (Traffic Overlay District) shall not apply in the C1-R12-CORE
District. Each applicant shall demonstrate the following to the satisfaction
of the DRB:
1. Parking spaces are located to the side and/or rear of the building.
2. The number of new curb cuts is the minimum necessary.
Unnecessary existing curb cuts will be closed.
3. If possible, vehicle entries are located on side streets and not on
Williston Road.
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4. Connection from the proposed parking lots to adjoining parking
lot(s) will be achieved and will be clearly identified in order to show
drivers the off-street circulation system.
5. Where possible, the development’s circulation system adds a new
segment to the existing street network or to the off-street network
that connects parking lots.
6. Shared parking will be in effect.
7. Bicycle and pedestrian friendliness will be achieved, through well-
placed bicycle racks, useful and identifiable pedestrian paths, and
pedestrian comfort (e.g., landscaping, separation from vehicle
circulation, and/or sitting and eating areas in front of businesses
near the sidewalk).
C1-R15 DISTRICT
Summary:
The area north of I-189 on Shelburne Road is currently zoned C1-R15. This district is regulated
by Section 5.01 Commercial 1-C1 of the LDRs.
The recommendations are to 1) amend the C1 District text by adding general design controls,
and 2) amend the zoning map to rezone the lots north of Farrell Street to C1-LR. There is no
direct text change needed for C1-R15 on Shelburne Road, as the design controls will be added as
part of Section 5.08. All commercial districts point the reader to 5.08.
C1- AUTO – R15 DISTRICT
Summary:
The area between Swift Street and Holmes Road/IDX Boulevard, on the west side of Shelburne
Road (Route 7) is zoned currently C2, C1-AUTO, and C1-R15. The recommendation is to rezone
the full area to one consolidated mixed-use district. This new district will allow C1 and C2
commercial uses, including auto sales, and will allow housing at South Burlington’s maximum
density of R15. The residential and non-residential land uses will be separated geographically,
with commercial uses allowed along Shelburne Road frontage and multi-family housing allowed
in the interior.
A second change is a reduced minimum lot size for lots with direct Shelburne Road frontage. In
this way, the smaller prevailing lot size on the east side of Route 7 will be mirrored on the west
side and the pressure to assemble lots might be lessened. The current minimum lot size is the
40,000 sf; this is reduced by half to 20,000 sf. This is the same minimum standard for the C1-LR
district. General commercial design controls will be imposed.
The proposed text amends C1-AUTO to allow the standard C1 and C1-AUTO uses, and adds the
residential uses of C1-15.
Amendments:
5.02 COMMERCIAL 1 WITH AUTO AND RESIDENTIAL USES (C1-AUTO-R15)
A. Purpose. The purpose of the C1-AUTO-R15 District is to encourage the location of retail and
office uses in high traffic volume areas where a compact business area exists or could be
created. Other uses that would benefit from nearby access to such a business area, such as
high density multi-family residences, light industry, and automobile sales and service, are
permitted if their site plans maintain or enhance accessibility within and continuity of the
commercial district. Mixed-use developments, shared parking, and coordinated traffic
movements are encouraged.
B. Comprehensive Plan. These regulations hereby implement the relevant provisions of the City
of South Burlington adopted comprehensive plan and are in accord with the policies set forth
therein.
C. Uses. In the Commercial 1- Auto – R15 District, principal permitted uses and conditional uses
shall be those shown in Appendix C, Uses and Dimensional Standards.
D. Location. This C1-AUTO-R15 district in intended to be mapped in one area of the city, and
that is the area west of Shelburne Road (Route 7), from the city line south to Holmes Road,
with exception of the current C2 area accessed from Holmes Road. In addition, the following
location standards apply:
(1) After the adoption of C1-AUTO-R15, new C1-AUTO-R15 districts shall be
mapped only where the existing zoning is Commercial 1 (C1).
(2) Automobile sales and service uses in this district shall be allowed on lots with
frontage on Shelburne Road (Route 7) south of Hannaford Drive.
E. Area, Density, and Dimensional Requirements. In the C1-AUTO-R15 District, area, density,
and dimensional requirements shall be those shown in Appendix C, Uses and Dimensional
Standards. See below for residential density standards.
F. Additional Standards. All applications within the C1-AUTO-R15 District shall be subject to
the supplemental standards in Section 5.08. In addition, the following shall apply:
(1) Residential development type and density: Multi-family development shall be
allowed, whether or not as Planned Unit Developments, subject to the standards
below and subject to Appendix C, Uses and Dimensional Standards. The
maximum allowable base residential density shall be fifteen (15) dwelling units per
acre. Residential units may be market-rate or affordable (as defined and regulated
in Article 13.14). Affordable dwelling units shall be allowed only as part of an
otherwise market-rate building.
(2) Residential use location: Residential development shall be allowed on interior lots,
i.e., lots that lie within C1-AUTO-R15 District but which do not have frontage on
Shelburne Road, and shall be allowed in lots that may be newly created through
subdivision or road creation and which do not have highway frontage.
(3) Residential structure type: Residential development may be located within a mixed-
use building or in a fully residential building.
(4) Residential dimensional regulations:
(a) Minimum lot size: Base residential density shall be fifteen dwelling units
per acre.
(b) Front yard setback: 20 feet
(c) Side yard setback: 10 feet
(d) Rear yard setback : 30 feet
(5) sidential minimum lot size:Non-re
(a) For lots with no frontage on Shelburne Road except for driveway access,
the standard dimensional controls shall apply:
1. Minimum lot size: 40,000 square feet
2. Maximum coverage: 40% for buildings; 70% for site coverage.
3. Maximum setbacks: 30 feet for front yard, 15 feet for side yard, 30
feet for rear yard.
(b) For lots with Shelburne Road frontage, the following dimensional
controls shall apply:
1. Minimum lot size: 20,000 square feet
2. Maximum coverage: 65% for buildings; 70% for site coverage.
3. Maximum setbacks: 15 feet for front yard, 10 feet for side yard, 20
feet for rear yard.
C2 – CORRIDOR DISTRICT
Summary:
This is a variation on the existing C2 District (Section 5.05), based on the stated purpose of C2:
general commercial activity with large-lot retail and high traffic generation uses. The
amendments are designed to affect the outlying portions of South Burlington’s major corridors –
Shelburne Road/Route 7 and Williston Road/Route 2 – which have a heavily travelled,
commercial corridor character. Currently, C2 is mapped in three locations. The proposed C2-
Corridor will be mapped on:
• On Williston Road, west of the I-89 interchange to city line (see map).
• On Williston Road, from Kennedy Drive to city line (see map).
• On Shelburne Road, on the portion currently zoned C2, i.e., from Holmes Road/IDX Drive
south to the city line.
The new C2-Corridor District creates bookends for the two ends of Williston Road that lie within
South Burlington. For Shelburne Road, the new district keeps the substantial commercial potential
intact while adding residential potential. In all three locations, the district recognizes the scale and
type of business currently developed in these two areas, and anticipates future similar scale
economic development. The district allows a mix of uses: retail, office, hotel, service business,
and multi-family residential. Land uses in these areas are anticipated to be larger in footprint
than the commercial core of Williston Road or the Shelburne Road-frontage commercial uses.
Such uses are nearly completely reliant on auto traffic. However, with the addition of multi-family
dwellings nearby, some foot and bicycle traffic can be expected. Development will be subject to
general commercial design controls, as there is a strong interest in keeping these areas
presentable.
The eastern end of Williston Road may be a narrowly mapped C2-Corridor. This makes
residential development on interior lots more difficult. Upper floor residential use may be more
likely.
Amendments:
5.05.02 COMMERCIAL 2 CORRIDOR DISTRICT (C2 – CORRIDOR)
A. Purpose. A Commercial District 2 – Corridor is hereby formed for the same purposes as
Commercial District 2 (C2) and with these additions and limitations: residential
development is allowed and encouraged in order to provide the City of South Burlington
with an increased supply of new and moderate density housing to serve local and
regional needs. Such housing in this district is appropriate as it is situated near bus transit,
employment, and retail, and would generate traffic more on the existing commercial
corridors of Williston Road (Route 2) and Shelburne Road (Route 7) which can absorb the
volume, than on local streets. Commercial uses, such as hotels, offices, restaurants,
shopping centers, and retail stores (also known as general merchandise stores), are
anticipated to be large-format structures, with on-site parking, and generally dependent
on car traffic.
B. Comprehensive Plan. These regulations hereby implement the relevant provisions of the
City of South Burlington adopted comprehensive plan and are in accord with the policies
set forth therein.
C. Uses. In the C2 – Corridor District, principal permitted uses and conditional uses shall be
those shown in Appendix C, Uses and Dimensional Standards.
D. Area, Density, and Dimensional Requirements. In the C2 – Corridor District, area,
density, and dimensional requirements shall be those shown in Appendix C, Uses and
Dimensional Standards.
E. Additional Standards. All applications within the C2 – Corridor District shall be subject to
the supplemental standards in Section 5.08. In addition, the following shall apply:
(1) Residential development type: Multi-family development shall be allowed, without
requiring PUD applications, subject to the standards below and subject to
Appendix C, Uses and Dimensional Standards. Base density shall conform to R12
District controls. Residential units may be market-rate or affordable (as defined
and regulated in Article 13.14). Affordable dwelling units shall be allowed only as
part of an otherwise market-rate building.
(2) Location: Residential development shall be allowed on interior lots, i.e., lots that
lie within C2-Corridor but which do not have frontage on the highway (Route 7 or
Route 2), and shall be allowed in lots that may be newly created through
subdivision or road creation and which do not have highway frontage.
(3) Structure type: Residential development may be located within a mixed-use
building or in a fully residential building.
ARTICLE 10
10.05 Gateway Overlay Districts
A. Purpose. From time to time, the city may designate gateways in various locations. To
supplement public capital improvements in these areas, the South Burlington Land
Development Regulations will shape private development via Gateway Overlay Districts. The
overlay districts will be mapped on areas designated by the Planning Commission. It is
anticipated that most designated gateways will be on major corridors and near the airport.
The Planning Commission may also designate other gateways that mark the entry into a new
neighborhood or passing from another town into South Burlington. Thus, the gateways may
differ in their character, with some being more urban than suburban. The objective of a
Gateway Overlay District is to create a memorable sense of arrival in and a positive first
impression of South Burlington, aimed at motorists, tourists, and residents. Gateway
improvements will promote orderly growth, protect livability and quality of life, ensure
roadway safety, and enhance walkability for pedestrians. Where a gateway is designated
along segments of Shelburne Road/Route 7 or Williston Road/Route 2, the objectives will also
be to ensure that land development adjacent to these gateways is compatible with the
transportation corridor, minimizes traffic hazards and congestion at key focal points of the
community, and enhances the aesthetic and visual character of these regional highways.
B. Applicability. In each instance of a designated gateway, the Gateway Overlay District will
supplement the base zoning district. Unless otherwise provided, the overlay development
standards are in addition to generally applicable standards provided elsewhere in this zoning
code.
C. Boundaries. Each designated gateway shall have unique boundaries, as shown on the official
zoning map. Gateways may be designated on arterial and collector streets near municipal
boundaries where significant traffic volume exists or is anticipated or where in the judgment
of the city, the location marks a significant entrance into the city. The gateway area shall
comprise the roads and surrounding properties a motorist or pedestrian encounters when
entering the city or a special area internal to the city. See Article 3.06.B for a table listing
arterial and collector streets. A Gateway Overlay District shall be shown on the zoning map
by adding "G" to the zoning designation.
D. Administration. This Article 10.05 Gateway Overlay District is organized to set out the
general design standards for all such districts and to allow the creation of specific districts
with specific requirements, similar to the structure of Article 14.10 and 14.11 governing
conditional uses. Specific Gateway Overlay Districts may have development standards in
addition to base zoning that regulate uses, density of housing, intensity of non-residential use,
landscaping, and/or architectural or site layout standards. Development applications in
Gateway Overlay Districts shall be reviewed and approved as per Article 14, Site Plan and
Conditional Use Review.
E. Design Standards: Landscaping. Landscaping shall add visual interest and prominence to
the properties in the gateway, shall establish the entrance corridors into the city, and provide
a consistent visual image between adjacent properties along the streetscape. In addition to
the requirements in Article 13.06, applications shall conform to the following standards:
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(1) A landscape buffer of trees and shrubs with a minimum width of 10 feet shall be
provided within the front yard setback and generally parallel to the right-of-way line of
the road. The buffer shall be designed to provide continuity of vegetation along the
right-of way and a pleasing view from the road. The landscaped area shall be
penetrated only by driveways and crosswalks. Mature vegetation should be retained in
such areas and supplemented, as necessary, by new vegetation.
(2) Where a non-residential land use abuts a residential district, a landscape buffer shall
be provided. Such buffer shall consist of densely planted trees and shrubs from an
approved plant list that can form an effective buffer for all seasons within 24 months
of installation. Mature vegetation should be retained in such areas and supplemented,
as necessary, by new vegetation.
(3) Front yard planted areas shall provide informal plant massing, frame vistas, and
shield parking areas from view. If the specific gateway is determined to have an urban
character, the street trees may be planted in regular spacing rather than in informal
masses, for example one street tree on center every 40 feet of street frontage. Sight
visibility for traffic must be taken into account when placing street trees. Where
necessary, spacing allowances may be made to accommodate fire hydrants, utility
vaults, and other infrastructure elements.
(4) In areas with pedestrian and bicycle activity, the front yard landscaping plan shall
include seasonal color in the planting beds with annual flowers combined with
perennials.
(5) All dead, dying or diseased trees shall be removed and disposed of in an appropriate
manner within 30 days. Replacement trees shall be planted to fulfill the approved site
plan.
(6) Each designated Gateway District may have additional requirements.
F. Design Standards: Site and Building Design. The design standards applicable to all
Gateway Overlay Districts are generally aimed at creating a consistent urban design through
site and building improvements. Each designated Gateway District may have additional
requirements and standards. The general requirements and standards are:
(1) Site.
(a) Building scale, placement of multiple buildings on a site, uses, natural
features, and landscaping should, where feasible, create attractive exterior
space. Site plan review will consider the impact of building design, height,
mass, architectural details and impact on the people who pass by, live, work
or shop within the gateway.
(b) Natural character: Natural features, such as mature trees and hedgerows,
brooks, rock outcrops, and vistas should be incorporated into the development
and protected with natural buffers. There should be minimal re-working of site
topography. Native species planting is encouraged.
(c) Connectivity:
i. Within developments, a complete internal pedestrian pathway system
may be required that links all buildings, parking and green spaces.
This network should connect to public pedestrian pathways that link
schools, recreation areas, and other major destinations. Designated
pedestrian pathways shall be required through parking lots with more
than 50 parking spaces to lead to the building entrances. Internal
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routes within large projects should connect to external pedestrian
systems.
ii. Between adjacent developments, pedestrian pathways and sidewalks
should connect with other developments within the gateway. Where
feasible, unbroken pedestrian routes between developments should be
provided. Paths should be placed in a logical pattern where people will
tend to walk.
(2) Building.
(a) Orientation. Buildings in Gateway Districts shall be oriented so that the
primary façade shall face parallel to the public road giving the building its
street address. Where, because of site constraints or other factors, the
building's primary facade is unable to be so oriented, each facade which is
clearly visible from a public right-of-way or public area shall be designed with
architectural treatments required for entryways. Each side of a corner
building that faces a street shall be considered a facade of the building for
design purposes. Service doors and bays associated within any use within the
Gateway District shall be located perpendicular to the public right-of-way
providing driveway access.
(b) Architecture. Project architecture should present a clearly identifiable design
character. Applicants are encouraged to use traditional New England
architectural elements in the design. It is not intended that buildings be totally
uniform in appearance or that designers and developers be restricted in their
creativity. Rather, cohesion and identity can be demonstrated in similar
building scale or mass, consistent use of facade materials, similar ground level
detailing, color or signage, consistency in functional systems such as roadway
or pedestrian way surfaces, signage, or landscaping, and the framing of
outdoor open space and linkages. New building design should be compatible
(in massing, scale, material, and color) with other nearby structures that
contribute to the overall quality of the Gateway Overlay District. Site designs
should contain some common elements to provide continuity within the
Gateway.
(c) Franchise architecture: Franchise architecture is a standardized generic design
that is repeated with little variation in different geographic locations by a
corporation. Franchise applications remain subject to the overall commercial
design requirements in Section 5.08 and to the Gateway District requirements
in this section.
G. Design Standards: Screening and Shielding. In addition to Section 13.06.C, Screening or
Buffering, the following requirements shall apply in Gateway Districts:
(1) Fencing and Walls:
(a) Chain link fencing with or without slats or vinyl coating shall not be used for
fencing/screening purposes unless screened from public rights-of-way, parking
lots, and adjacent properties. If foliage is used for screening, the foliage must
screen the fence from view within 24 months of installation of the fence. No
barbed wire, razor, electrified fencing, or similar fencing shall be permitted.
(b) Fences and walls shall be designed as an integral part of the primary
structure(s). Such design shall include the use of similar materials, colors and
finishes as the primary structure. Fences and walls shall be architecturally
designed to avoid an expansive monolithic appearance.
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4
(c) Fences and walls cannot encroach within the required visibility triangle at
intersections with adjacent streets or drive aisles.
(d) Fence stringers (the structural framing of the fence) shall be located facing the
interior of the subject lot, with the finished side facing out away from the
subject property.
(2) Outdoor facilities:
(a) Any outdoor storage, trash enclosure and compactor, off-street loading and
service area, freight dock, truck berth or truck parking area, vehicle repair,
service, wash and maintenance bays, roll-up, overhead or garage doors,
ground-mounted mechanical area, drive-through aisle, vehicle bay, car wash
entrance/exit, wash stall, any other similar facilities or other conduct of
business outdoors that is visible from public rights-of-way shall be screened by
building orientation and/or the provision of landscaping, berms, trellises, or
low walls that are consistent with the architecture and exterior materials of the
building.
(b) Truck loading berths and apron space will not be allowed on the street side of
any building. In instances where two or more sides of the building face streets,
loading berths and apron space must be located at the rear or side of the
building. This loading area must be screened from abutting streets.
(c) Screening walls shall not be allowed in any required landscape setback which
is adjacent to a public thoroughfare.
(3) Roof-mounted equipment: Roof-mounted equipment shall be located away from the
building facade edge adjacent to public right-of-way and shall be screened from
pedestrian and vehicular views from the street. Overall screening height must be the
height of the highest element of roof-mounted equipment.
(4) Commercial satellite dishes, antennas and cellular equipment. Satellite dishes,
antennas and cellular equipment must be screened from right-of-way and adjacent
properties. Monopole facilities may be permitted if such facilities are mounted on a
structure or on an existing pole, such as a light standard.
(3) Utilities: All utilities and related facilities, heating, ventilation and air conditioning
(HVAC) units, including on-ground and roof top mechanical systems, shall be shielded
from view. At the time that a property is developed, all electrical, gas, and telephone
service lines on site must be placed underground. Feeder lines may be either placed
underground or along the rear property line. Utility meters and other utility apparatus,
including but not limited to transformers, must be located to the rear of the structure
unless adequately screened from public streets and adjoining properties.
(4) Each designated Gateway District may have additional requirements.
H. Design Standards: Signs. Signs shall conform to Section 13.19, Signs. Each designated
Gateway District may have additional requirements.
I. Design Standards: Lighting. In addition to Section 13.07, Exterior Lighting, the following
requirements shall apply in Gateway Districts:
(1) Applicants shall be required to submit an exterior building and site lighting master
plan detailing areas and structures requiring illumination, lighting fixture styles, light
sources and light levels as part of the site plan review and approval.
(2) Lighting fixtures shall be compatible with and complementary to the architectural style
of the buildings and structures on the site.
(3) Each designated Gateway District may have additional requirements.
APPENDIX C USES and DIMENSIONAL STANDARDS
South Burlington Land Development Regulations PROPOSED AMENDMENTS 03 23 2010
1
C USES and DIMENSIONAL STANDARDS
The tables on the following pages describe the allowable uses in each zoning district in the
City, and the specific dimensional standards applicable to each. The tables are C-1, Table of
Uses and C-2, Table of Dimensional Standards.
APPENDIX C USES and DIMENSIONAL STANDARDS South Burlington Land Development Regulations PROPOSED AMENDMENTS 03 23 2010 1 Institutional Residential Southeast Quadrant RESIDENTIAL & INSTITUTIONAL DISTRICTS IA** PR MU R1 R2 R4 R7 R7-NC* R12 LN QCP SEQ-NRP SEQ-NRT SEQ-NR SEQ-VR SEQ-VC* Residential Uses Single-family dwelling P P P P PUD PUD P P P P P P P Two-family dwelling PUD P P P PUD PUD P P P P P P Multi-family dwelling PUD PUD P PUDPUD PUD C PUD P P Agricultural Uses Horticulture & forestry with on-premise sales Permitted in all districts; 3 acre minimum lot size in all districts. Horticulture & forestry, no on-premise sales Permitted in all districts Keeping of livestock on 10 acres or more P P P P P P P P P Single-family dwelling related to agriculture P P P P P P P P P P P P P Additional dwellings for farm employees P P P P P P P P P P P P P Public & Quasi-Public Uses Cemeteries Conditional in all districts Community center PUD P P P C P P P Congregate care, assisted living, or continuum of care facility C C C C Cultural facility PUD Educational facility PUD P C C C Educational support facilities PU D Funeral homes and mortuaries C C Group home Please see Section 13.12 for regulations. Group quarte rsPU D Hospice P P Municipal facility C P Parks Permitted in all districts Personal instruction facility P Place of worship PUD C C C C C C C C C P Recreation paths Permitted in all districts Social services N-PUD C C C
APPENDIX C USES and DIMENSIONAL STANDARDS South Burlington Land Development Regulations PROPOSED AMENDMENTS 03 23 2010 2 RESIDENTIAL ZONING DISTRICTS (CONTINUED) Institutional Residential Southeast Quadrant Commercial Uses IA** PR MU R1 R2 R4 R7 R7-NC* R12 LN QCP SEQ-NRP SEQ-NRT SEQ-NR SEQ-VR SEQ-VC* Adult use Auto service and repair, accessory use, no fueling pumps C Bed and breakfast, min. 1 acre lot C C C C C C C C*** Family child care home, registered or licensed P P P P P P P P P P P P P Child care facility, licensed non-residential P P Clinic, medical, dental or optical C Commercial greenhouse C-ACC Commercial or public parking facility C C Convenience store <3,000 SF within principal structure N-PUD P Financial institution P Golf course C C C Office, general PUD C PUD P PUD C Office, medical PUD PUD P PUD C Personal or business service, principal use P Personal or business service, up to 3,000 SF GFA per any one principal structure N-PUD P C Pet Grooming P Photocopy & printing shops with accessory retail N-PUD Private providers of public services, including vehicle storage and maintenance Recreation facility, indoor N-PUD C C C C C Recreation facility, outdoor N-PUD C C C C Research facility or laboratory PUD Restaurant, short order N-PUD C Restaurant, standard N-PUD C C Retail and retail services up to 3,000 SF GFA within any one principal structure N-PUD P C Retail food <5,000 SF GFA N-PUD P C Seasonal Mobile Food Unit P Service station w/convenience store C Waste transfer stations C
APPENDIX C USES and DIMENSIONAL STANDARDS South Burlington Land Development Regulations PROPOSED AMENDMENTS 03 23 2010 3 NON-RESIDENTIAL ZONING DISTRICTS Commercial 1 City Center Other Commercial Heavy Commercial-Industrial Airport Residential Uses C1* C1-AUTO-R15 C1-AIR C1-LR CD-1 CD-2 CD-3 CD-4 AR SW IO C2 IC AIR AIR-IND Single-family dwelling PUD PUD PUD P P P Two-family dwelling PUD PUD PUD P P Multi-family dwelling See C2-Corridor (5.505.02), C1-AUTO-R15 (5.02), C1-R12-CORE (5.01.01) PUD /P P PUD P P P P PUD PUD P Accessory residential units Please see Section 3.10 for regulations Agricultural Uses Horticulture & forestry with on-premise sales Permitted in all districts; 3 acre minimum lot size in all districts. Horticulture & forestry, no on-premise sales Permitted in all districts Keeping of livestock on 10 acres or more Single-family dwelling related to agriculture P P Additional dwellings for farm employees P P Public & Quasi-Public Uses Cemeteries Conditional in all districts Community center P P P P P P PUD P Congregate care, assisted living, or continuum of care facility C C C C C C Cultural facility P P P P Educational facility PUD C C C C C C C Educational support facilities PUD* Funeral homes and mortuaries C C C C C C C C C C C C C Group home Hospice P P P P P P P P P Municipal facility P P C C Parks Permitted in all districts Personal instruction facility P P P P P P P P P P P P P P Place of worship P P P P C C C C P P PUD P P P-ACC Recreation paths Permitted in all districts Skilled nursing facility C C C C C C C C Social services C C C C C C C C C *Educational support facilities in C1 are subject to the dimensional standards of the IA-North District. See Article 7.
APPENDIX C USES and DIMENSIONAL STANDARDS South Burlington Land Development Regulations PROPOSED AMENDMENTS 03 23 2010 4 NON-RESIDENTIAL ZONING DISTRICTS (Continued) Commercial 1 City Center Other Commercial Heavy Commercial-Industrial Airport Commercial & Industrial Uses C1* C1-AUTO-R15 C1-AIR C1-LR CD-1 CD-2 CD-3 CD-4 AR SW IO C2 IC AIR AIR-IND Adult use Agriculture & construction equipment sales, service & rental P P Airport Uses P P Animal shelter C P Artist production studio P P P P P P P P Auto & motorcycle sales, service & repair P P P Auto rental, with private accessory car wash & fueling P P P P P Bed & breakfast C C Car wash P Child care facility, licensed non-residential P P P P P P P P P Clinic, medical, dental or optical C C C C C C C C C Commercial greenhouse PUD P P Commercial kennel, veterinary hospital and pet day care C P P P P Commercial or public parking facility C C C C C C C C C C C C Contractor or building trade facility P P P P Convenience store <3,000 SF within principal structure P P P P P P P P P P PUD P P P P Convenience store, principal use See C1-R12-CORE P P Distribution and related storage, with >15% of GFA in office or other principal permitted use by same tenant C P P P Drive-through bank PUD PUD PUD Equipment service, repair & rental P P Family child care home, registered or licensed P P P P P P Financial institution P P P P P P P P ACC P P Flight instruction P P P General merchandise store (NOT DEFINED IN LDRs) PUD C C P Hotel PUD C C C C C C C Hotel, extended stay PUD C C C C C C C Indoor theater P P P P P
APPENDIX C USES and DIMENSIONAL STANDARDS South Burlington Land Development Regulations PROPOSED AMENDMENTS 03 23 2010 5 NON-RESIDENTIAL ZONING DISTRICTS (Continued) Commercial 1 City Center Other Commercial Heavy Commercial-Industrial Airport Commercial & Industrial Uses (Continued) C1* C1-AUTO-R15 C1-AIR C1-LR CD-1 CD-2 CD-3 CD-4 AR SW IO C2 IC AIR AIR-IND Junk yard Light manufacturing PUD PUD P P P P Lumber and contractor’s yard P P P Manufacturing & assembly from previously prepared materials & components P; See C1-R12-CORE P P P PUD P P P P Mobile home, RV and boat sales, repair & service P P Motor freight terminal C P Office, general P P P P P P P P P P PUD P P P Office, medical P P P P P P P P P PUD P P Personal or business service, principal use P P P P** P P P P P P P P Personal or business service, up to 3,000 SF GFA per any one principal structure P P P P P P P P P P P-ACC P P Pet grooming P P P P P P P P P P P P Photocopy & printing shops, with accessory retail P P P P P P P P P P P-ACC P P Printing & binding production facilities C P P P P Private providers of public services, including vehicle storage and maintenance P P P P Processing and storage P P P P P P Radio & television studio P P P C P P P Recreation facility, indoor P P P P P P P P P P P-ACC P P Recreation facility, outdoor C; See C1-R12-CORE C C C C C C C Research facility or laboratory P; See C1-R12-CORE P P P P P P P P P P P P P Restaurant, short order P P P P P P P P P-ACC P-ACC P-ACC P P-ACC P-ACC Restaurant, standard * A restaurant shall be allowed in the IC District if enclosed within a primarily retail or office structure. P P P P P P P P P P P P P-ACC Retail and retail services up to 3,000 SF GFA within any one principal structure P P P P P P P P P P P-ACC P P-ACC P P Retail and retail services, excluding general merchandise stores ??? P P P P** P P P P P** P** P P
APPENDIX C USES and DIMENSIONAL STANDARDS South Burlington Land Development Regulations PROPOSED AMENDMENTS 03 23 2010 6 NON-RESIDENTIAL ZONING DISTRICTS (Continued) Commercial 1 City Center Other Commercial Heavy Commercial-Industrial Airport Commercial & Industrial Uses (Continued) C1* C1-AUTO-R15 C1-AIR C1-LR CD-1 CD-2 CD-3 CD-4 AR SW IO C2 IC AIR AIR-IND Retail food establishment <5,000 SF GFA P P P P P P P P P P P P P-ACC Retail food establishment >5,000 SF GFA and supermarkets P C C P Retail warehouse outlet C P P Sale, rental & repair of aircraft & related parts P P Seasonal Mobile Food Unit P P P P P P P P Self-storage P Service station with convenience store C C Shopping center C P Taverns, night clubs & private clubs P P P P P P P P P P P Transportation services P P Warehousing, processing, storage & distribution C C P P Wholesale establishments C C P P P *Includes C1-R12 and C1-R15 **Principal permitted retail uses are limited to 5,000 SF GFA
APPENDIX C USES and DIMENSIONAL STANDARDS South Burlington Land Development Regulations PROPOSED AMENDMENTS 03 23 2010 7 TABLE C-2 DIMENSIONAL STANDARDS APPLICABLE IN ALL DISTRICTS Use Specific Dimensional Standard Accessory residential units Standards for the principal dwelling unit Additional dwellings for farm employees Standards for single family dwelling in same zoning district Bed and breakfast Standards for single family dwelling in same zoning district. Minimum lot size 1 acre, except SEQ-VC zoning district where there is no minimum lot size. Non-Residential Child Care Facility Minimum lot size 12,000 SF or minimum for two-family dwelling in same zoning district, whichever is greater. Other dimensional standards for two-family dwelling in same zoning district apply. Horticulture and forestry with on-premise retail sales Minimum lot size three (3) acres. Retail uses must be set back a minimum of twenty (20) feet from all property lines. Horticulture and forestry without on-premise retail sales No minimum standards Keeping of livestock Minimum lot size ten (10) acres Single family dwelling related to agriculture Standards for single family dwelling in the same zoning district.
APPENDIX C USES and DIMENSIONAL STANDARDS South Burlington Land Development Regulations PROPOSED AMENDMENTS 03 23 2010 8TABLE C-2 DIMENSIONAL STANDARDS by ZONING DISTRICT District Land Use Minimum lot size (max. residential density) Maximum site coverage: Standard setbacks (feet): Buildings only Buildings, parking and all other impervious surfaces Front yard(s) Side yard(s) Rear yard IA-N ALL 10 acres 20% 40% 75 50 50 IA-S ALL 10 acres 10% 20% 75 50 50 PR ALL none 15% 25% 40 15 30 MU ALL none 30% 70% 40 15 30 SEQ Single-family 12,000 SF (1.2) 15%** 30% 20 10 30 Two-family 24,000 SF (1.2) 15% 30% 20 10 30 All other uses 40,000 SF (1.2) 15% 30% 20 20 30 QCP Single-family 7,500 SF (4) 20% 40% 10 5 10 Two-family 12,000 SF (4) 20% 40% 10 5 10 Multi-family 6,000 SF/unit (4) 20% 40% 10 5 10 Non-residential uses 12,000 SF 20% 40% 10 10 10 LN Single-family 12,000 SF (4) 20% 40% 20 10 30 Two-family 12,000 SF/unit (4) 20% 40% 20 10 30 R1-Lakeview All 14,000 SF (3) 20% 40% 20 10 30 R1 All 40,000 SF (1) 15% 25% 50 25 30 R2 Single-family 22,000 SF (2) 20% 40% 30 10 30 Two-family 22,000 SF (2) 20% 40% 30 10 30 Multi-family 11,000 SF/unit (2) 20% 40% 30 5 5 **For single-family residences in the SEQ existing as of May 24, 2006, the maximum building coverage shall be 20%.
APPENDIX C USES and DIMENSIONAL STANDARDS South Burlington Land Development Regulations PROPOSED AMENDMENTS 03 23 2010 9 District Land Use Minimum lot size (max. residential density) Maximum site coverage: Standard setbacks (feet): Buildings only Buildings, parking and all other impervious surfaces Front yard(s) Side yard(s) Rear yard R4 Single-family 9,500 SF (4) 20% 40% 30 10 30 Two-family 12,000 SF (4) 20% 40% 30 10 30 Multi-family 6,000 SF/unit (4) 20% 40% 30 10 30 Non-residential uses 40,000 SF 30% 60% 30 10 30 R7 Single-family 6,000 SF (7) 30% 40% 30 10 30 Two-family 10,000 SF (7) 30% 40% 30 10 30 Multi-family 6,000 SF/unit (4) 30% 40% 30 10 30 Non-residential uses 40,000 SF 40% 60% 30 10 30 R12 Single-family 6,000 SF (12) 30% 40% 30 10 30 Two-family 8,000 SF (12) 30% 40% 30 10 30 Multi-family See Section 5.01.01.F and 5.05.02.E. 3,500 SF/unit (12) 40% 60% 30 10 30 Non-residential uses 40,000 SF 40% 60% 30 10 30 R15 See Section 5.02.F. R7-NC All residential uses Same as R7 standards All non-residential uses 12,000 SF 40% 70% 30 10 30
APPENDIX C USES and DIMENSIONAL STANDARDS South Burlington Land Development Regulations PROPOSED AMENDMENTS 03 23 2010 10 District Land Use Minimum lot size (max. residential density) Maximum site coverage: Standard setbacks (feet): Buildings only Buildings, parking and all other impervious surfaces Front yard(s) Side yard(s) Rear yard C1 See Section 5.01.01, C1-R12-CORE Multi-family 3,500 SF/unit (12 or 15) 40% 70% 30 10 30 All other uses 40,000 SF 40% 70% 30 10 30 C1-Auto-R15 All Multi-family 40,000 / 20,000 SF. See Section 5.02.F. 40% / 65% 65% / 70% 30 / 15 15 / 10 30 / 20 C1-AIR All 40,000 SF 40% 70% 30 15 30 C1-LR Single-family 6,000 SF (12) 30% 40% 30 10 30 Two-family 8,000 SF (12) 30% 40% 30 10 30 Multi-family 3,500 SF/unit (12) 40% 70% 30 10 30 Retail (principal permitted use, max. 5,000 SF GFA) 20,000 SF 40% 70% 30 10 30 Other non-residential uses 20,000 SF 40% 70% 30 10 30 AR Single-family 6,000 SF (12) 30% 40% 30 10 30 Two-family 8,000 SF (12) 30% 40% 30 10 30 Multi-family 3,500 SF/unit (12) 40% 70% 30 10 30 Retail (principal permitted use, max. 5,000 SF GFA) 20,000 SF 40% 70% 30 10 30 Other non-residential uses 20,000 SF 40% 70% 30 10 30 SW Single-family 6,000 SF (7) 30% 40% 30 10 30 Two-family 10,000 SF (7) 30% 40% 30 10 30 Multi-family 6,000 SF/unit (7) 30% 40% 30 10 30 Retail (principal permitted use, max. 5,000 SF GFA) 20,000 SF 40% 70% 30 10 30 Other non-residential uses 20,000 SF 40% 70% 30 10 30
APPENDIX C USES and DIMENSIONAL STANDARDS South Burlington Land Development Regulations PROPOSED AMENDMENTS 03 23 2010 11 District Land Use Minimum lot size (max. residential density per acre) Maximum site coverage: Standard setbacks (feet): Buildings only Buildings, parking and all other impervious surfaces Front yard(s) Side yard(s) Rear yard CD-1, CD-2, CD-3, CD-4: Please see Article 8, Central District C2 Multi-family See Section 5.05.02.E 6,000 SF/unit (7) 40% 70% 30 10 30 All other uses 40,000 SF 40% 70% 30 10 30 IC All 40,000 SF 40% 70% 30 10 30 AIR All 3 acres 30% 50% 50 35 50 AIR-I All 3 acres 30% 50% 50 35 50 IO All 3 acres 30% 50% 50 35 50
SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGMarch 2010N.T.S WILLISTON ROAD PROPOSED ZONING DISTRICTSC2-CorridorR4 or R12C1-R12-COREC2-CorridorCD1 or 2
March 2010N.T.S. SHELBURNE ROAD PROPOSED ZONING DISTRICTS SOUTH BURLINGTON, VT SOURCE: BFJ PLANNINGC2-CorridorC1-AUTO-R15C1-LR
MEMORANDUM
To: Paul Conner, Director of Planning and Zoning, City of South Burlington
From: Harlan Sexton AICP, Senior Associate
Subject: Cars to People: Height and Setback Waiver Task
Date: May 4, 2010
In this task, we propose new language addressing DRB-granted waivers for height and setbacks.
The existing LDR language does not provide enough guidance on the purpose behind granting
waivers, or the criteria that the DRB is to use in assessing a waiver request. The zoning text needs
to create reasonable and predictable outcomes for applicants and their neighbors. The Cars to
People project aims at creating a pedestrian-friendly urban environment in certain parts of South
Burlington. Following from this, when the DRB grants a waiver, the applicant is relieved from
adhering to the standard zoning requirements. In return there should be no harm to a public
amenity (such as views), no harm to abutting neighbors from encroaching structures, and a
benefit to the public goal of increased walkability and pedestrian environment.
Height Waivers
Existing § 3.07(E) affects all the City’s residential districts. In sub-section (1), the structures being
regulated are non-PUD and non-master plan ones. The height waiver has no limit but there is an
accompanying restriction that requires the front and side yards to deepen as height increases (a
setback “ratchet.”). This provides some protection to abutting residential properties. In sub-section
(2), structures that are part of a PUD or master plan are not subject to any objective limitation.
This is an unusually permissive waiver for residential areas.
In § 3.07(F), the regulations address the non-residential districts. Mirroring § 3.07(E), sub-section
(1) imposes the setback ratchet for non-PUD and non-master plan structures. Sub-section (2)
addresses PUD and master plan structures, with no ratchet. Again, this is unusually permissive.
Non-standard height may be less disruptive in non-residential districts but there should be some
objective limits provided for the DRB and applicant, leading to consistency and predictability.
In the proposed waiver language below, we recommend the following:
• Allow a maximum of 15-foot waiver for residential districts, with setback ratchets. The DRB is
given criteria for evaluating the waiver request. The residential districts are treated more
protectively than the non-residential districts – the proposed changes clarify language and
protect abutters rather than create a new situation.
• Allow two types of height waivers in non-residential districts. In certain parts of Williston Road
and Shelburne Road where dense mixed-use nodes are desired, the height waiver is 25 feet.
There is no setback ratchet. This will allow taller buildings to be built at the standard front
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setback and thus create over time a taller and denser urban design, conducive to a
pedestrian-friendly, walkable environment. In all other non-residential districts, the height
waiver remains at 15 feet with setback ratchets. For both cases, the DRB is given criteria.
• The DRB waiver criteria are simple. They are intended to yield predictable consequences for
site layout when waivers are granted. We propose using identical language in (E)(2) and
(F)(2), since the existing language varies slightly and probably unnecessarily. We propose
using the term “views,” dropping “public scenic” as a qualifier. This might eliminate
discussions on whether a particular view is public and scenic or not. The criteria call simply
for “photographs of views from adjacent public roadways and/or other public rights-of-way,
streets or walkways.” These would be views (of whatever quality) that can be seen from public
roads, etc. The DRB can then look at the photographs and decide if the public’s enjoyment of
the view requires some protection. (Recognizing of course that there is no “right” to a view.)
We have also modified the language in 3.07(G), Rooftop Apparatus etc. We don’t know all the
reasons why applicants seek height waivers, but one reason may be because rooftop structures
are counted towards overall height. We propose loosening this language so that rooftop
structures under a certain limit are not counted. This allowance is typical in many municipal
zoning codes.
3.07 Height of Structures
E. Height Waiver for Structures in the R1, R1-PRD, R1-Lakeshore, R2, R4,
R7, R12, Lakeshore Neighborhood, Queen City Park and Southeast Quadrant Districts:
(1) For a non-PUD or non-master plan application undergoing Development Review Board
review, the DRB may approve a structure that will be located in a zoning district named
above with a height in excess of the standard set forth in § 3.07(D). For each foot of
additional height above the standard, all front and rear setbacks shall be increased by
one (1) foot and all side yard setbacks shall be increased by one half (1/2) foot. In no
case shall the height waiver exceed fifteen (15) feet.
(2) For a PUD (Planned Unit Development) or master plan application undergoing
Development Review Board review, the DRB may approve a structure in a zoning district
named above with a height in excess of the standard set forth in § 3.07(D). For each foot
of additional height above the standard, all front and rear setbacks shall be increased by
one (1) foot and all side yard setbacks shall be increased by one half (1/2) foot. In no
case shall the height waiver exceed fifteen (15) feet.
(3) The applicant shall submit the following to the DRB in support of the height waiver
request: a plan(s) showing the elevations and architectural design of the structure, pre-
construction grade, post-construction grade, height of the proposed structure,
photographs of structures on properties abutting the subject site and across the street, a
site plan with abutting properties showing where the proposed structure will be located on
the site and where the principal structures are located on the abutting properties, a map
and photographs of views from adjacent public roadways and/or other public rights-of-
way, streets or walkways, and a rationale for the necessity of a height waiver.
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(4) The Development Review Board shall use the following criteria in evaluating the height
waiver request:
a. The height waiver will yield a structure in conformance with the general objective
or purpose of the applicable zoning district.
b. The applicant has demonstrated that the height waiver will not detract from a view
from adjacent public roadways and other public rights-of-way, streets or
walkways.
c. The applicant has demonstrated that the setback increase has not shifted the
proposed structure close to the rear lot line such that the rear abutting property
will be adversely affected. In no instance shall the proposed structure encroach
into the required rear setback.
F. Height Waiver for Structures in All Other Zoning Districts
(1) For a non-PUD or non-master plan application undergoing Development Review Board
review, the DRB may approve a structure in a district other than those named above in
§3.07.E with a height in excess of the standard set forth in § 3.07(D).
(a) The C1-R12 CORE District and C1-AUTO-R15 District are intended to be the city’s
most densely developed areas, with the greatest potential for mixed land uses and
pedestrian character. In these districts, a height waiver may be granted up to 25 feet.
(b) In all other non-residential districts, the height waiver shall not exceed fifteen (15) feet.
For each foot of additional height above the standard, all front and rear setbacks
shall be increased by one (1) foot and all side yard setbacks shall be increased by one
half (1/2) foot.
(2) For a PUD (Planned Unit Development) or master plan application undergoing Development
Review Board review, the DRB may approve a structure in a district other than those named
above in §3.07.E with a height in excess of the standard set forth in § 3.07(D).
(a) The C1-R12 CORE District and C1-AUTO-R15 District are intended to be the city’s
most densely developed areas, with the greatest potential for mixed land uses and
pedestrian character. In these districts, a height waiver may be granted up to 25 feet.
(b) In all other non-residential districts, the height waiver shall not exceed fifteen (15) feet.
For each foot of additional height above the standard, all front and rear setbacks
shall be increased by one (1) foot and all side yard setbacks shall be increased by one
half (1/2) foot.
(3) The applicant shall submit the following to the DRB in support of the height waiver request: a
plan(s) showing the elevations and architectural design of the structure, pre-construction
grade, post-construction grade, height of the proposed structure, photographs of structures
on properties abutting the subject site and across the street, a site plan with abutting
properties showing where the proposed structure will be located on the site and where the
principal structures are located on the abutting properties, a map and photographs of views
from adjacent public roadways and/or other public rights-of-way, streets or walkways, and a
rationale for the necessity of a height waiver.
(4) The Development Review Board shall use the following criteria in evaluating the height waiver
request:
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(a) The height waiver will yield a structure in conformance with the general objective or
purpose of the applicable zoning district.
(b) The applicant has demonstrated that the height waiver will not detract from a view
from adjacent public roadways and other public rights-of-way, streets or walkways.
(c) The applicant has demonstrated that the setback increase, if any, has not shifted the
proposed structure (1) significantly out of alignment with the front facades of adjacent
structures on the same street front, or (2) close to the rear lot line such that the rear
abutting property will be adversely affected. In no instance shall the proposed
structure encroach into the required rear setback.
G. Rooftop Structures and Certain Ground Level Structures
(1) The height limits found in §3.07(D), Maximum Height shall not apply to rooftop structures
such as solar collectors, television antennas, satellite dishes, transmission or aerial towers,
masts, flagpoles or monuments, domes, cupolas, church spires, belfries, chimneys, water
tanks, elevator rooms, penthouses, scenery lofts, and air conditioning equipment provided
that such rooftop structure does not occupy more than 15% [20%?] of the roof area nor
exceed 15 feet in height. The specified heights limits shall not apply to parapet walls that are
four feet high or lower.
(2) The height limits found in §3.07(D), Maximum Height shall not apply to ground level stand-
alone non-occupied structures such as communication towers and agricultural silos.
(3) Rooftop structures that exceed the 15% [20%?] limit in sub-section (1) above shall be subject
to conditional use approval by the Development Review Board as per Article 14, Conditional
Uses. Such structures shall not be subject to §3.07(E) and (F) above.
Setback Waivers in PUD Applications
Article 15.02(3) gives the DRB the authority to modify conditions and standards in LDRs for PUD
applications. The limits are: (1) side yard setbacks in Central District 1 cannot be waived, (2)
front, side, and rear setbacks can be reduced so long as no new structure is placed less than five
feet from a lot line, and (3) standard site coverage limits for the district cannot be exceeded. As
per the Cars to People project, the concern is focused on the effect of setback waivers on the
character of Williston and Shelburne Roads. As with height waivers, the intent of granting setback
waivers should be to create predictable and acceptable outcomes, where the private benefit
derived from the waiver either is harmless or actively benefits the public character of the
immediate area.
The most visible effect of the PUD setback waiver is on Williston Road east of Kennedy Drive.
Here, the district calls for a standard thirty-foot front setback. The PUD provisions allow this deep
setback to be reduced dramatically down to five feet. This has resulted in staggered placement of
buildings. Some are right against the sidewalk, creating a pedestrian-friendly urban design.
Others are placed deep into their lots, with parking lots in front – thereby eliminating any
traditional walkable character – and some are likely built at the 30-foot line. Since the city no
longer allows parking lots in the front yards of commercial structures, a deep front setback is no
longer necessary. However, five feet is likely to be too shallow given eventual road widening
using the presumed right-of-way of around 60 feet.
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There are several options, ranging from targeted and strict to wide and flexible:
• Using the existing 15.02(3) language, add new text to entirely eliminate front setback waivers
for PUD applications in the IC Mixed Industrial Commercial District where the site has
frontage on Williston Road. This would affect the eastern stretch near Kennedy Drive to city
line and establish a 30-foot setback as the norm.
• Using the existing 15.02(3) language, add new text to eliminate front setback waivers for all
sites with frontage on Williston Road. This would affect all of Williston Road, regardless of
district.
• Using the existing 15.02(3) language, add new text to allow front setback reductions for PUD
applications on Williston Road limited to one-half the standard setback or fifteen feet from the
front lot line. This could be applied to just one or all four non-residential Williston Road
districts.
• Using the proposed C2-Corridor District (see March 23 email), add text under E, Additional
Standards: “(4) Front setbacks: For PUD applications, the front setback may be reduced no
more than one-half of the front setback shown in Appendix C.” The wording here keeps the
front setback reduction to one-half even if the city decides to change the standard setback
shown in Appendix C.
MEMORANDUM
To: Paul Conner, Director of Planning and Zoning, City of South Burlington
From: Georges Jacquemart P.E. AICP, Principal
Subject: Cars to People: Effects of the Traffic Overlay District
Date: May 4, 2010
The purpose of the South Burlington Traffic Overlay District (TOD) is to regulate traffic and
access management associated with the development and redevelopment of properties in
high traffic areas. TOD regulations cover the city’s two major arterials, Shelburne Road
and Williston Road. These roads are also the focus of the Cars to People Study and thus
the study is concerned with how the TOD effects or hinders the Cars to People goals.
The TOD allows a maximum traffic generation budget for a development site that
depends on the size and specific location of the proposed development. The applicant
may increase the allowable traffic budget by implementing access management
improvements and mitigation measures. Since the TOD was adopted, applicants have in
fact submitted development (or redevelopment) plans that incorporate significant access
management improvements.
We estimate that the TOD regulations had three notable effects:
1. As the result of the TOD traffic budget restrictions, traffic generation is lower in
comparison to a scenario without TOD restrictions. This has a positive impact on
traffic congestion in the affected corridors.
2. The TOD regulations have had a positive impact on access management in the
affected corridors. Applicants have implemented desirable access management
strategies, thereby improving congestion, pedestrian friendliness and safety.
3. The restrictive nature of the TOD probably has had a dampening effect on the
redevelopment pace and magnitude along Williston Road and Shelburne Road.
Since the city generally allows changes to a development parcel as long as traffic
generation volumes do not increase, this dampening effect may have been most
significant for those parcels that today generate low volumes of traffic, since they
are subject to the most restrictive thresholds.
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The TOD regulations have likely had a positive effect on traffic congestion and safety in
the corridors. However, they may also have had the effect of allowing more external traffic
from adjacent towns to use these arterials. This is because we know that traffic will
increase up to highway capacity in congested urban areas. Therefore we have to conclude
that reductions in locally generated traffic may allow more external traffic to use the
resulting available capacity.
To the degree that the access management objectives of the TOD regulations could be
achieved by new zoning regulations, and overall growth in the corridors can be managed
by zoning, the TOD regulations may become obsolete.
MEMORANDUM
To: Paul Conner, Director of Planning and Zoning, City of South Burlington
From: Harlan Sexton AICP, Senior Associate
Subject: Cars to People: Draft Policy Statements Task
Date: May 18, 2010
In this task, we have collected parts of the Cars to People documents that could serve as planning
policies. The policies would then be included in future updates of South Burlington’s
comprehensive plan and/or in the annual capital budget planning process. As per the February 8
Next Steps email, we are providing here policy statements already found in the Cars to People
documents on the following topics:
• Vehicle circulation (Williston Road and Shelburne Road)
• Pedestrian circulation (sidewalks, crosswalks, and recreation path) completion
• Bicycle circulation
• Intersections (as listed in the Task 5 Preliminary Toolbox Concepts Report)
The relevant Cars to People documents are the November 10, 2009 Draft Report and the
November 18, 2009 Preliminary Toolbox Concepts prepared for a Working Group meeting.
Williston Road Connections
Vehicle Circulation. For the length of Williston Road in commercial areas, the City will continue
to require paved connections between commercial parking lots and the closure of excess curb
cuts. For the lots on the north side of Williston Road in the commercial core, the City’s ultimate
goal is to create a public link road through these lots. Interim steps towards that goals will
formalize the informal circulation system so that the system is obvious and safe, possibly by
striping the lots to show travel lanes, parking space, bicycle rack locations, and pedestrian paths.
In the commercial core, more street connections are required, such as between Mary and Market
Streets. All new connections should be designed for safe vehicle, pedestrian, and bicycle use. For
Williston Road east of Kennedy Drive, the City will plan for new roads linking Kimball and
Williston, to draw commercial traffic away from (residential) Shunpike and to create a fully
connected network. This may include Aviation Drive, Green Tree Drive, and a new road midway
between the above two, offset from Community Drive.
In the eastern stretch of Williston Road (past Kennedy Drive), the road overall provides good
circulation. The City will monitor the need for features that make safe left-turns and U-turns
possible. Future planning will focus on improving the sidewalk and Recreation Path system for the
BUCKHURST FISH & JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
MEMORANDUM
Date: May 18, 2009 Page 2 of 3
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current residents and Williston Road employees. The City will remain mindful of protecting the
houses along Shunpike Road from the impact of through traffic between Williston Road and
Kimball Avenue, possibly by creating a new road connection from Kimball to Williston to divert
through and commercial traffic away from Shunpike.
Pedestrian Circulation: Sidewalks, Crosswalks, and Recreation Path. South Burlington has
demonstrated that once sidewalks, crosswalks, and bicycle lanes are installed, pedestrians and
cyclists follow. There should be a complete, consistent, and well-maintained sidewalk system
along entire length of Williston Road. The sidewalks should be widened and should be separated
from the roadway by a planting strip, using the Kennedy Drive sidewalk as City standard. In the
commercial core, crosswalks will be enhanced or installed. Actions may include midblock
crosswalks, mid-road pedestrian refuges, signal timing adjustments, count-down pedestrian
signals, locating crosswalks near bus stops, and making crosswalks highly visible.
Bicycle Circulation. The City recognizes that the cost-effective way of accommodating bicycles on
Williston Road will be through widened sidewalks rather than road widening to create bicycle
lanes. Additional bicycle-friendly actions will be sought, such as safer crossings across highway
ramps, improved stormwater drains, improved paving materials, and improved locations for
bicycle racks.
Intersections. The City will determine the best configuration of the triangle created by White
Street, Patchen Street, and Williston Road to improve safety for turning traffic and crossing
pedestrians. The City will examine its interest in the development potential of land around the
Dorset Street/Williston Road intersection, to determine if this intersection should become a four-
way intersection or remain as is.
Shelburne Road Connections
Vehicle Circulation. The City’s future planning for vehicle circulation on in the Shelburne Road
area will focus on completing internal road links, providing access to the rear of deep lots, and
completing intersections. Specifically, road network improvements will cover the following:
• Fayette Road: Complete the connection across Hannaford Drive to Queen City Park Road (via
the north part of the Hannaford/Southland site).
• Old Orchard Park Road: Complete the connection to the Hannaford/Southland site (via
Lowes parking lot).
• Harbor View Road: Create a new north-south link to Green Mountain Drive, with possible
additional new road east-west to Shelburne Road (across existing vacant lot). A new Kearl
Lane path should connect to the north-south link.
MEMORANDUM
Date: May 18, 2009 Page 3 of 3
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• Harbor View Road: Create an east-west link across Shelburne Road, with a new road serving
new development in the light industrial area and possibly connecting to Nesti Drive.
Pedestrian Circulation: Sidewalks, Crosswalks, and Recreation Path. The City will endeavor to
improve Shelburne Road crossings for walkers and cyclists. This may include adjustments in
signal timing, eliminating right-on-red at certain intersections, more crosswalks, pedestrian
bump-outs to lessen the crossing distance, and/or pedestrian refuges on a landscaped median.
The City will focus its crosswalk program on Farrell Street (at Shaw’s), Queen City Park Road,
Swift Street, Hannaford Drive (connecting to Laurel Hill Drive), Baldwin Avenue (or nearby, for
crosswalk to Orchard School), Newton Avenue (connecting to Fayette Road), Bartlett Bay, and
Harbor View Road.
For the secondary street systems of Fayette Road and potentially Green Mountain Road/Harbor
View Road and the Allenwood access, the City will focus on improving the quality of the walking
experience such as with greater sidewalk widths, enlarged paved areas for benches, and street
trees, all of which may be more urban in character than Shelburne Road.
The City will seek to install a sidewalk or recreation path along Allen Road from Shelburne Road
to Spear Street. Swift Street shall have a full sidewalk or recreation path. Van Sicklen Road will
have a connection from Stone House Village development to other neighborhoods, possibly by
constructing a path through Muddy Brook Preserve to Dubois Avenue neighborhood, widening
Van Sicklen Road, or constructing a path from Kendrick Avenue to Hinesburg Road. The City will
formalize the path from Kearl Lane to Shelburne Road, linked to any new roads.
The City will create a multi-use path west of Shelburne Road that connects with the City of
Burlington path. This path will intersect with cross-streets and be located relatively close to west
side businesses.
Bicycle Circulation. The City will seek to widen the existing bicycle lanes for greater safety,
possibly by shifting one foot from each travel lane to the adjacent bicycle lane. A network of
bicycle routes will be created using good signs. The City will institute a fund so that missing
bicycle route segments can be created through residential areas.
Intersections. The City will undertake improving pedestrian crossing safety along Shelburne Road
to promote walking, at the intersections listed under the Pedestrian Circulation policy.
MEMORANDUM
To: Paul Conner, Director of Planning and Zoning, City of South Burlington
From: Harlan Sexton AICP, Senior Associate; Georges Jacquemart P.E., AICP, Principal
Subject: Cars to People: Shared Parking
Date: May 25, 2010
In this final task, we present ideas on how the City of South Burlington might create shared
parking, as per the February 8 Next Steps email.
When two or more land uses are on the same site or closely proximate sites, they can share the
same parking spaces if their peak parking demands occur at different times (both during the day
and the week). Shared parking allows a parking facility to function efficiently, without the need for
the full count of parking spaces to be built for each individual use. In most traditional mixed-use
parking areas, the spaces are used only part time and with predictable utilization patterns. Where
a parking lot serves both retail and residential uses, for example, each land use has a different
peak utilization period. Thus, parking spaces will be occupied at different times by retail visitors
and employees and residents.
The following are techniques that encourage shared parking.
• Amend the zoning code to specifically allow and enforce shared parking. A significant aspect
of such a policy would be to change the culture of designated spaces. Since transportation
planners have determined that in a parking facility with designated spaces (generally for
apartments) the parking spaces are never 100% full, the required parking ratio can be
reduced by 5 to 10% if spaces for apartments/townhouses are not designated. This in turn
makes it easier to share parking. BFJ found in one study that even at 3:00 a.m., an
apartment building’s designated spaces were only 82% occupied. Similarly, parking can be
shared among employees rather than assigning spaces, because of the likelihood that all
employees will not be present at the same time.
• Increase the amount of public on-street parking in an area, so that off-street parking
standards can be reduced. A related measure is to improve the pedestrian network so that
walking from remote parking areas and shared parking areas is more attractive.
• Require a developer or building owner to pay in lieu fees to the City rather than build the full
requirement of private off-street spaces. This provides a pool of reserved funds for the City to
create public parking in the area that generated the in-lieu fees. In most cases, the
municipality reduces the off-street parking space requirement by a set percentage (say 15 -
20%), not by 100 percent.
• Parking reductions can be based on how well the development application meets certain
criteria, such as the development (1) is within close walking distance to public transit, say no
more than 500 feet, (2) is within or near to City Center or other designated densely
BUCKHURST FISH & JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
MEMORANDUM
Date: May 25, 2010 Page 2 of 2
From: Harlan Sexton AICP, Senior Associate;
Georges Jacquemart P.E., AICP,
Principal
BUCKHURST FISH JACQUEMART, INC. 115 FIFTH AVENUE NEW YORK, NY 10003 T. 212.353.7474 F. 212.353.7494
developed area, (3) sets aside parking spaces for high-occupancy (“ride-sharing”) vehicles or
car-sharing vehicles, (4) “unbundles” its parking, where the parking spaces are sold or rented
separately from the residential or commercial space within the building, (5) does not assign
or reserve the parking spaces, or (6) has an on-site parking management program (PMP).
A parking management program may have some or all of the following components: parking
cash-out program, free or discounted transit passes, priority parking for ride-sharing, bicycle
parking with related shower amenities, car-sharing, shuttles serving major transit facilities or
remote parking lots, and guaranteed ride-home services for transit-riding employees who
work late.