Town of Shelburne Commercial Corridor Charrette, Regulating Plan & Form-Based Code
Route 7 Draft Illustrative Plan
Submitted by: Broadreach Planning & Design Howard/Stein Hudson And Dodson & Flinker
March 31, 2014
Town of Shelburne Page ii
This project is being conducted with financial support from, and in cooperation with, the Chittenden County Regional Planning Commission
March 24, 2014
Vermont Route 15 Bicycle & Walker Scopiong Study Route 7 Draft Illustrative Plan Page iii
TABLE OF CONTENTS I. A. B.
OVERVIEW Introduction Organization of Report
1 1 2
II. THE DRAFT ILLUSTRATIVE PLAN Seven Fold Out Figures
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III. A. B. C. 1. 2. 3. 4. 5. D. E.
7 7 8 9 9 9 10 10 11 13 14
BACKGROUND INFORMATION Purpose of this Report Scope of Work & Process of Study Existing Conditions Introduction Corridor Conditions Public Concerns & Issues Landowner Viewpoints Visual Preference Survey The Illustrative Plan Development Development under Existing Zoning Regulations
Attachments are located after page 18. Attachment 1: Steering Committee Meeting #1 Form-Based Code Presentation Attachment 2: Charrette Vision Plans Attachment 3: Charrette Alternate Illustrative Plans Attachment 4: First Draft Illustrative Plan Attachment 5: Steering Committee Meeting #4 Draft Illustrative Plan Presentation Attachment 6: Steering Committee Meetings #1 and #2 Notes Attachment 7: Charrette Saturday Morning Public Work Session Notes Attachment 8: Land & Business Owner Interview Notes Attachment 9: First Visual Preference Survey Attachment 10: Second Visual Preference Survey Attachment 11: Steering Committee Meetings #3 and #4 Notes Attachment 12: Charrette Monday Evening Public Work Session Notes Attachment 13: Background Information
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Commercial Corridor Charrette, Regulating Plan & Form-Based Code Route 7 Draft Illustrative Plan Page 1
I.
OVERVIEW
A.
Introduction
The Town of Shelburne, Vermont is working to develop Form-based Zoning for the Route 7 Corridor north of the LaPlatte River to the Town line. For the purposes of this project, the Route 7 ‘Corridor’ refers to properties fronting on the Route 7 right-of-way as well as adjacent mixed-use areas. The process has been underway for several years. The overall purpose of the project is to advance through local regulations a “vision for change” expressed in the A Vision for 7 report completed for the Town in late 2011 To look at this report or to get more background information on the project, go to the Town's webpage and click on the "A Vision for 7" button a little ways down on the right side of the page. Attachment 13 of this report also includes copies of several informational pieces describing the project written by Kate Lalley, Vice Chair of the Shelburne Planning Commission as well as information on where this type of zoning has been adopted elsewhere in the Northeast. As part of the process of developing the code, the Town is working with a consulting team led by Broadreach Planning & Design with assistance from Howard/Stein-Hudson and Dodson & Flinker Associates (the consulting team). The consulting team is helping to develop an Illustrative Master Plan and a Regulating Plan as tools aiding the development of the final Form-based Code. This report presents the results of the initial portions of the work in the form of a draft Illustrative Plan for the Route 7 Corridor. The final Illustrative Plan will serve as the basis for a more general Regulating Plan, which in turn will serve as the basis and become part of the overall Form-based Code. While the Town may complete the overall process of developing and adopting the new zoning by the end of 2014, the transformation of the Route 7 corridor itself will be gradual and will take many years. The Town and consulting team are distributing the draft Illustrative Plan contained in this report in the sincere hope Shelburne residents, landowners, and business owners will review it again and suggest edits or modifications before it is finalized. It should be noted, however, that the Illustrative Plan will serve no independent function beyond providing a basis for the Regulating Plan. Residents, landowners, and business owners will also be provided with an opportunity at a subsequent public work session to comment on the proposed Regulating Plan. B.
Organization of Report
After this Introduction, the report presents the draft Illustrative Plan, with details as needed to provide explanation. Broadreach Planning & Design * Howard/Stein-Hudson * Dodson & Flinker Associates
Town Shelburne Page 2
The third section of the report presents a summary of the process and background information that led to the development of this draft Illustrative Plan. It includes a summary of the various different aspects of existing conditions, including physical conditions in the corridor, the personal preferences of land and business owners in the corridor, and the overall concerns and preferences of many Shelburne residents. Those looking for even more details on the various different aspects of the existing conditions can look in the Attachments. The report is organized for double-sided printing. II.
THE DRAFT ILLUSTRATIVE PLAN
The draft Illustrative Plan contains numerous elements that reflect the input of the community over the past two months. In particular, the plan: Includes several different nodes along Route 7, each with a different feel and density; Incorporates additional residential development in a mix of housing types; Adds focused commercial development potential along the corridor; Works with the current development in most cases to expand or upgrade existing structures along the Route 7; Preserves much of the existing open space visible from Route 7; Adds more street trees along Route 7; Includes street lights, banner, and coordinated directional signs; Maximizes connectivity between the various areas and neighborhoods along and outside of the corridor; Expands possible views to Lake Champlain; Include a mix of building types and sizes with varying setbacks from Route 7; Creates a campus typed development with interrelated roads and buildings relating to each other in the area north of the Bay Road intersection; Develops a walkable neighborhood center in the vicinity of Shelburne Bay Plaza to cater to local needs; Creates a gateway at the northern Town line so that the entrance into Shelburne is well delineated; Keeps the existing mature trees at the southern end of the corridor; Designates part of the land between Route 7 and Webster Road as a potential location for a future fire house; Include a visitor center, possibly with a gas station, south of the Bay Road intersection; Include locations for innovative storm water management techniques throughout the corridor; Creates a series of large and small, public and private green spaces along the Route 7 corridor; Allows greater use of existing and future transit service on Route 7; and Adds additional bicycle and pedestrian circulation on each side of Route 7. March 24, 2014
Commercial Corridor Charrette, Regulating Plan & Form-Based Code Route 7 Draft Illustrative Plan Page 3
The following pages show the Illustrative Plan as a whole, followed by more detailed descriptions of the various sections along the corridor.
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ILLUSTRATIVE PLAN OVERVIEW: DEFINING THE CHARACTER OF EACH PART OF THE STUDY AREA Mixed-Use Village: The southern growth node expands around Shelburne Commons, including redevelopment of the existing Rice Lumber facility. New mixed-use buildings and additions help enclose both sides of Rt. 7, with new interior street connections providing access to areas with a mix of single and multi-family homes. Site planning and architecture reflect the character of a traditional village, with irregular setbacks and varied building size, massing and proportions. Sidewalks and trails link a series of small parks and courtyards, allowing residents and visitors to get around the entire area on foot.
Green Corridor: The central part of the study area is marked by automobile-related uses that will likely remain for the foreseeable future. Broad front setbacks, combined with views of the Monroe Brook floodplain and the Dolan Farm, give the area an open, rural character. By maintaining the current setbacks and enhancing landscaping along Rt. 7, the area can become an attractive buffer between activity centers to the north and south. Businesses can expand to the rear of existing structures.
Mixed-Use Street: Redevelopment of the northern end of the corridor takes the form of a traditional village street, with 2-3 story buildings expanding toward Rt 7 and wrapping around the corner of the existing side streets. As buildings are replaced over time, placement towards the Rt. 7 frontage allows parking to be hidden behind. Linking rear parking lots provides convenient access from the side streets, allowing for many of the existing driveways along Rt. 7 to be closed and replaced with new buildings and landscaping.
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Mixed Residential Areas: Parts of the study areas that are largely residential will remain so, with opportunities for redevelopment of available sites for additional homes. Where space allows, this could include new neighborhoods designed according to traditional village principles, with relatively narrow streets, small parks and garden spaces, and continuous sidewalk/trail connections connecting homes with nearby amenities.
Paths and Trails: Over the last few years the town has been planning bicycle and pedestrian trails linking residential neighborhoods with other areas. A bike path has already been constructed along Webster Road, and could be connected to a potential path following the railroad right-of-way. Existing Paths Proposed Paths
Special Uses: Town-owned land slated for a future school and the adjacent Dolan Farm create a unique area of opportunity. While low-density residential growth is currently the most likely option, the open, rural character of these properties could be largely preserved by clustering villagestyle housing, a conference center, potential school facilities, and other uses while preserving the surrounding open space.
Business Campus: Areas currently zoned commercial/industrial continue to provide a place for larger business uses that don’t require direct visibility from Route 7 but benefit from easy access to the corridor. New buildings and expansion of existing structures, access drives, parking lots, and open space areas are coordinated across lot lines to create a an attractive pedestrian campus. By sharing access drives, parking lots and other facilities where possible, land can be used more efficiently and space left over for a shared park system. Stormwater detention and treatment are accomplished with rain gardens, swales and ponds incorporated into the park system.
THE GREEN GATEWAY Commercial/Industrial Uses: New buildings and expansion of existing structures provides for business expansion. Connections across lot lines provides for shared driveways and more efficient parking layout, allowing for a generous green buffer along Rt. 7.
Existing Paths
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Green Corridor: Preservation of sensitive open space along the river is supplemented by conservation of trees and lawns along the roadside and the forested part of the “island” between Webster Road and Rt. 7. The River Landing parcel off Webster Road provides a focus for connecting to the river itself and potential bridge crossing for the bike path.
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Rice Lumber: The site plan for a new Rice Lumber facility has already been approved. Set back from Rt. 7 on its own access road, it fits the pattern of adjacent commercial/ industrial uses.
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Fire Station: Ease of access and visibility provide a good site for a new fire station. A private use could take the same form: clustering structures in the center of the island and leaving the rest as forest.
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Residential Neighborhood: A new road connects from Webster road across from Harvest Lane north to the campground access. The road would provide frontage for new residential lots. The example shown here creates a neighborhood of 40-45 homes. As shown, the lots average 50 feet frontage by 100 feet depth, or about 1/8 acre - a traditional village density. Sidewalks, street trees and a small park provide for a pleasant streetscape. Parking could be provided on driveways shared by pairs of units, with garages in the rear to North reduce impact on the character of the street.
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MIXED-USE VILLAGE Rice Lumber Site: Construction of a new facility at the south end of the property opens up the existing Rice Lumberyard for mixed-use redevelopment. New buildings along Rt. 7 include a mix of commercial uses and/ or apartments. Some of the existing structures, including the old barn, are incorporated into the project, with a small park at the corner to create a welcoming entrance feature. Within the project, new streets provide frontage for 20-30 single and/or multi-family homes. At the center of the block is a public park with paths that wind through the landscape and connect to adjacent uses. Rain gardens treat stormwater runoff and add to the diversity of the landscape.
Shelburne Commons: Revitalization of the commons is enhanced by redevelopment of adjacent parcels for compatible use. New buildings provide more of a presence along Rt. 7, framing a new park along the frontage (which is made possible by a modification to the existing southbound access road). At the traffic light, the main entrance is extended into a “main street,” with the red barn building on one side and new mixed-use structures lining the south side. On-street parking provides for convenient access to shops, with long-term parking available in larger lots behind the buildings. To the rear, a new multi-family development surrounds a shared open space area.
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Yankee Doodle Motel: a new driveway connects from Shelburne Commons to Winter Haven Road, allowing for access and parking to be shifted to the rear of the existing motel building. This allows for expansion of the hotel and elimination of the access drive along Rt. 7. New trees and landscaping improve the appearance of the roadside.
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East Side Parcels: From the Dutch Mill Restaurant to Archie’s Grill there are ample opportunities for infill development. At the Dutch Mill the existing access roads are extended to connect adjoining parking lots. New buildings are located to shape the public space, in this case surrounding a small green behind the restaurant.
Longmeadow Drive: Linking parking lots and driveways across lot lines creates more efficient interior circulation and allows buildings to expand toward Rt. 7. Reducing the number of curb cuts allows for a more comfortable pedestrian connection from the village center to the residential neighborhood east up Longmeadow Drive.
Open Space and Landscaping: Where appropriate, existing farmland and other open space along the roadside are preserved to help define the edge of the village center. Existing trees along the corridor are supplemented by continuous plantings of large shade trees - both in the verges as well as in suitable areas of the grass median in the center of Rt. 7. Existing sidewalks are connected to adjacent buildings and parks. Wherever possible, rain gardens and landscaped ponds help to collect stormwater close to the source and filter it back into the ground.
GREEN CORRIDOR Landscaping the Corridor: Many of the existing street trees are dwarfed by the scale of Route 7, either because they are small varieties or were planted in poor soil conditions. Properly prepared and planted shade trees are planted both within the public right-of-way and on the edge of private lots to create a continuous corridor of trees, supplemented where space allows by parallel planting in the median of the roadway. Varieties should be major shade trees, with an emphasis on salt- and drought-tolerant species.
Visitor Center: Bay Road is the northern access to Shelburne Farms, and the logical location for a new visitor center that could welcome tourists to Shelburne and provide information and directions to its many attractions. Cottages on the former Red Apple Motel property could be re-purposed as small shops for local businesses. A gas station at the rear of the site could provide another reason for visitors to stop
Commercial Uses: Most of the existing uses are set back from the road, providing an opportunity to maintain the front of the lots as green space. Plantings of shade trees help to create a more pleasing and comfortable environment for walking and driving, without blocking views of the various businesses from the street. New connections across property lines link adjacent driveways and parking lots, reducing the need to pull out onto Rt 7.
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Commercial Expansion: On the East side of Route 7 there is a row of traditional frame houses and outbuildings, framed by large trees and views to open space in the distance. Expansion of these properties for commercial and/or residential use can take advantage of the depth of the lots, with additions tacked on to the rear of existing buildings in the pattern of the traditional attached barn complex. A shared access road links lots in the rear.
Monroe Brook: the brook and its adjacent floodplain are protected by the town’s Floodplain and Watercourse Overlay District, and create an attractive natural setting with views beyond to the Dolan Farm.
SCHOOL SITE AND DOLAN FARM Residential Village: Current zoning for the area requires a minimum lot size of 15,000 square feet. In this alternative, homes would be built on lots averaging perhaps 5,000 square feet - a traditional village density - while preserving the remaining land as permanent open space. This approach draws on the historic traditions of the Vermont village to create attractive, walkable streets and a sense of community. A key principle is to use shared driveways and alleys to reduce the amount of pavement and placing garages in the rear of each lot. This reduces curb cuts along the street frontage, and creates an attractive streetscape that is not visually dominated by parked cars in driveways. Existing Storage Complex: Strategically located plantings help to screen the storage area from public view. Small Hotel and Conference Center: the former Dolan Farm provides an attractive rural vista from Route 7, but under current zoning the most likely future use for the property is a residential subdivision. While some entity could purchase the site and keep it as open space, another approach is to encourage a use that would concentrate development in a single location and preserve the bulk of the property as agricultural open space. This alternative explores possibilities for a hotel/conference center, with a group of traditional building forms clustered around a courtyard. The existing farm access road, with its median cut on route 7, would be improved to provide access, with parking hidden behind the building. Middle School: The property adjacent to the Dolan farm was set aside for use as a school. This illustration shows a possible layout for a middle school, with bus loop, parking and playfields, that avoids the wetter parts of the site. A significant portion of the property could remain as open space. Proposed Paths Existing Buildings Proposed Buildings
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BUSINESS CAMPUS Lake
Automobile Dealerships: the dealerships and related uses along the corridor are generally set back from the road - but also rely on good visibility to attract customers. Plantings of large shade trees along the roadside can keep the distant views open while improving the appearance and physical comfort for drivers and pedestrians.
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Landscaped Parks: zoning setback and lot coverage requirements have resulted in a dispersed pattern of development with a lot of leftover space. By consolidating green space and working across lot lines, there is room for new parks, with paths that invite people to walk from one place to another instead of driving. Paths are linked to existing and future sidewalks to create a continuous walking and biking trail network. Business Campus: While ownership and development decisions remain separate for each property, by working together businesses can be part of an attractive campus of buildings. Buildings are placed close to streets, with sidewalks, trees and landscaping providing shade and encouraging walking. Parking lots are placed to the side and rear of buildings and shared by multiple buildings where appropriate. Shared Park System: Many buildings could look out onto a common open space area with lawns, trees and walking paths. Rain gardens and ponds help to retain and treat stormwater, while adding to the diversity and beauty of the park system. With this attractive setting, mixed residential and commercial uses become a more viable part of the potential market mix, allowing the entire project to be Proposed Paths more economically successful.
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MIXED-USE STREET Potential location for new baseball stadium and train station serving the neighborhood.
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Proposed Paths Existing Commercial Uses: Existing uses like the Shelburne Bay Plaza remain, but are encouraged to expand and diversify with additions that fill out toward Rt 7 and adjoining streets.
New Commercial and Mixed Uses: as buildings are no longer needed, they are replaced by new structures that are built up toward the road frontage, with parking hidden behind. Driveways and alleys that cross lot lines create a continuous access corridor across the rear of lots, with a buffer of trees to create a screen next to existing residential uses. Improved access in the rear of lots allows many of the driveways along Rt. 7 frontage to be removed and replaced with landscaping.
Residential Diversity: The neighborhood already contains a mix of traditional single-family homes, townhouses and mobile homes. Infill of some of the remaining lots could take the form of a cottage community, which has the density of a typical multifamily project but with small single-family cottages. Buildings are clustered to preserve open space, typically given over to shared garden and park spaces.
Streetscape: As buildings fill in along the roadside and parking and circulation are shifted to the rear, the street frontage can be replaced with sidewalks, trees and landscaping. Visitors are encouraged to park once and walk between uses, and provision is made for sidewalk cafes and outdoor display areas. Special plantings, signage and lighting create a gateway experience marking Shelburne’s northern entrance.
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To help convey the concept in more detail, the consulting team developed a set of three dimensional graphics showing the area near the Route 7/Longmeadow Road intersection. Illustrations 1, 2 and 3 shows these figures. Illustration 1: Existing Conditions Looking North near Route 7 and Longmeadow Drive
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Illustration 2: Illustrative Plan Looking North near Route 7 and Longmeadow Drive
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Illustration 3: Illustrative Plan Looking North near Route 7 and Longmeadow Drive
III.
BACKGROUND INFORMATION
A.
Purpose of This Report
This report presents the results of the initial portions of the work in the form of a draft Illustrative Plan for the Route 7 Corridor. The final Illustrative Plan will serve as the basis for a more general Regulating Plan which in turn will serve as the basis and become part of the overall Form-based Code. The Town and consulting team are distributing the draft Illustrative Plan contained in this report in the sincere hope Shelburne residents, landowners, and business owners will review it again and suggest edits or modifications before it is finalized. It should be noted, however, that the Illustrative Plan will serve no independent function beyond providing a basis for the Regulating Plan. Residents, landowners, and business owners will also be provided with an opportunity at a subsequent public work session to comment on the proposed Regulating Plan.
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B.
Scope of Work & Process of Study
The Town created a Steering Committee for the project to increase the amount of public input the work received. The Steering Committee consists of landowners and business owners in the Route 7 Corridor, Shelburne residents, representatives of interested not-forprofit groups and Town Officials. The Committee’s role is to meet and provide input on the issues and concepts the study is addressing. Additionally, the project includes numerous public work sessions that provide a chance for anyone in the community to review and comment on the different work products of the project. To begin the project, the consulting team cataloged and reviewed the existing physical and cultural conditions in and near the Route 7 Corridor. Section II.B provides more information on the existing conditions. They also had an initial meeting with the Steering Committee to present the concept of a form-based code to them and to have a general discussion of the project. Attachment 1 includes as copy of the presentation the consulting team made to the Steering Committee. After the existing information had been gathered and also reviewed with the Steering Committee, the consulting team collected the thoughts, concerns, issues and wishes of business owners and owners of larger land holdings in the corridor as well as those of the Steering Committee and the public. Sections II.C and II.D provide more information on the public concerns. The consulting team also worked with the Town to create a visual preference survey to provide a glimpse into the preferences of Shelburne residents on building types, designs, scale and layout. Section II.E of this report provides more information on the visual preference survey. These initial efforts were preliminary activities leading to a three-day charrette. The charrette was an intensive planning exercise during which the consulting team came to the Town and worked with the public in three groups to develop draft “vision plans� for the corridor on the first day of the charrette. The vision plans formed the basis for the creation of alternative development master plans, called Illustrative Plans, on the second and third days of the charrette by two groups. The two alternate Illustrative Plans show the general arrangement of buildings, landscaping, parking, roadway, trails, storm water management and other aspects showing the ultimate development of the Route 7 Corridor. Attachment 2 includes copies of the three vision plans created during the charrette. Attachment 3 includes copies of the two alternate illustrative plans created during the charrette. Following the charrette, the consulting team worked with the Steering Committee during their third meeting to develop a first draft of the final Illustrative Plan by combining the preferred elements of the two alternate plans into a single plan. Attachment 4 includes a copy of the first draft of the final illustrative plan that the consulting team developed after this meeting. Attachment 5 includes a copy of the presentation made to the Steering
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Committee at their fourth work session during which they helped finalize the first draft of the illustrative plan that is presented in the main portion of this report. C.
Existing Condition Summary
1.
Overview
Figures EC-1 through EC-7 show different physical and cultural aspects of the existing conditions along the Route 7 Corridor. The consulting team gathered the information through examination of Geographic Information System (GIS) information, aerial photos and fieldwork in the study area. Together they present a snapshot of where things stand now as the Town contemplates how things may change in the future. The other aspects of existing conditions include the ideas, concerns, preferences and suggestions of the people who use the corridor for transportation, shopping, living, working or other activities. The report highlights the important aspects of each of these topics, with more detailed information contained in the Attachments. 2.
Corridor Conditions
As the main arterial highway in Shelburne (and one of the most heavily traveled roads of its type in the state), Route 7 provides for north/south movement of Town residents, residents of neighboring towns, and passers-through. Originally surveyed in the 1790s to have a width of six rods (99 feet), it also serves as the commercial spine of the community, linking historic Shelburne village with the greater Burlington area and with points south. The road is split by a median and contains two travel lanes in each directions with left turn lanes in the middle. Bicycle lanes line each side of the road as well as sidewalks setback approximately five feet from the curbs. The Route 7 right-of-way is under the administration of the Vermont Agency of Transportation. Overhead utility wires and support poles line one and sometimes both sides of the corridor. Street trees of varying heights and healthiness partially line the sides of the road inside on either side of the sidewalk. Since the advent of the automobile, increasing portions of the corridor, particularly those located north of Shelburne village, have been developed to accommodate retail establishments, lodging, restaurants, and automobile dealerships, among other uses. There is a corresponding mix of building types along the corridor. The setbacks from the road and from the side lot lines reflect the zoning regulations or absence of regulations that existed at the time the buildings were built. There are still open, undeveloped parcels along the corridor. The development of land along Route 7 over time, as well as the previous widening of Route 7 itself, have increased the amount and reduced the quality of storm water runoff. The
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Town is now looking at ways to improve the overall quality of storm water runoff in this portion of the Town. 3.
Public Concerns & Issues
At the first and second meetings of the Steering Committee, the discussion focused on concerns and issues about the Route 7 Corridor. Attachment 6 includes a copy of the notes from the first and second Steering Committee work sessions. The opening public sessions of the charrette on Saturday morning provided an opportunity for the community to express their concerns, ideas, suggestions or other comments on the Corridor. Attachment 7 includes notes on the Saturday morning public work session. Many of the comments from the public echoed comments from the Steering Committee. Some of the most relevant comments were:
4.
The traffic generated by new development - motor vehicles, bicyclist and walkers needs to be addressed; There is a lack of connectivity between business along the road, between the businesses and neighborhoods in the corridor and between neighborhoods on either side of Route 7; The corridor in general is not very aesthetically interesting; small or dying street trees, empty or un-maintained buildings, minimal views to the lake, power lines, dumpsters and uninspired building designs all contribute to the poor aesthetics; The project needs to focus on creating a community, not on just making it look better; gathering spaces, small community retail centers, mixed housing types and better landscaping are design elements that can contribute towards a better sense of community; The entire area needs to have a better system of storm water management if it is to accommodate greater development; and The plan should maintain the existing open areas. Landowner Viewpoints
To gain a better understanding of what the owners of the larger parcel in or near the Route 7 Corridor thought about the future of their property, the consultant team conducted individual interviews with several of them. Attachment 8 includes notes on the various interviews. The landowners interviewed were all supportive of the efforts to update the zoning and optimistic about the outcomes of this project. They also seemed to think that the Town has become more supportive of the business in the Route 7 Corridor in the last few years and hoped that the support would continue. They all felt that there were still problems with the corridor, such as the inconsistency in development, with poorly maintained and sometimes empty structures adjacent to well maintained, thriving establishments. The landowners were
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all concerned about the aesthetics of the corridor and wanted it to improve. They were all acceptant of more street trees along the road. Significantly, they also were supportive of allowing trails or accommodating other public uses on their properties but felt that development incentives would be a helpful encouragement for doing so. Most but not all would consider further development on their properties if the zoning allowed it. The landowners all thought that a small hotel/conference center would be a catalyst for the corridor but they did not all believe that the corridor was ready to support such a use at this time. In addition to the interview conducted by the consulting team, the Town Planner also shared some of the initial conceptual alternatives of the Illustrative Plan with other land or business owners. In general, they too supported the concept of changing the zoning along the Route 7 Corridor, especially if it involved the ability to undertake more development on their properties. 5.
Visual Preference Survey
In the late summer of 2013, the consulting team worked with the Town’s Director of Planning to develop an exploratory visual preference survey. The goal of the exploratory survey was to solicit input from Town residents regarding building design and scale. Representatives of the Team and Town conducted the visual survey at a booth on “Shelburne Day,� in August. Visitors to the booth were asked to place adhesive dots on their favorite images in a number of categories. The images were of buildings and landscape of different sizes, types and designs, many of them from along the Route 7 Corridor or nearby areas. Illustration 4 shows some of the images that received the most votes. Attachment 9 includes the series of images presented in the initial survey.
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Illustration 4: Preferred Visual Images First Portion of the Survey
Later in the project, the consulting team worked with the working group to conduct a more detailed online visual preference survey. This survey also presented a series of building, sign or landscape images but from other areas in New England to minimize personal associations with the buildings or landscape. The survey asked participants to indicate if they liked or disliked an image. Illustration 5 shows some of the most relevant results of the second portion of the visual preference survey. Attachment 10 contains the full results of the second portion of the visual preference survey. In general, the second portion of the visual preference survey showed that the community likes smaller buildings with sloping roofs, dormers and gables over larger buildings with flat roofs. They also prefer lots designed to incorporate greenery over lots without such greener. Buildings clustered to relate to each other also appear to be preferred over isolated buildings. There is a preference for interesting signs directly on buildings rather than large signs along the road. The respondents also liked lively places for the community to gather.
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Illustration 5: Preferred Visual Images
D.
The Illustrative Plan Development
The consulting team developed the draft Illustrative Plan presented in this report after a series of public work and steering committee sessions during and after the charrette. These sessions provided input on the different elements of each of the alternative illustrative plans best suited the visions of the community. Many of the initial comments from the community at the end of the charrette focused on how the new zoning system resulting from the illustrative plan would work and not on the
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design or layout. Even so, those at the work session did provide guidance on which elements they liked. These were reinforced or refined at subsequent steering Committee meetings. Attachment 11 includes notes from the third and fourth Steering Committee meetings, which focused on refining the illustrative plan. Attachment 12 includes notes from the public work session on Monday evening at the end of the charrette. The most relevant remarks from the community about the plans, including those from the Steering Committee, include: E.
Maximize connectivity between the various elements of the plan and to areas outside of the corridor; Include incentives for land owners to encourage support for the plan and subsequent code; Maintain or create views to lake; Include a mix of building types and sizes and vary the setbacks from the road; don't create a solid line of buildings along Route 7; Keep the open feel of development near Bay Road intersection; Create a campus typed development with interrelated roads and buildings relating to each other in the industrial park on Industrial Drive; Develop a neighborhood center in the vicinity of Shelburne Bay Plaza that caters to local needs; Keep the southern end of the corridor forested; Use the "Island" between Route 7 and Webster Road for a fire house; Include a visitor center, possibly with a gas station, on the Red Apple Hotel site and conference center/hotel on the Dolan Farm property; Include multi-family residential uses in smaller or even mid-size buildings (2 to 8 units per building) near the southern end of the corridor closest to the existing Village Center; Include locations for innovative storm water management techniques throughout the corridor; and Create a series of large and small, public and private green spaces. Development under Existing Zoning Regulations
The current zoning requirements for the Mixed Use District along Shelburne Road make it difficult to establish a traditional village development pattern, which is envisioned at certain nodes along the corridor in the Illustrative Plan. The characteristics of traditional village design typically include narrow frontages, short or no setbacks between the buildings and street right-of-way, joint access and internal connections, shared parking and placement to the side or rear of the primary buildings, and a formal streetscape pattern of street trees and other pedestrian furnishings. Illustration 6 illustrates that the current regulations are auto-oriented, requiring larger lots, setbacks, and frontages than traditional villages. These standards make it difficult for commercial and mixed use buildings to cluster around particular nodes such as key
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Commercial Corridor Charrette, Regulating Plan & Form-Based Code Route 7 Draft Illustrative Plan Page 15
intersections leading to the adjacent neighborhoods. Combined with steep parking requirements and low lot coverage requirements, the largest retail building that can be placed on a standard lot of 20,000 square feet (s.f.) is just 2,000 s.f. The result is often to increase the lot size resulting in a less efficient utilization of land, increased cost of development, and loss of potential tax revenue. Illustration 6
Under another development scenario involving the largest possible building in the Mixed Use District (30,000 s.f.), the zoning requirements result in a significantly larger lot size and frontage. Additionally, all site plans that exceed two acres kick in additional requirements under the Planned Unit Development (PUD) provisions. Illustration 7 shows a 30,000 s.f. grocery store (small be industry standards), the required lot size would be at least 2.75 acres, with at least 213 feet of frontage and 100 parking spaces minimum.
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Illustration 7
Using the same 30,000 s.f. grocery store but minimizing the lot depth (i.e. where the site is adjacent residential neighborhoods), the required frontage expands to 281 feet while the building envelop is shorted to meet the 50 foot setback from abutting residential uses. Illustration 8 shows this example. To further emphasize the auto-orientation of the district and separation between adjacent uses, parking is not allowed in the setback areas. It is encouraged to be placed to the side or rear of the building but not required.
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Commercial Corridor Charrette, Regulating Plan & Form-Based Code Route 7 Draft Illustrative Plan Page 17
Illustration 8
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March 24, 2014
Commercial Corridor Charrette, Regulating Plan & Form-Based Code Attachments
Attachment 1 Steering Committee Meeting #1 Form-Based Code Presentation
Broadreach Planning & Design * Howard/Stein-Hudson * Dodson & Flinker Associates
Town Shelburne
March 24, 2014
Commercial Corridor Charrette, Regulating Plan & Form-Based Code Attachments
Attachment 2 Charrette Vision Plans
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Town Shelburne
March 24, 2014
Commercial Corridor Charrette, Regulating Plan & Form-Based Code Attachments
Attachment 3 Charrette Alternate Illustrative Plans
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March 24, 2014
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Attachment 4 First Draft Illustrative Plan
Broadreach Planning & Design * Howard/Stein-Hudson * Dodson & Flinker Associates
Town Shelburne
March 24, 2014
Commercial Corridor Charrette, Regulating Plan & Form-Based Code Attachments
Attachment 5 Steering Committee Meeting #4 Draft Illustrative Plan Presentation
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Town Shelburne
March 24, 2014
Commercial Corridor Charrette, Regulating Plan & Form-Based Code Attachments
Attachment 6 Steering Committee Meetings #1 and #2 Notes
Broadreach Planning & Design * Howard/Stein-Hudson * Dodson & Flinker Associates
Town Shelburne
March 24, 2014
Commercial Corridor Charrette, Regulating Plan & Form-Based Code Attachments
Attachment 7 Charrette Saturday Morning Public Work Session Notes
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March 24, 2014
Commercial Corridor Charrette, Regulating Plan & Form-Based Code Attachments
Attachment 8 Land & Business Owner Interview Notes
Broadreach Planning & Design * Howard/Stein-Hudson * Dodson & Flinker Associates
Town Shelburne
March 24, 2014
Commercial Corridor Charrette, Regulating Plan & Form-Based Code Attachments
Attachment 9 First Visual Preference Survey
Broadreach Planning & Design * Howard/Stein-Hudson * Dodson & Flinker Associates
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March 24, 2014
Commercial Corridor Charrette, Regulating Plan & Form-Based Code Attachments
Attachment 10 Second Visual Preference Survey
Broadreach Planning & Design * Howard/Stein-Hudson * Dodson & Flinker Associates
Town Shelburne
March 24, 2014
Commercial Corridor Charrette, Regulating Plan & Form-Based Code Attachments
Attachment 11 Steering Committee Meetings #3 and #4 Notes
Broadreach Planning & Design * Howard/Stein-Hudson * Dodson & Flinker Associates
Town Shelburne
March 24, 2014
Commercial Corridor Charrette, Regulating Plan & Form-Based Code Attachments
Attachment 12 Charrette Monday Evening Public Work Session Notes
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Town Shelburne
March 24, 2014
Commercial Corridor Charrette, Regulating Plan & Form-Based Code Attachments
Attachment 13 Background Information
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Town Shelburne
March 24, 2014