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Copies of the complete document can be obtained from the Montpelier Planning & Development Office in City Hall. Call (802) 223-9506 for additional information.

Table of Contents

1. Introduction

1.1 What is the Montpelier Master Plan

1.2 Master Plan Process

1.3 Consistency with Act 200

2. Background

2.1 Development History

2.2 State and Regional Context

2.3 The Characteristics of Montpelier

2.4 Montpelier's Vision for the Future

3. Natural Features and the Environment

3.1 Natural Setting

3.2 Rivers and Water Quality

3.4 Sensitive Environmental Features

4. Historic Resources and the Built Environment

4.1 The Evolution Of Montpelier's Built Form

4.2 Neighborhoods

4.3 Improving The Process Of City Planning And Project Review

5. Transportation

5.1 Background

5.2 Bridges 5.3 Pedestrians 5.5 Public Transportation 5.7 Parking

6. Population and Housing

6.1 Population Characteristics

6.2 Housing

6.3 housing Supply

6.4 housing Condition & Needs

6.5 housing Demand

7. Community Facilities and Utilities

7.1 Water and Sewer Facilities

7.2 Solid Waste Management

7.3 Public Safety

7.4 Education

7.5 Park and Recreation Facilities

8. Cultural Facilities

9. Economic Development

9.1 Economic Characteristics

9.2 Montpelier: State Capital and Regional Center

9.3 Areas of Growth/Potential Development Opportunities

9.4 Partnerships and Networks to Support Economic Development

10. Local Government Finance

11. Land Use and Development

11.1 Distribution of Land Use

11.3 Future Land Use Plan

12. Putting the Plan into Action

12.1 Responsibility for the Plan

12.2 Tools and Techniques

12.3 Implementation Strategy and Priority Actions

1. Introduction

1.1 What is the Montpelier Master Plan

The Montpelier Master Plan is a comprehensive long-range guide to growth and change in the Capital City of Vermont. This update of the 1990 document is intended to carry Montpelier into the new century with a framework for accomplishing community aspirations and intentions for its physical development. It states goals and objectives and recommends courses of action for future use of land, public facilities and services, housing, patterns of circulation and environmental protection. Taken in its entirety, the Master Plan synthesizes a vision for what the community can and should be in the future. Consequently, citizen input and guidance have been critical in the preparation of the original Plan and this Update.

This document represents a major reconsideration of the policies of the 1990 Master Plan. With the new information available from the 1990 Census and the City's Geographic Information System, all of the basic information was reviewed and where, appropriate, updated to reflect current conditions. The Montpelier Master Plan Task Force, which has been renewed from the previous planning effort by the Montpelier City Council. New goals and policies have been articulated which revise the original vision presented in 1990.

1.2 Master Plan Process

The Montpelier Master Plan, like its 1990 predecessor, was produced through the Act 200 planning process, building upon the substantial public involvement which was conducted for the previous Plan. This document represents a major reconsideration of the policies of the 1990 Master Plan with the new information available from the 1990 census and the City's Geographic Information System. All of the basic information was reviewed and where appropriate, updated to reflect current conditions. The Montpelier Master Plan Task Force was renewed from the previous planning effort by the Montpelier City Council to prepare the update plan. The Task Force met frequently from July 1995 to August 1996 to discuss both individual elements and the document as a whole. The Task Force invited key participants in each of the elements of the Plan, including representatives from arts organizations, the Conservation Commission, students studying Montpelier from the architecture curriculum at norwich University, representatives of business and the Central Vermont Chamber of Commerce and other groups concerned about the Plan. Each meeting was publicly announced and shown on cable TV as a further effort to involve the public. Comments received on earlier versions of the Plan were addressed in a revised document which was presented to the Planning Commission for review and hearings. The final stage of the planning process was review and approval of the Plan by the Planning Commission and the City Council.

Major accomplishments since the last plan include:

Conservation Commission Tree Board

1.3 Consistency with Act 200

The Montpelier Master Plan has been prepared with close attention to the requirements of Title 24 VSA Subchapter 5. That subchapter outlines the content and process for approving a master plan. Specific requirements are outlined for a plan to be consistent with the Act. Briefly, those requirements include:

1. A statement of objectives, policies and programs: This statement is included in Section 2.5 and the goals and polices of individual elements.

2. A land use plan: The land use plan is included in Chapter 11

3. A transportation plan: The Transportation plan and map is included in Chapter 5.

4. A utility and facility plan: The Community Facilities and Utilities plan in Chapter 7 includes these requirements.

5. A statement on preservation of rare and irreplaceable natural areas, scenic and historic resources: These requirements are included in Chapter 3, Natural Resources and the Environment and Chapter 4 Historic Resources and the Built Environment

6. An educational facilities plan: This plan is included in Chapter 7.

7. A program for implementation: Chapter 13 describes Putting the Plan into Action

8. A statement indicating how the plan relates to development trends and plans for adjacent municipalities and the region: That statement is in Section 2.2.

9. An energy plan: That plan is included in Chapter 7

10. A housing element: The housing Element is in Chapter 6.

2. Background

2.1 Development History

Although little is known of the earliest settlement of the area by Native Americans, we do know that about 6000 years ago warm, dry weather blossomed the spread of population into the upper Winooski River valley. By 1200 AD extensive settlements developed throughout the region and were linked by trading networks. The rich floodplains and relatively warm southern exposures were conducive to settlement. After the arrival of European settlers, between 1600 and 1800 AD, war and dispersal virtually destroyed Native American settlement. However, early investigators in the mid-1800s reported burial mounds and other evidence of Native Americans. Otherwise, material evidence is limited to three recorded sites in the Vermont Archeological Inventory. All of these were random, chance finds of stone tools and spear points. This lack of evidence is probably due to intensive development in highly sensitive areas, past flooding which wiped out remains, and the fact that little investigation has been undertaken.

In contrast to prehistoric archaeology, historic archaeology is well documented. The earliest settlement lies west of the North Branch along Elm Street, where a Colonel Davis built a log cabin in 1787 or 88. Although much of earliest Montpelier has been replaced, significant evidence of our early settlement remains, much of it buried and waiting to be discovered.

The City of Montpelier was originally chartered in 1781 as a grant to settlers from Massachusetts. The first settlement was established along the North Branch in 1787, during the time Vermont was an independent republic. Original grantors envisioned the main portion of the town growing on high ground around Montpelier Center, but the availability of transportation routes and mill sites attracted early settlement along the riverbanks. By the time statehood was achieved, and the settlement was organized as a town, Montpelier had a population of 113. The early years of the community saw rapid growth with an influx of settlers who built saw and grist mills, roads, schools, churches and inns.

By 1805 the town had a population of 1200. In that year the State Legislature sought a permanent home. Montpelier was selected because of its central location, and due to support from local residents who provided land and money. A humble statehouse was constructed on State Street. This first legislative home was replaced in 1836 by a statehouse designed by Ammi B. Young, largely at the community's expense. This granite structure was gutted by fire in 1857. The present statehouse, designed by Thomas Silloway, was constructed on the same site in 1859.

In 1811, the growing town was selected to serve as shire town for Washington County. In 1828, the financial service sector was established by the Vermont Mutual fire Insurance Company. In 1848, the national Life Insurance Company was established, followed by the Union Mutual Fire Insurance company. Also by the mid-1800's, the railroad arrived which stimulated the business of the town. Thus, by the mid-nineteenth century, the principal economic components of the community, which continue to this day, were firmly established.

The configuration of the early village was strongly influenced by geography. As early as 1799 abridge was constructed across the Winooski to Berlin. By 1858, the form of the main streets paralleling the rivers was developed. Figure 1 illustrates that the downtown street pattern has changed very little since that time. In 1849, Montpelier Village separated from the rest of the town, which was reorganized as East Montpelier.

After the Civil war, the antecedent of Vermont college moved to Montpelier from Newbury, Vermont, and became known as Montpelier Seminary. In 1936, it became Vermont Junior College, and in 1953 it was converted to Vermont College for Women. In 1972, the college was acquired by norwich University.

As the bottom lands along the rivers became developed, homes were established along the surrounding hillsides, frequently on land claimed from the incredibly steep slopes. Several natural disasters figure prominently in the development of the City. In 1875, a large fire destroyed many downtown buildings. In 1927, a great flood brought twelve feet of water at State and Main Streets and did great damage. Nearly all bridges connecting the banks of the North Branch and Winooski rivers were replaced after the flood. Many of these steel truss bridges, hastily put up often using pre-fabricated structures, are now considered landmarks in the community.

A view of Montpelier in 1884, Figure 2, shows a compact village with many features which exist today - the Statehouse, County Courthouse, the Pavilion Hotel, many churches and the retail buildings of downtown. The view indicates that stone working was established in the town, as were tanneries and other small manufactories. By 1925, nine granite works were established in the City to refine stone from the famous quarries in Barre.

In 1895, Montpelier reorganized as a City. In 1898, the northern portion of the Town of Berlin on the southern bank of the Winooski chose to be annexed, and the present form of the City became established.

In 1899, the City was given 134 acres of land by John E. Hubbard for use as a park. In 1911, additional land was donated where the present Hubbard Park tower stands.

The City grew slowly in the late nineteenth and early twentieth century during the period of intensive out-migration from the State to new lands in the West, or to industrial centers elsewhere in New England. Montpelier was already established as a government, market, service and industrial center in the region. When the automobile arrived, new state highways were routed to the City limits, and traffic then circulated through the original streets of the City. In 1954, a new bridge was constructed at Bailey Avenue which linked to an extension of Winooski Avenue, now memorial Drive, and diverted some of the traffic from the downtown area.

The City has grown slowly since the mid-nineteenth century, but it has remained a center for government, commerce, industry and services. In recent years development has been influenced by expansion of the state government and associated services as well as by the financial services industry. The City remains a regional center for arts and entertainment.

2.2 State and Regional Context

Montpelier is located in the upper watershed of the Winooski River. This river cuts a path through the Green Mountains and connects the region with Chittenden County and the communities of the Champlain Valley. The surrounding Green Mountains play a key role in the landscape of the region and the City. Many of the higher peaks of the main range, and of the Worcester Range, are visible from the City, including Camel's Hump, Worcester Mountain and Mount Hunger.

For most people in Vermont the word Montpelier is synonymous with the role of the City as State Capital and the seat of the State government. That role makes it imperative to consider Montpelier not only in its regional context, but its relationship to the State as a whole. The City's central location and relative accessibility to all parts of the State were important factors in its selection as Capital City.

The City shares with Barre the distinction as prime city of the region. The concentration of State offices and insurance companies in Montpelier is balanced by the significant manufacturing sector in Barre. The development of natural resources, primarily the region's granite quarries and stone cutting operations has been a foundation of the economy.

Major areas of regional commercial growth are located in the towns of Berlin and Waterbury. Resort development is located to the west in the Mad River Valley towns of Warren and Waitsfield to the west , and Stowe to the north. Residential development is more dispersed throughout the region.

With the opening of the interstate highway along the important transportation corridor of the Winooski River to Burlington, the Central Vermont region has begun to share the many regional functions with prosperous Chittenden County. Today a significant number of commuters from the Montpelier travel daily to the employment centers of Chittenden County. In addition, many commuters who live west of the region, commute to Montpelier for employment.

Montpelier, along with 22 other communities in Washington and Orange Counties, is a member of the Central Vermont Regional Planning Commission (CVRPC), created in 1967 under 24 VSA Chapter 117. cvrpc is an advisory planning agency charged with developing a comprehensive regional plan, providing assistance to communities on local planning issues and making recommendations on development. cvrpc is responsible under Act 200 for consultation, to help municipalities understand and implement the Act; and confirmation that municipalities are engaged in the planning process. Each city and town is granted one vote on the Central Vermont Regional Planning Commission, regardless of land area or population.

2.3 The Characteristics of Montpelier

The Montpelier Master Plan is rooted in the everyday characteristics of the City which are often taken for granted by citizens. These roles compose the fundamental nature of the City; and, while trends may change over time, these roles will continue to define the City well into the future. The following basic characteristics should serve as the essential principals for growth and development in the future.

A City of Residential Neighborhoods: Montpelier is composed of neighborhoods which the citizens relate to in an intimate fashion. Each neighborhood has a strong identity which needs support if the high quality of life in the city is to be maintained.

A City of History, Culture and Natural Beauty: The distinctive architectural quality of Montpelier's buildings and the intimate scale of the urban environment, established in a magnificent natural setting, is a very special and unique resource. Rivers, wooded hillsides and ridges give the City unique form and character.

A Center of Government and Institutions: As State Capital, county seat and home to four institutions of higher learning, the importance of Montpelier extends well beyond the boundaries of the region, and creates a center of Statewide significance.

A Center of Commerce and Industry: As a regional center of trade, financial services and such major industries as granite working, the City has a diversified economic base which contributes to its vitality and interaction with the region and the State.

2.4 Montpelier's Vision for the Future

MONTPELIER IS A COMPACT COMMUNITY OF NEIGHBORHOODS LOCATED IN THE WINOOSKI VALLEY.

WE HOPE TO:

Promote development that reinforces our compact urban form and enhances the small-scale, intimate character of our city.

Strengthen the role of neighborhoods in planning. Reinforce existing development before extending settlement further. Discourage automobile-dependent growth. Improve and enrich pedestrian, bicycle, rail, and shuttle access. Encourage a diverse local economy.

Preserve the natural and historic features that distinguish the City of Montpelier.

Revitalize the Winooski River and all its associated branches as a special focus of the City. Protect our ridge lines from development. Preserve the architectural heritage of the City by becoming a Certified Local Government, revising the zoning ordinances and design review process, and establishing a more comprehensive planning process. Preserve a special part of Montpelier's heritage, the bridges over the Winooski. Promote our natural and historic, as well as cultural, attractions as a tourist and regional resource.

Ensure efficient and reliable community services, including education, utilities, public safety, recreation.

Encourage a diversity of living arrangements in all neighborhoods of the City.

Define the scope of housing need in the City. Encourage the preservation and maintenance of existing housing.

We value locally owned, sustainable business.

CHANGES TO OUR CITY, OUR ORDINANCES AND OUR services WILL BE CONSIDERED SUCCESSFUL TO THE EXTENT THEY:

Improve the quality of life. Preserve and protect our heritage and environment. Encourage diversity of population and commerce. Address long term benefits and losses over short-term ones

3. Natural Features and the Environment

3.1 Natural Setting

The geographic context of Montpelier has always played a role in shaping the City's physical growth and appearance. Earliest development followed the low-lying valleys of the Winooski and North Branch Rivers, and progressed up the slopes of the hills that framed those valleys. Although the hills were mostly cleared in the late 19th century, today they form a wooded backdrop for the City's built environment, and the combination is now recognized as one of the City's great visual assets. The gold dome of the Capitol is accentuated both by the Statehouse's location on a rise of land and its backdrop of hillside forest. Views of downtown, looking south on Main Street, terminate in wooded hillsides. Entering Montpelier from the northeast, on Upper Main Street, the City in the foreground is set off by the distant view of Camel's Hump. Preserving the City's backdrop of wooded hillside and unbroken ridgeline should be a priority.

Montpelier's natural setting is particularly attractive. The City's location at the confluence of the Winooski and North Branch Rivers has influenced development not only along the valleys, but also on the hillside slopes that overlook the valley floor. Higher elevations are 400 to 500 feet above these valleys, providing a contrast strong enough to be apparent anywhere in the City.

Topography and Slope

Figure 4 indicates this general pattern of topography which shapes development and the City's image, form and character. The river valley, ranging in width from approximately 500 feet to 1500 feet, divides Montpelier into three geographic areas. Each of these sectors is characterized by steep slopes that overlook the valley floor. Toward the edge of the City, flatter hilltop sites, such as at Hubbard Park and Murray Hill, offer commanding views across the City.

Many of the steeper slopes provide a strong visual benefit and physical edge to the City's downtown area, and are an important feature which defines Montpelier's central business district. Vistas along several downtown streets, such as State and Main Streets, are terminated by the steeper wooded slopes that occur at the base of the surrounding hills. These slopes serve to outline the compact nature of the City and restrict large-scale spread development. Figure 5 indicates slopes greater than 20%. Steep slopes occupy major areas, including some areas where historic development has occurred.

Hillsides and Ridgelines

The ridgelines and wooded hillsides of Montpelier are important assets which remain largely undeveloped. A century ago these same hillsides were denuded of vegetation for pasture and timber Typically these areas have had limited development potential due to their rugged character, shallow soils and the availability of other areas for development. In recent years the City has experienced several developments which have had a significant impact on these features and raised citizen concern for their protection. Construction along ridgelines and hillsides prominently alters the nature of the City and should be strongly discouraged. The approximate location of principal ridgelines is shown on Figure 5. Ridgelines are an unregulated natural feature.

Open Space

Despite a densely built-up urban core, Montpelier is endowed with abundant open spaces. Much of this open area is on the periphery of the City, such as upper Elm Street, outer Terrace Street, Town Hill Road and Barre Street. These open areas in large part define the urban core. Frequently they include natural features such as floodplains or steep slopes which limit their development potential. However, they provide important recreation, visual and environmental benefits. The City has made an effort to protect these outlying open areas. Generally they are not served by public infrastructure which would encourage development.

More limited open area is available in the urban core. These spaces include setback areas around homes and public buildings, and a number of parks and public spaces, such as Hubbard Park and the Capitol lawn. These areas provide visual relief and recreation benefits for citizens.(see Chapter 7, Community Facilities and Utilities)

3.2 Rivers and Water Quality

Montpelier's four rivers are important features within the City's landscape. The Winooski River runs northwest to southeast through the central area, and extends approximately four and one-half miles within the City limits. The smaller North Branch extends for a similar length to the City's northern border and the Wrightsville Reservoir. Flooding along these riverbanks, such as the flood of 1927, has been a frequent problem for the City. The Wrightsville Reservoir flood control project offers some protection for the City from such devastating floods. A more recent flood, which inundated the downtown areas in March 1992, was the result of ice blockage along the Winooski.

A small portion of the City's southeastern boundary is formed by the Steven's Branch of the Winooski River; and the Dog River forms a portion of the western boundary and is the site of one of the City's two major recreation areas. The other recreation area is located along the North Branch. Benjamin Falls, located outside the City's border on Berlin Pond Brook is a significant natural resource for Montpelier residents and a site of statewide significance. Berlin Pond, also outside the City limits, is owned by the City. The land around the pond is a Municipal Forest and a natural area and a protected water supply for the City. Both Benjamin Falls and Berlin Pond are threatened through urban encroachment.

The Winooski and North Branch Rivers are classified by the State as Class B streams. This classification means they are suitable for aquatic biota, fish and wildlife. The rivers are useful for recreation activities which do not pose the probability of ingesting the water, for irrigation, and for industrial uses. This classification is viewed as a goal and the minimum standard to be maintained. Uses or activities which would reduce the classification should be limited.

Montpelier is under Federal order to improve the quality of its rivers. The Combined Sewer Outflow Project, discussed in the Community Facilities element, is one measure the City is taking to improve water quality.

The Montpelier Conservation Commission has proposed six River Conservation Corridors (see Figure 6), and has ascribed specific types of development it would like to see within each corridor. They are as follows:

1. North Branch Greenway:

North branch Recreation Trail linking Lane Shops with Wrightsville Reservoir Link to east Montpelier trail system, outdoor classroom across from the Recreation Field. Old growth forest areas. Intact riparian forests and beaver meadows.

2. Downtown Riverbanks:

Park at the confluence of the North Branch and Winooski. Performance gazebo Steps and ramp to the river's edge. Skateboard park. River edge walk. Pedestrian bridge. Floating boat launch. Fish ladder,. Main Street bridge Welcome Park. River habitat enhancement.

3. Blanchard Brook Greenway:

Footpath linking New England Culinary Institute with Barre Street, the Montpelier Bike Path and the Winooski River. Spur trail to the Slate Quarry. Quiet, high gradient stream - a one minute walk from Vermont College.

4. Terrace Street Ravine:

High gradient stream- a five minute walk from Montpelier High School and the Capitol Building. Foot path access through the arch at the end of Baldwin Street. Mature hemlock/pine ravine. Remains of a historic road, mill and bridge.

5. Winooski Greenway East:

Natural/recreation trail linking Barre Street with Route 2.

6. Drive-in Park at the Confluence of the Steven's Branch and the Winooski River:

Picnic tables and a small loop trail to the confluence. River viewing.

3.3 Air Quality

The last measurements of air quality in Montpelier date back two decades. Little is known about measured air quality levels except that Vermont as a whole complies with national standards.

However, there are reasons to consider air quality. The City is surrounded by hillsides. This can "trap" `pollutants from motor vehicles, residential heating and other activities which raises concern about the potential deterioration of air quality. The City has a limited role in air quality management. Emissions, such as dust, odors, smoke and noxious gases are regulated through local zoning by the establishment of performance standards. Vehicle emissions are usually governed through attainment standards established by the Federal government. Montpelier is designated as an "air quality attainment area" by the Federal government. Consequently local regulations and Act 250 are the principal means of managing air quality.

Major sources of air pollution in Montpelier are motor vehicle exhaust and residue from gas, oil and wood stoves and furnaces. Generally, motor vehicles are responsible for 50-70 percent of urban pollution. While wood stoves today contain sophisticated pollution control equipment, they still pollute more than oil and gas furnaces. Backyard burning is another significant source, while the City has ordinances prohibiting it. Continued attention to compliance needs to be devoted to this source through public education and enforcement

The major individual heating pollution sources are the Capitol complex and national Life. Home weatherization is an important measure to cut down on space heating pollution through reduced fuel burning. For motor vehicles, encouraging alternatives to solo driving can help cut down on motor vehicle pollution. Providing a public charging station for electric vehicles should be examined -- electric vehicles can certainly remove pollution from the downtown area. Any actions that can reduce peak hour congestion helps reduce pollution, including expanding peripheral parking at the edge of the downtown area.

3.4 Sensitive Environmental Features

Montpelier has numerous environmental features that merit preservation and affect the shape of present and future development. Several of these features are controlled by State and Federal regulatory programs and environmental policies. Consequently the City's role in their protection is limited to local land use policy and zoning. The approximate location of these key features is shown on Figure 7.

Rare Plant and Animal Communities

The Natural heritage Program of the Fish and Wildlife Department collects and stores information on the State's significant and natural communities and rare and endangered species. Program staff also review Act 250 applications and maintain the Fragile Areas Registry.

In Montpelier there are four locations of rare plant and animal communities listed by the Natural heritage Program. These locations are generally in the downtown area.

Wetlands

Wetlands serve important environmental functions, including the storage of floodwaters, cleansing of stormwater and agricultural run-off, and as important wildlife habitat. Small areas of wetlands are located in Montpelier along the North Branch and Stevens Branch of the Winooski, in the Towne Hill area, and Langdon Pond.

Winter Deer Range

Vermont deer live near the northern limit of the white- tailed deer range. The animals require specific winter habitat when severe weather threatens their survival. These habitats include a core of softwood tree species for protection and a mixture of hardwood and softwood species for browse. The Department of Fish and Wildlife has mapped specific areas which are known habitat based on habitat type and specific evidence of wintering over many years. The protection from any development of these habitat areas is a goal of the Department.

Deer wintering areas occupy several large areas of the City north of Hubbard Park, west of the Crestview area, and several areas along the East Montpelier boundary.

Floodplain

Flood Hazard Areas are officially designated by the Federal Emergency Management Agency (FEMA) on Flood Insurance Rate Maps. This designation enables property owners to participate in the national Flood Insurance Program and purchase insurance against losses from flooding. Montpelier's zoning regulations include a Flood Plain District, and overlay district, which imposes additional requirements above those required by the underlying district. The purpose of the district is to promote health, safety and general welfare, to minimize losses due to flooding, and to prevent the establishment of structures or uses that either hinder flooding waters or would be subject to devastation.

The designated floodplain in Montpelier covers a large share of the downtown, much of the Meadows area and land along the principal rivers.

The Montpelier Tree Board

Mission Statement:

To recognize, enhance, and ensure the aesthetic, environmental, economic and community benefits of our trees as assets that are vital to our city's character.

Goal #1 Develop a plan to promote, protect and provide regulations for Montpelier's trees.

Objective: Inventory all city trees in the City's public places.

Objective: Inventory specimen trees and develop maintenance agreements with the owners.

Objective: Advise the Planning Commission and the City Council concerning their tree resources.

Objective: Provide landscaping standards for site plan review.

Objective: Provide maintenance and preservation specifications.

Objective: Provide plantings and removal specifications.

Objective: Provide incentives for maintenance, preservation and planting on public & private property.

Objective: Become a Tree City, U.S.A..

Goal #2 Develop an Annual Work Plan

Objective: Establish a budget.

Objective: Provide partnerships with other agencies, public utilities and citizens.

Objective: Implement a schedule for annual tree planting, pruning and maintenance.

Objective: Provide educational workshops and displays.

Objective: Proclaim an Arbor Day.

4. Historic Resources and the Built Environment

Little has been documented of the City's archeology. By contrast, more is known of the earliest settlement, yet much of this historic evidence has been replaced, but remains buried and waiting Although there is significant indication of pre-historic to be discovered. The many eras of post-revolutionary history is much in evidence along the streets of Montpelier, and give the City the strong historic character witnessed today.

4.1 The Evolution Of Montpelier's Built Form

Not surprisingly, Montpelier's urban form evolved inseparably from the historical, social, and political evolution of the city that was summarized in Chapter 2. Many of the areas, or neighborhoods, reflect either distinct periods or purposes of development.

Downtown

Downtown streets and property lines reflect the city's earliest gradual, informal, and increasingly dense settlement. Early streets--Elm, State, and Main, for example--connected other post-Revolutionary settlements and stayed close to the rivers or headed towards easy gaps in the surrounding hills. The earliest market was at the junction of Elm and State. Early industry capitalized on the river's power and included grist mills, tanneries, and stone finishing shops. Montpelier was also a popular resting place, and hotels multiplied. The arrival of the railroad in the mid-nineteenth century brought associated activity to the riverfront. The Fire of 1875 provided Victorian developers the chance to replace many smaller commercial structures with three- to four-story brick structures, and in this period Montpelier received an opera house. Mr. Langdon opened an elegantly planned street. Early in this century the hay market was filled by the new City Hall, creating the neighborhood's primary focus.

Only in this century has development turned away from the rivers, so that the riverfront has gradually become "leftover" space for parking cars. These areas, and the vacant space within the commercial blocks, are increasingly valuable as land open to development, however. Chapter 3 presents the opportunities that exist to recover the beauty and vitality of the rivers; associated improvements could also further shape downtown's urban form. It should be noted that automobile traffic is presently a major consideration in any additional development downtown; ways to alleviate these concerns are discussed in Chapter 5.

Statehouse

Ever since the Statehouse was located in Montpelier, state government has defined State Street. The Statehouse is the magnificent focus of this area, seated on a handsome green with Hubbard Park behind it. The State office buildings, several of which started life as insurance offices, have grown up in a formal fashion around the Statehouse. The large office buildings have replaced a number of homes, such as Admiral Dewey's, that once lined State Street, but the existing homes are now protected and converted to offices. A number of people still live in this neighborhood, particularly along Baldwin, Bailey, and Court Streets.

From the beginning, commercial structures, such as the Pavilion, have played an important role in the area. The Capitol plaza still serves the State as a place for receptions, conferences, and lodging. In 1995 the Chittenden Bank and the State cooperated on a mixed-use building.

The Capitol Complex was defined, and a Commission was established, by the State General Assembly in 1977 in order to preserve and protect the area around the Statehouse and to coordinate future development. The boundaries of the Capitol Complex are the Winooski, Taylor Street, Bailey Street, and an imaginary line connecting the streets behind the Statehouse. This area corresponds to the Civic District in the City's zoning ordinance. The Commission has review and approval authority over all development within the complex.

The State and City established the City-State Study Commission in 1995 to develop strategies for traffic and parking problems and expanding State office space in Montpelier. The recommendations of this Commission will have a direct effect on Montpelier's built form, not only in terms of automobile accommodation, but also office space.

Vermont College and Seminary Hill

The area of town known variously as Seminary or College Hill was laid out with the extension of State Street and the establishment of what is now Vermont College. The college and its wide green are the focus of this neighborhood. Most of its planning principles and architecture date from the late nineteenth and early twentieth centuries.

Predominantly Residential Neighborhoods

There are many other more or less identifiable neighborhoods in Montpelier. Each neighborhood is unique in the way it developed from its original homesteads, due to both Montpelier's varied topography and changing attitudes about urban life. Some areas, such as the Loomis Farm and Clay Hill, which includes Saint Paul, Main, and Liberty Streets, evolved over a very long period. Others, such as the Meadow and Murray Hill, were developed much more quickly and represent a clear period of planning and architecture.

4.2 Neighborhoods

Each neighborhood in Montpelier has its own character, but it is important to resist the urge to reduce the neighborhood to one stereotype or function in the City. For vitality, neighborhoods depend on many roles and meanings. What makes Montpelier unique is its variety of neighborhoods, each in itself eclectic, within a small, walkable distance. A preliminary inventory of neighborhoods would include:

Downtown focuses on the City Hall and includes Main Street, State Street, Langdon Street, Elm Street, and all the areas behind these streets. The neighborhood is primarily commercial but supports civic, institutional, and residential activity.

The Statehouse neighborhood focuses on the Statehouse. Perceptually the neighborhood includes Bailey Avenue, Court Street, and the Capitol Plaza. This neighborhood also supports commercial, institutional, and residential activity.

College Hill, supports both an institution (Vermont College) and many residences, as well as an increasing number of offices. Commercial activity is currently not permitted, although the public may eat at neci's cafeteria.

National Life/Northfield Street has the makings of a community; many of the residents work at national Life. There is little commercial activity in the neighborhood. The open fields belonging to national Life are a key element of this neighborhood's identity.

Barre Street has a vital mix of residential, institutional, commercial, and industrial uses. Increasingly, however, economic pressure is causing many houses to be converted to offices. This is eliminating affordable housing stock. The new development along Railroad Street has the potential to tie into the existing neighborhood, perhaps creating green for a center, but "knitting" of infrastructure and uses will have to be carried out carefully.

The Meadow is a turn-of-the-century residential neighborhood in what was once Montpelier's primary grazing area. It has a park, borders on Hubbard Park, and has a range of housing types, offices, and some commercial use.

Lane Shops refers to the area of town across the North Branch River from the Meadows, extending up to North Street. A large elderly housing project with small park has revitalized this neighborhood. It is primarily residential.

Other neighborhoods may include:

Loomis Farm/Clay Hill Terrace Street Berlin Street/Prospect/Hill Street River Street Green Mount cemetery Environs, including Rte 2.

Neighborhood Plans

All of Montpelier's neighborhoods deserve attention, but the following areas are subject to change and should be considered first.

Barre Street/Railroad Street is being upgraded in anticipation of substantial development along the riverfront. Development should connect the Barre Street neighborhood to the river and the planned park. Existing affordable housing and light industry along Barre Street should be protected from pressures of office expansion. Additional housing and space for the arts might be incorporated into new development. Berlin Street on the other side of the river will surely be affected by this development, and the potential exists to tie the two neighborhoods together over the river, creating a truly vital neighborhood.

Downtown is under pressure to develop its remaining open space. Mixed use and increased use of existing buildings should be encouraged, and solutions for traffic and parking congestion should be pursued actively.

The Statehouse neighborhood is already being examined by the City-State Study Commission. The City should work to encourage mixed use and dense land use, along with riverfront and traffic goals outlined in other chapters.

Office Park zones should be examined in the context of Montpelier's neighborhoods. Development should reinforce existing neighborhoods by increasing diversity of use and by maintaining current densities. Where an entirely new neighborhood will be created, the existing characteristics of Montpelier neighborhoods should be used as a model, to the extent of providing housing and commercial uses.

4.3 Architectural history And Design

The city has a wealth of handsome, historic buildings representing every major nineteenth and twentieth century architectural fashion, from early brick Federal residences, to houses and civic buildings graced with Greek Revival porticos, to bracketed Italianate duplexes and mansard-roofed French Second Empire style apartment houses, to exuberant multi-colored Queen Anne houses with sweeping porches, to stately Colonial Revival residences, and the occasional departure from the architectural mainstream--an artist's Gothic Revival home and studio, a turreted, brownstone Romanesque civic structure, and a sleek Modern marble office building. The City is marked by a dense and high quality collection of historic structures that, when taken together, create one of the state's richest historic environments. These buildings are of tremendous value to residents and visitors alike.

Over five hundred buildings in the center of Montpelier are listed on the national Register of Historic Places as the Montpelier Historic District (see Figure-9); College Hall and Thomas Waterman Wood's Athenwood and Studio are also listed. The District is the largest in the state. Other areas, such as The Meadow, the College Street neighborhood, and the Prospect Street neighborhood, are listed on the State Register of Historic Places and would qualify for the national Register. One building, the Vermont Statehouse, is a national Historic Landmark.

About two thirds of the City's residents live in historic structures. Living and working in historic buildings is a way of life of residents, and protecting that historic environment has long been a community priority.

After the Flood of 1992, many downtown buildings received electrical upgrades and structural foundation work. Also in the last five years, two major new landmarks, the Chittenden Bank Building and the Vermont State Employees Credit Union, have taken a prominent place in the Montpelier cityscape. Several other vacant lots downtown pose the possibility of additional development in the near future, and the challenge of continuing the City's tradition of architectural quality.

Design Review

Montpelier established a Design Control District and subsequently had several publications prepared to explain objectives and criteria for development. These publications were Cityscapes and Cityscapes II. A Design Review Committee was established to advise the Planning Commission regarding those criteria for any development within the Design Control District. These review standards are:

Preservation or construction of the appropriate historic style if the proposed project is in the historic district or involves an historic structure; Harmony of exterior design with other properties in the district; Compatibility of proposed exterior materials with other properties in the district; Compatibility of the landscaping with the district; Prevention of the use of incompatible designs, buildings, color schemes, or exterior materials; Location and appearance of all utilities; Recognition of and respect for view corridors and significant vistas including gateway views of the city and Statehouse.

Building Guidelines

A more useful way to plan for, and to review, new construction in the City would establish specific guidelines, which are separate from the Design Control regulations, following identifiable patterns. Some identifiable elements are:

Building height, massing, and siting Building material (ones not listed could be considered as conditional) Cornice Roof type, slope, material Window and door material, size, proportion, and spacing Signage Color (advisory only?) Lighting Minimized energy costs: natural lighting, operable windows Details such as awnings, porches, steps, paving

Review current standards for street elements, such as sidewalks, roadways, bike paths, benches, lighting, and trash receptacles.

The Secretary of Interior's Federal Standards for Rehabilitation offer a reasonable and responsible starting point for historic buildings. The Standards are to be applied to specific rehabilitation projects in a reasonable manner, taking into consideration economical and technical feasibility.

In Montpelier new construction can be of the highest craftsmanship and therefore need not look "new" in a mass-produced, modern sense. This fits with our goals of building for the long term. Further, our goal is to foster compatible design, not simply a duplication of neighborhood architecture. Provocative design is welcome if appropriate to the area.

4.3 Improving The Process Of City Planning And Project Review

Presently Montpelier's system for design review allows for discussion of a proposed project at a series of meetings, potentially first at the Design Review Committee and/or the Zoning board of Adjustment, then at the Planning Commission. The Tree board and the Conservation Commission may also become involved in project review. This process is effective because it involves a number of citizens who have different views and expertise to debate the merits and problems of the proposal over a period of time.

The process is less effective when the various planning bodies interpret the criteria in conflicting ways or when there is no clear plan for development for a certain area of the city. In these cases the applicant is sometimes caught in a long back-and-forth debate. Not necessarily related to this is the increasing number of appealed cases, which is expensive for the City to defend. Lastly, both the paperwork of routine applications and of current appeals is overburdening the staff of the Planning and Development Office.

5. Transportation

5.1 Background

During the early years from Montpelier's founding in 1791, rivers and paths provided the infrastructure, and walking and horse-drawn vehicles were the primary modes of travel. Railroads dominated long-distance land travel from the mid-1800s until the car and truck began to rival and displace rail starting in the early 1900s. The bicycle age began in the 1870s, and soon afterwards the trolley car became popular for travel around town and to nearby towns. After 1927 trolley operations ceased. Rail passenger services disappeared in Vermont for a time in the 1950s and 1960s. Rail continues to carry heavy freight over long distances. The bicycle continues as a principle form of personal transportation for Montpelier's young people and many commuters.

The height of the motor vehicle age coincided with the construction of the interstate highway system, begun in the late 1950s and completed in Vermont in 1982. The interstate era brought tourism and facilitated the explosion of the ski industry. In Vermont, rapid growth in average daily traffic ended about 1988.

Hints of changes in transportation can be found in the 1990 Master Plan, and the following developments point to a different future:

A full-time downtown bus shuttle has started. Bicycle and pedestrian paths have been planned and initiated. The City built the first modern roundabout in the northeastern United States, Keck Circle, at Spring and Main Streets. Main Street was re-paved through a new, long-needed State program. Assure that streets serve the community in built up areas of the City Promote choice of transportation type and connection of different types of transportation Commuter rail service for the Burlington area is scheduled for 1997; it could easily be extended to Montpelier. Vermont Agency of Transportation has given the Central Vermont Regional Planning Commission responsibility to prepare two regional transportation plans. Both of these documents contributed to the traffic plan in this chapter. The City Council adopted a series of parking policies to assure effective and efficient use of public short- and long-term spaces.

5.2 Bridges

Montpelier is a city of rivers and bridges. Our historic bridges are therefore more than simply a functional means to allow movement of any kind of traffic; they are symbols of our city. The City maintains seventeen bridges within City limits; there are several other rail, foot, and highway bridges in Montpelier.

As we increasingly turn our attention to our rivers, we must also focus on our historic bridges. They are recognized treasures of state and national importance. Also there is growing recognition, even at state level, that it is not always prudent to widen bridges.

We must protect and maintain all of our bridges both for historic reasons and for long-term economy. Several bridges are in danger of being replaced because routine maintenance has been deferred too long. In all cases decisions such as this should take place in the framework of Montpelier's new neighborhood-based traffic plan, presented in section 6.6.

Three bridges have been rehabilitated or rebuilt recently:

Bailey Avenue Granite Street School Street These bridges are in line for State rehabilitation: Langdon Street Junction Road Pioneer Street (historic truss bridge currently schedules for removal)

5.3 Pedestrians

Walking is the most fundamental and important means of transportation in our city. Accommodating pedestrians should be our first priority.

Montpelier is a community of walkers, with almost one in five workers walking to work or working at home. More than 700 residents walk to work every day. (See Table 5-2)

The City has put in place a program to upgrade sidewalks and curbs, but so far it has been funded for only the downtown area. Further, Montpelier has brought most intersections up to guidelines established by the Americans with Disabilities Act.

The Vermont Center for Independent Living is now located on East State Street. They are eager to offer advice on accessibility issues. Both the City and private interests should make use of this new resource for planning projects of any size.

5.4 Bicycles

Montpelier now has two dedicated bikeways, with more being planned. The North Branch Bike Path connects Cummings Street to the Elm Street Recreation Area. The Dog River Bike Path connects Green Mountain Drive with the Dog River Recreation Area.

A network of short- and long-distance bike paths is being defined. There are plans to extend the North Branch Bike Path to connect with a proposed nature center just south of Gould Hill Road. It will also connect with the trail system in the Hubbard Park extension. In addition, there are plans for two segments of the Central Vermont Regional Path in Montpelier: Winooski West (from Main Street past Montpelier High School) and Winooski East (from Main Street to Rte. 302/2 in East Montpelier/Berlin). Winooski West is set for construction in 1997.

The Central Vermont Regional Bike Path will run from Montpelier Junction to Graniteville, and the Cross-Vermont Trail will run from Burlington to Wells River. Both will incorporate Montpelier paths.

5.5 Public Transportation

Bus/Shuttles

Downtown Wheels is Montpelier's free bus shuttle which circulates on a fixed route every ten minutes from 7 am to 5 PM Monday through Friday. It was initiated as a solution to the City's parking and circulation problems. Downtown Wheels connects remote parking at Department of Employment and Training (DET) with the retail area and offices at national Life and the Capitol Complex. The service grew in popularity and averaged 26 passengers per hour in 1995. City funding was discontinued for fiscal year 1996 following a voter referendum. These city funds amounted to twenty percent of the shuttle's total budget and the removal of these funds led to the temporary discontinuation of the shuttle.

Hospital Hill Wheels is a combined fixed route and door- to-door service that connects Montpelier to Central Vermont Hospital and other area medical services. This service operates Monday through Friday from 7:35 am to 4:30 PM every 45 minutes.

Table 5-3:

Ridership for Downtown Wheels

Year Total Passengers Percent Gain

1993 26,229 --

1994 52,093 49.6

1995 61,988 15.9

SOURCE: CVTA Wheels

City Wheels is a fixed-route service connecting the downtown areas of Montpelier and Barre. On selected runs, the service is extended to the Pioneer Apartments and the Lane Shops in Montpelier. This service operates Monday through Friday hourly from 6 am to 6:10 PM with a limited schedule on Saturday. Ridership on City Wheels has increased significantly in recent years.

Vermont Transit (Greyhound Lines) provides inter-city bus service from its temporary station on Taylor Street. The basic corridor service operates four round trips per day to Burlington and White River Junction, with seasonal adjustments. Since the last Master Plan, Vermont Transit proposed moving its station to Berlin, but Montpelier citizens convinced them to continue to provide service from downtown Montpelier.

Air Service

Montpelier is served by air transportation from the E.F. Knapp State Airport in Berlin and the Burlington International Airport. Knapp Airport provides service to private and corporate aircraft. There is currently no scheduled service. Burlington Airport, 35 miles to the west, is the state's largest airport with a number of scheduled commercial carriers.

Railroads

Passenger rail service is provided by Amtrak at the Montpelier Junction station in Berlin. The daily "Vermonter" runs from Washington DC to St. Albans, with bus connections to Montreal. Amtrak also runs a bus connection to Springfield, Mass., to catch another train to New York City. The Vermonter is subsidized by the State of Vermont, and it may, despite significant ridership increases, be discontinued. Ridership at the Montpelier Junction station was in excess of 10,000 passengers in 1993.

Demand-Oriented Transport

Montpelier currently has one taxi service. Taxis are important since they support residents who do not use cars and tourists who arrive late at the bus and train stations.

Special service demand-oriented transportation is also provided by human service providers in the region. These agencies include the Central Vermont Council on Aging, Project Independence, Vocational Rehabilitation, Washington County Mental Health, Central Vermont Community Action, and the Retired Senior Volunteer Program. Many of these agencies contract with CVTA to provide this transportation.

Intermodal Facilities ( Transport Centers)

Currently the only facilities in Montpelier are the park-and-ride lots a) near the Interstate and Montpelier Junction Road and b)behind the Department of Employment Training. Although the lots are highly visible and equipped with lighting, they are underutilized. Concerns have been raised about security in these lots.

5.6 Roadways

Based on our goals stated above, we find traditional classifications for roads--expressways, arterials, collectors, and streets--unsuitable for Montpelier. The goal of street improvements in Montpelier should be to control traffic in a manner that serves community interests rather than to accommodate current traffic speeds. Former street classifications did not take into consideration what borders our streets.

A more useful classification starts from the two functions of a street: access and mobility. The ideal mobility street is the interstate highway, where the movement of motor vehicles is not restricted in any way. The ideal access street is a short local street with practically no through traffic, for instance a residential street where it is safe for kids to play ball or a commercial street where businesses line the sidewalks and walking, bicycling and parking take place. Many of our mobility streets must also serve access traffic (Barre-Montpelier Road), and access streets' through traffic (most of our downtown area streets).

Montpelier's new Street Classification encourages the neighborhood to classify its own streets. The Street Classification assures that once a decision is made on the classification of a street, then the design of improvements for that street will be aimed at either mobility or access, but not both. Attempts to design streets to handle through traffic and local access simply create conflict. Street improvements must reinforce the function the community has chosen as the primary purpose the street serves. For access streets, traffic will have to give way to the community it is passing through. The functioning of the community will take precedence over traffic. For mobility streets, traffic will take precedence.

The streets classified here represent draft categories that require further consideration before being finalized. Montpelier citizens want their downtown area to be a pedestrian and bicycle friendly area that stresses social interaction and celebrates commerce, yet they realize many people arrive by car. Each citizen can look at the streets and consider if those streets are in the proper category.

·Elm Street experiences excessive speeds, particularly by the Recreation Area. This is a particular concern for bicycle and pedestrian safety, since many children use the Recreation Area.

To assure reasonable flexibility the Montpelier Street Classification specifies speed ranges for purposes of design improvements. These speeds can be achieved with a variety of traffic calming techniques. Traffic calming measures are based on three principles:

Streets are not just for through traffic in built up areas, but also serve commerce, access to adjacent properties by vehicles, bicycling, walking, playing and social interaction. Residents and businesses have rights to the best quality of life, and can best determine the types of improvements that create the least noise, the least pollution, the safest environment, the most enjoyable habitat, and a rich community life. Each trip by car involves a "cost" to the community in time, money, energy, and social and environmental effects. Traffic planning should seek to minimize these costs.

High Priority Roads to be Improved

·Towne Hill Road became increasingly strained with commuter traffic after the paving and reconstruction of the East Montpelier section was completed. The street contains no sidewalks, experiences high speed traffic, and is the connector to downtown for adjacent streets. Upper Main Street, especially near Main Street School, is unsafe.

·Outer Barre Street has no sidewalks and is subject to considerable through traffic that would increase in numbers and speed if the proposed high speed bridge replaces the Pioneer Street Bridge. The street under development through the rail property parallel to Barre Street should divert some traffic from between Granite Street and Main Street, yet commercial development will generate more traffic. Traffic speeds are a concern all along Barre Street.

·Terrace Street is another example of a residential street used for through movement of vehicles to Middlesex.

Intersection Difficulties

Well functioning, efficient and pedestrian-friendly intersections are important in any city. However, the typical urban intersection design with traffic lights delays cars, inhibits pedestrian and bicycle use, and experiences significant numbers of accidents. In historic centers like Montpelier, there may be intersections which are not able to be improved significantly, such as the intersecton of State and Elm Streets. These type of intersections may benefit from incremental improvements.

5.7 Parking

The City recognizes the need to provide adequate parking in the downtown area to accommodate commerce and growth. A comprehensive study of downtown and Capitol Complex parking found adequate long and short-term parking, with a possible need for long-term parking if the entire downtown area is built out under the current zoning law. The 1993 study, "Montpelier Parking and Shuttle Study," by Ecosometrics, Inc., led to a number of City Council actions.

The study identified 3,088 parking spaces. The State, the City, and private concerns each manage about a third of the spaces. about two thirds of parking is long term (mostly all day employees) and one third is short term spaces, supposedly used by shoppers, visitors, and those on business. The study found that 40% of Montpelier's two-hour spaces are used by employees for all-day parking. Long-term parking is adequate, except during the legislative session. Private parking spaces are generally underutilized in the downtown area.

Parking spaces are expensive. A typical surface parking space takes up land worth $5,000, and the annual economic cost of that space is about $55 a month, not including the cost of metering and policing the space. A new parking garage costs about $9,000 per space, or $110 a month. A cheaper solution for the City, for developers, the State, taxpayers, and employees is to encourage people to use alternative transportation. Downtown Wheels eliminated

Table 5-4

Street Classification for Montpelier

Street Type AccessSpeed (mph)Sample StreetsDegree of Traffic CalmingResidential Only5-15Kent, Sabin, Marvin, Cross, Meadow, Cummings, Mountain View, Freedom, Clarendon, Hubbard Park Dr., HarrisonMaximumResidential-light through traffic15-20Liberty, North, College, First Spring, Winter, Loomis, HubbardModerateResidential-heavy through traffic15-25Upper Main, Towne Hill, Terrace, E. State, Lower State, Northfield, Berlin, Barre, Gallison Hill, Elm, Sibley, BaileySelectiveBusiness Only5-15Langdon, Pitkin Ct.MaximumBusiness-heavy through traffic15-25Main, State, Barre, Taylor, Elm, BaldwinModerateMobilityRural Residential35-45County Rd., Hill, BlissLimitedUrban30-45Memorial, Berlin, River, national Life, US 2L:imitedInter-town40-45US 2 north of Three Mile BridgeIntersections onlyInterstate55-65I-89Intersections onlyBicyclesUrban10-15Winooski West to MHS,

Winooski East Main to PioneerRural20-30Winooski West beyond MHS,

Winooski East beyond Pioneerthe need for 30-40 downtown parking spaces on days during the legislative session when downtown parking demand peaks. An efficient shuttle is a necessity in order to entice people to park in the city's periphery. A rail shuttle would be another solution.

Employee incentives can be a good tool as well. A late 1995 study carried out by volunteer leaders of the Central Vermont Council of the Vermont State Employees Association revealed a strong desire of state employees for effective management of state-owned parking lots. The survey asked if Capitol Complex employees would be willing to park at the Department of Employment and Training for an incentive of $25 per month, a form of employee fringe benefit. Thirty six percent of the respondents, translating to 250 employees, said they would park peripherally for the incentive. A pilot project for Capitol Complex employees, as proposed by Rep. Karen Kitzmiller, could be undertaken as part of the Capitol Commission study. Such a project would reduce Montpelier's long-term parking demand by about 20%. A 20% reduction in long-term parking releases four acres of downtown land for other uses.

Table 5-5

Inventory of Off-Street Public Parking Facilities

Location Total Spaces Percent Peak Utilization

City Hall Lot 104 78%*

Pitkin Lot 43 80%*

60 State Street 62 69%*

Jacobs Lot 63 95%*

VLCT Lot 10 90%

City Center Garage 108 100%

Sarducci's Lot 32 47%

Taylor Street Lot 150 36%

*Occupancy of short-term spaces only.

SOURCE: CP&D Survey, April 1996

It should be noted that the figures in Table 5-5 are based on observed peak usage in Spring 1996, during the legislative session.

A 1995 State-funded study for a 700-car parking garage near Taylor Street met with strong opposition from Montpelier residents. Partly as a result of the State study, the 1995 Legislature created the City-State Commission, with State and City officials cooperatively seeking a common plan and policies for land use in the Capitol Complex and nearby areas, including traffic circulation and parking needs. The consultant's recommendations reinforce the need for peripheral parking and public transportation.

6. Population and Housing

6.1 Population Characteristics

Montpelier's stable residential population distinguishes the City from the growth experienced by many areas in the state. Table 6-1 shows that while the 1980s saw Vermont's population grow by 15%, and Washington Co. absorb 2,535 new residents, Montpelier's population expanded by only 6 people. This slow growth has continued to be the trend in recent years, with the City's population estimated to have increased by less than 1% between 1990 and 1994, compared with rates of more than 2% for the county and 3% for the state. This slow rate of growth understates the City's importance as a regional population center, with Montpelier housing 15% of the county's population in 1990, second only to the City of Barre's 17.3% share.

In contrast to Montpelier's population stability, a number of nearby towns have grown substantially. Between 1980 and 1990 Middlesex grew by 22.6%, Moretown by 15.9%, and Calais by 26.0%. Other towns surrounding the City grew at more moderate rates, with Barre Town increasing by 4.5%, Berlin by 4.4%, and East Montpelier by 1.5%. The only municipality to lose population in the County was the City of Barre, whose population declined by 3.5%. (U.S. Census)

The national trend toward smaller household size has been reflected in the changes that have occurred in the Central Vermont region. Table 6-2 shows that Montpelier has historically had fewer persons per household, and this number has declined faster than either the County or the State. Household size has stabilized at 2.5 persons in Vermont and the United States.

Declining household size can result in increased demand for housing even as the City's population remains stable. This accounts for the growth in the number of households in the City during the 1980's. During this period household formation in Montpelier was slightly lower than that of the County, but half the rate for the State. (Table 6-3)

Table 6-2

Average Household Size

Montpelier County Vermont

1970 3.03 3.37 3.37

1980 2.53 2.81 2.87

1990 2.33 2.62 2.67

2000 2.09 2.45 ---

Source: U.S. Census; /1 Central Vermont Regional Planning Commission

Table 6-3

Change in Number of Households

Washington

Montpelier % Change County % Change Vermont % Change

1970 2,841 ------ 14,146 ----- 132,091 -----

1980 3,254 14.5 18,613 31.6 178,325 35.0

1990 3,546 9.0 20,948 12.5 210,650 18.1

Source: U.S. Census

Similar to the State and County, the size of Montpelier's school age population contracted between 1980 and 1990. (Table 6-4) During the 1990's this trend is likely to slow as a relatively larger group of children move into the school age cohort. While the proportion of Montpelier's population of working age residents is comparable to that of the County and State, the City also hosts a somewhat larger group of older residents, many of whom have moved out of the labor force.

The mobility of our society makes it particularly difficult to accurately predict future population growth, and the assumptions upon which projections are based can substantially alter such figures. The following tables present a number of projections that reflect the different factors and weights used in the analysis.

Vermont Health Care Authority projections reported in Table 6-5 assume that the population change that occurred during the 20 years prior to the 1990 census will be reflected in the growth trends seen in future years. Based on this rationale, the more than 4% drop in Montpelier's population during the 1970's, and flat growth in the 1980's, suggests a continued decline in the number of City residents over the next 20 years.

Table 6-5

Population Projections - Vermont Health Care Authority

Washington

Year Montpelier County Vermont

Low High Low / High Low / High

1995 7,695 8,011 53,784 55,998 567,338 590,736

2000 7,249 8,013 53,258 58,860 574,832 635,331

2005 6,653 7,811 51,211 60,119 572,181 671,701

2010 6,169 7,539 49,884 60,967 571,040 697,937

2015 5,581 7,249 47,564 61,772 562,746 730,906

%Change

'95-'15 -37.9 -10.5 -13.1 9.4 -0.8 19.2

Source: Vermont Health Care Authority, 1993

The Central Vermont Regional Planning Commission (CVRPC) projects a more moderate decline in Montpelier's population. (Table 6-6) In contrast to the 3% to 12% decline projected for Montpelier during the 1990's, the cvrpc projects a loss of less than 1% of the City's population during this period.

Table 6-6

Population Projections - Central Vermont Regional Planning Commission

Washington

Montpelier County Vermont

Year Pop. % Change Pop. % Change Pop. % Change

2000 8,168 -0.96 58,077 5.7 591,000 5.0

Source: Central Vermont Regional Planning Commission

6.2 Housing

Montpelier contains a wide variety of housing styles and types ranging from large historically significant single and multi-family structures to modern condominium styles. Small apartments still dot upper floors of downtown buildings. Many older historic properties near downtown are converted into residential or mixed uses. But the most common residential streets typify the tree-lined traditional New England neighborhood in small cities--mostly single family and duplex housing distributed throughout a small street grid.

Most of Montpelier's housing stock pre-dates world War II. Consequently, much of it still contains considerable lead paint, a health issue.

While overall housing development slowed this decade, the following housing projects were completed adding to the diversity and supply of affordable units: twenty nine affordable units for elderly and disabled individuals on Prospect Street; assisted living units completed in 1995 through rehabilitation of Heaton House (now Heaton Woods) under the administration of the Capital City housing Foundation; and the completion of new and major rehabilitation of units on the banks of the Worcester Branch on Elm Street, just north of School Street by the Central Vermont Land Trust. The Vermont housing and Conservation board (VHCB), Farmers Home Administration (FmHA), and the City of Montpelier contributed substantially to the Heaton Woods project. The City also continued to provide funding for housing rehabilitation with ownership structured so that the housing will remain available to moderate income households when current owners move. The Washington County Mental Health Agency with two residential properties also contributed to the public sector housing development in recent years.

A possibly important housing development this decade was action by the Vermont Legislature allowing owners of single family detached housing units throughout the state to add an accessory apartment for a relative. With the presence of high property taxes, particularly in cities like Montpelier, the accessory apartment law may become a popular alternative for hard pressed homeowners to reduce housing costs while benefiting the community through expanding the housing inventory.

6.3 housing Supply

The City recognized in the 1990 Master Plan the need to inventory it's housing stock. Without this information important factors useful in characterizing the condition of housing in the City are difficult to ascertain. The information presented in this section is based on the 1990 U.S. Census and data provided by a number of housing agencies operating in the City.

Montpelier's quiet neighborhood streets are lined with single family and duplex houses as well as some large, older houses converted into multi- family dwellings. New construction has added both single family houses and condominium units to the City's housing stock. During the 1980's Montpelier added 332 housing units for a total of 3,769 dwellings in 1989 (U.S. Census, STF3A). Nearly half of this increase came from the Murray Hill condominium development, with single family residences accounting for most of the additional dwellings. Between 1989 and Aug. 1995 the City added an additional 77 units, bringing the estimated total number of housing units to 3,846.

Multi-family units accounted for a large portion of this increase (Table 6-8). The Vermont Department of Health places the number of year round housing units somewhat higher, estimating that there were 4,211 units in 1993, which would bring the total to approximately 4,217 by August 1995.

The mix of residential and non-residential uses in downtown contributes to a vibrant community environment beneficial to residents, businesses, and the community as a whole. Any conversion of residential to non-residential purposes should be carefully monitored. Preserving and expanding downtown area residential choices and accessibility should be encouraged Mixed uses should also be encouraged in the CBII District.

Table 6-7

Total housing Units

1980-1990

Year Total Units

1980 3,437

1986 3,589 est.

1990 3,769

1995 3,846 est.

Source: US Census 1980, 1990

City of Montpelier Building Inspector

The City's stock of public or publicly-assisted housing has declined slightly since the late 1980's. The Montpelier housing Authority is responsible for the largest number of housing in this category, managing 296 units, including 6 units in Barre. A number of other organizations contribute to ensuring that low to moderate income housing is available in Montpelier Table 6-9 summarizes the public and publicly-assisted housing units held by these organizations.

Table 6-9

Public and Publicly-Assisted housing Units

Pioneer Apartments - 60 Gould Apartments - 12 Cumming Street Apartments - 20 Lane Shops Apartments - 50 Seven Street Apartments - 7 Sect. 8 Existing/Mod. Rehab. - 108 Prospect Place - 29 Hebert Farms - 10 Vermont State housing Auth. - 21 Mont. Homeowner Opp. Prog. - 18 Community Development Assoc. - 6 Wash. Co. Comm. housing Project - 4

Total 345

Source: Montpelier housing Authority

6.4 housing Condition & Needs

Montpelier's housing stock is significantly older than the regional and state averages, with the majority of houses in the City constructed prior to 1939. These old buildings add to the historic character and charm of the City. (Table 6-10)

Table 6-10

Age of housing Stock

Year Built # of Bldg.

1989 to March 1990 1

1985 to 1988 214

1980 to 1984 138

1970 to 1979 329

1960 to 1969 323

1950 to 1959 262

1940 to 1949 137

1939 or earlier 2365

Source: U.S. Census, STF3A

Despite the age of the buildings only 15 housing units lacked complete plumbing facilities in 1990. Most of these systems (96%) are tied into public sewer systems, with the remaining 144 units using a private septic tank. Public or private water companies supply nearly 96% of all dwellings, with about half of the remaining units drawing from individual wells. (US Census, STF3A)

Older buildings can pose a number of health concerns, particularly the presence of lead-based paint and asbestos. Vermont's Department of housing and Community Affairs (VDHCA) warns that dwellings built before 1978 may contain lead-based paint, and houses built before 1960 may contain asbestos. (VDHCA, 1995) VDHCA estimates that the incidence of lead based paint in Vermont's housing stock is 90% for housing built before 1940, 80% for housing built between 1940 and 1959, and 62% for housing built between 1960 and 1979, with a margin of error of 10% applicable to all estimates. Applying this estimate to Montpelier's housing stock estimates that about 75% of the City's dwellings may be concerned about the presence of lead-based paint.

6.5 housing Demand

Housing demand in Montpelier is projected to remain strong during the 1990's. (Central Vermont chamber of Commerce) . Most of this increase in demand is expected to come from decreased household size rather than population growth. For lower income City residents demand for publicly-assisted housing currently outstrips supply. The Montpelier housing Authority estimates that waiting lists for some housing assistance programs exceed two years. If current trends continue, a significant portion of the demand for new housing will be for rental units. A high proportion of Montpelier residents occupy rental units compared to the County and the State. In 1989 over 43% of the City's residents were renters, compared with 31% for both the County and the State. Rent remains relatively affordable in the City, with the 1990 median gross rent of $406 less than Washington County's $411 and the State's $446.

The value of houses in Montpelier is close to that of the County, although more expensive than the State. (Table 6-12) However, fewer City residents own the home they live in than is typical for the region, with rental units accounting for 43% of housing units in the City, compared to 31% for both the County and the State.

Vermont municipalities raise a majority of their income from property taxes, and relative property tax burdens influence the attractiveness of the city for residential and commercial growth.

Table 6-12

1990 Median Home Value

Montpelier $94,100

Washington Co. $95,600

Vermont $89,300

Source: US Census, STF3A

Notwithstanding other factors that draw residents to the City, Montpelier imposes a relatively high tax burden on property owners. To facilitate comparison between municipalities, the Vermont Department of Taxes adjusts local property value assessments to fair market value and uses this information to standardize municipal property tax rates, termed the effective tax rate. In 1995 Montpelier had the second highest effective tax rate in the county, following only the City of Barre. (Table 6-13)

Table 6-13

1995 Effective Tax Rates

Montpelier and Surrounding Towns

Town Municipal Rate School Rate Total Tax Rate

Barre City 1.31 1.59 2.90

Montpelier 0.97 1.88 2.85

East Montpelier 0.39 1.83 2.22

Middlesex 0.48 1.74 2.21

Barre Town 0.79 1.35 2.13

Moretown 0.41 1.67 2.08

Berlin 0.50 1.28 1.79

Source: Vermont Dept. of Taxes

7. Community Facilities and Utilities

7.1 Water and Sewer Facilities

Water

Montpelier provides municipal water service to 2,643 commercial and residential customers. about 1,937 of these are metered, and currently pay $3.04 per 1000 gallons used, plus a $10.00 annual service charge. Un-metered customers pay a flat rate of $282.70 per dwelling unit per year. In addition, the system serves about 500 customers in Berlin Fire District 1, and at the LaGue town houses, as well as four residences in Berlin.

Water is drawn by siphon from its source in Berlin Pond,. through a chlorine plant where it is treated with chlorine and fluoride, and transmitted by a 12 inch and 20 inch main along Berlin Street and into the City's grid of mains. The bottom of the intake structure in Berlin Pond is set approximately at elevation 952, which gives the system siphoning capacity to about 850 feet. A special pressure district operates in the Terrace street area, with a pressure fed pumping tank located at about 950 feet elevation near the Middlesex line. This tank enables service to the 950 foot elevation at the north end of Terrace street. Potential service areas are generally established below the 850 foot elevation, except where special infrastructure can be installed, as on Terrace Street. The approximate existing service areas are shown on Figure 11.

The purity and security of its water supply is one of the City's greatest concerns. While Montpelier is endowed with an adequate water supply there is some concern over the quality of the system. To provide City residents a more secure and healthful water system and meet Federally mandated standards, the City has bonded for and is proceeding with construction of a new water treatment plant. This project is currently in the design and siting phase.

According to estimates of the City's water engineering consultants, current peak demand is approximately 3 million gallons per day(MGD) in the summer months, and 2.1-2.2 MGD in the winter.

The water works system was last thoroughly analyzed in 1974. At that time, the dependable yield of the system was estimated to be 4.2 MGD, and sufficient capacity was projected into the year 2025, including the Berlin Fire District 1, given its present geographic and supply limits. This would allow for an approximate doubling of the service demand of the system, assuming some additional summertime conservation measures. Currently, the state of Vermont has assessed the system and placed the dependable yield level at 1.7 MGD. The City intends to challenge the State's yield assessment.

The system, with components ranging in age from 5 to 95 years, has developed many leaks, especially in the downtown area where the dimensions of the distribution system are reduced, and where water pressure has not been regulated. Most of these leaks have been eliminated, although a recent water rate study estimated that leakage of 20% is still occurring.

Current system problems include the need to close out loops in the smaller downtown mains to level out pressure and reduce potential leaks, and to expand emergency storage. The City has also sought additional means to address community water needs. The City, working with the Towne Hill Road Association, organized Montpelier Fire District 1 in order to obtain financing to construct a water storage tank with sufficient capacity to serve the District and the City. Upon completion of construction, the City will lease and operate the Fire District 1 system.

Considering the excess capacity of current systems, the City has an excellent opportunity to control aspects of growth both within the City and in adjacent communities where development would logically use the City utilities. The City should develop criteria to be used in assessing requests from adjoining communities for public water service.

While the City presently has adequate capacity, the use of flat rate fees for water and sewer use offers no incentive for consumers to follow water conservation measures. Decreased demand through water conservation will increase available capacity and will decrease wear and tear on the present system.

Customers frequently complain of the color, odor, and taste of the water, particularly in the spring and fall. Although the water is chlorinated prior to distribution, and consistently tested against State Department of Health standards, additional treatment is necessary to alleviate these cosmetic conditions. In order to mitigate these conditions and comply with Federal law the City is currently constructing a water filtration plant. The new treatment plant has been bonded for and is currently being designed. It will meet all community needs, as well as state and federal statutory requirements.

The incorporation of the Towne Hill Water System into the City infrastructure will eliminate one of Montpelier's two remaining private water systems. The other private system, the Murray Hill development, serves residents with a private well and storage tank off Murray Hill Drive.

Sewers

The City's municipal sewage system roughly corresponds to the water service areas. Approximately 150 residences outside this area use private septic systems. The sewer system includes about 38 miles of line installed from 1898 to the present. about 64 percent of the system was constructed after 1950. However, 23 percent of the system dates from before 1923.

The sewage treatment facilities on Dog River Road received a major upgrading in 1979, and is scheduled to receive another upgrade in 1996. The facility will continue to have a design capacity of 3.97 MGD. Current use is approximately 1.3 MGD, Which includes about 0.15 MGD from the Berlin Fire District #1, which has rights to the system to a maximum of 0.6 MGD through an inter-municipal agreement.

Many of the smaller lines in the older sections of the City are combination systems that carry storm and waste water. These lines are subject to overflow during periods of heavy rainfall, about two or three times a year. Points of the combined sewer outflow (CSO) are located along the Winooski and North Branch Rivers. The City is currently undertaking a CSO elimination project and separating those combination lines. This work will be ongoing through 2003.

Currently the City is exploring the renovation of the existing sewage treatment plant to enhance operations and implement new sludge handling processes. These sludge handling processes will dramatically reduce the volume of processed sludge, through drying, and permit the City to market processed sludge as easily transported fertilizer.

The City's upgraded sewage treatment facilities includes adequate treatment capacity. However, combined sewer outflows continue to contaminate the City's rivers during storm periods. The current program to separate storm and sewer lines will reduce this potential for pollution, and improve the quality of waste water discharge.

Potential Service Areas

Given the existing capacity of the water and sewer systems, service areas can be expanded without danger of shortages or system failure. Potential water and sewer service areas are most effectively defined where infrastructure currently exists or can be easily extended without great cost and where induced development will not be detrimental to the goals and objectives of the City.

There are requests pending from developers and town official from the towns of Berlin and East Montpelier for the extension of water, sewer service, or both. Only Union School District 32 in the town of East Montpelier; and Berlin Fire District #1 and #2, LaGue Town Houses, and four residences on the border of Montpelier in the Town of Berlin are served by treated water. A single connection upstream of the chlorinating facility was granted to the former Pike farm when the water main intake was extended to Berlin Pond. The railroad station at Montpelier Junction is also connected to the City's water system. Sewer service is provided to the Town of Berlin under a 1982 agreement.

One mechanism being explored elsewhere in the state is the creation of a regional authority which would enable the benefits of induced development to be distributed on a regional basis through public works projects. Using this mechanism, a portion of the tax benefits, such as rooms and meals taxes, sales taxes and other benefits, would be applied to the authority

The Town of Middlesex and Montpelier have an arrangement at the Montpelier/Middlesex Industrial Park whereby Montpelier will receive tax sharing from development in the Town of Middlesex, which occurs as a result of water and sewer service extensions. This tax sharing has not yet occurred, primarily due to the scarcity of Federal funds to assist in the previously planned water/sewer line extensions, and the fact that the Industrial Park has substantially developed in spite of the delay in water and sewer services.

While it is practical that development in adjoining towns could use the City's water and waste treatment facilities, no mechanism is in place for the City to receive the benefits of induced development. The City should develop a fee formula which would enable proposed developments outside the City to buy into the City's systems. Such a formula could be based on the prorated current cost of facilities, the value of development, the impact of such development on the economy of Montpelier, and the tax rate. A comprehensive agreement with the town government including these provisions is preferred.

Prior to utility extension outside the City limits to facilitate development in neighboring communities, the City of Montpelier Planning Commission should review site plans or zoning changes for any proposed development. By so doing, the City will mitigate any potential negative impacts on traffic, density, landscaping, open space, and visual quality. Before further expansion beyond the City limits is permitted, the City must determine a limited allocation and time period during which the resultant contract would be in force.

There is potential and adequate capacity to extend the water system to adjoining towns, in particular the Town of Berlin. The provision of this service to adjoining communities should be contingent on the availability of water, adequate user fees, establishment of conservation efforts, and the potential for intergovernmental tax sharing from the induced development.

In cases where utility extensions are constructed by private developers, as in the case of the Murray Hill and Towne Hill systems, the City should ensure they are constructed to the same standards and quality as the City's systems to facilitate the efficiency of future connections. This policy would facilitate the absorption of these private systems into the municipal systems.

7.2 Solid Waste Management

Montpelier currently generates approximately 4,268 tons of solid waste each year. Montpelier's solid waste is hauled by eight different private firms to two privately owned landfills, Waste USA in Coventry, Vermont, and North Country in Bethlehem, New Hampshire. The effective life of these facilities is estimated to be at least twenty years. The Central Vermont Landfill, located in East Montpelier, was closed in 1992, and currently acts as a transfer station for waste haulers in the Central Vermont Solid Waste Management District.

The Central Vermont Solid Waste Management District has also implemented a mandatory recycling program for all communities in the District, of which Montpelier is one. Residents are given the option of curbside pickup or self hauling of their glass, aluminum, paper, and plastic. Recyclables are transported to District operated Material Recycling Facilities in Montpelier, Hardwick, Williston and Randolph Vermont. Subsequently they are shipped to a variety of out of state facilities where they are processed. While the current recycling effort is laudable, even the most optimistic recycling programs capture only 35-40% of the recyclable materials. The City of Montpelier must continue to pursue options to close this gap.

Solid waste management priorities should consider the following actions: reduction of waste generated, recycling, waste processing to reduce volume, and lastly, land disposal options. Despite local responsibilities solid waste is most effectively managed on a regional basis.

Innovative recycling programs are being tried throughout the country. One program that has been successful in Montpelier is curb-side recycling. Property-owners are supplied with disposal containers for recyclable glass, metal, newspapers, and non-recyclable waste. Carters collect waste in separate containers with the recyclable materials hauled directly to the recycling center.

The City together with the Solid Waste Management District should work with local retailers, offices and the State to encourage programs for waste reduction. Such efforts as reduced packaging and increased use of double sided copying and printing have been effective in reducing waste paper.

7.3 Public Safety

The Police Department is assigned 10 patrol officers and one investigator, in addition to 4 sergeants, the chief of police, 5 dispatchers, and a Department secretary. The Department operates 4 vehicles. Major responsibilities of the Department include crime control and reduction, control of traffic, maintenance of order and provision of public service.

The Fire Department is staffed with a Fire Chief and 16 full-time fire fighters/EMT's and a secretary. For major fires or disasters, 20 "on-call" fire fighters and three fire police may supplement the full-time staff. Major fire equipment includes two front line pumper trucks, one 100-foot aerial ladder truck, a fire alarm repair bucket truck, and the fire chief's vehicle. The Fire Department also utilizes two ambulances to provide Emergency Medical Service to the City and seven surrounding communities.

The effective delivery of public safety services is crucial to maintaining the quality of life in Montpelier. Currently, both the Fire and Police Departments operate from inefficient, unsafe and poorly accessed spaces. Two structural engineering reports have declared the current Fire Station to be in need of major renovation, and the Police Station has outgrown the limited space available to it in City Hall. Both departments have articulated a need for expanded and modernized facilities. In March of 1996 the citizens of Montpelier passed a $750,000 bond vote to renovate the City's fire station. The renovation of the fire station is anticipated to eliminate the structural deficiencies at the station, provide the fire fighters with modern living quarters, and meet the Fire Department's space needs for 20 years.

7.4 Education

The Montpelier School Department operates three schools:

The Union Elementary school, housing grades K through 4, was constructed in 1937 and was last renovated in 1993.

The Main Street Middle School, housing grades 5 through 8, was constructed in 1919 and renovated in 1983 and again in 1989.

The Montpelier High School, grades 9 through 12, was constructed in 1953 and renovated and enlarged in 1983.

The School Department also manages the old St. Michael's High School Building on Barre Street as administrative offices and as a senior citizen center which is operated by the School Board. The board of School Commissioners is an autonomous, elected, City board which relies on the municipal treasury for its funding appropriations.

St. Michael's is a parochial elementary school in Montpelier, serving kindergarten through the sixth grade. Current enrollment is 125. While enrollment has declined slightly since 1990, the school predicts expansion of enrollment in the future.

Currently there are about 1,350 students in the public school system, including tuition students. The following table indicates current and projected school utilization rates, given the current system structure and based upon traditional patterns of growth:

Figures indicate that both short and long-term capacity problems beginning in the lower grades and working through the middle grades. Projections beyond 1995 clearly predict some growth due primarily to students being introduced into the system not bound by the population projections for the City. Enrollment projections indicate that facility capacity will continue to be an issue facing the city through the year 2000.

Currently the school district is considering renovation and construction initiatives to address capital maintenance and overcrowding concerns at the Main Street Middle School and Montpelier High School. In March 1996 the citizens of Montpelier authorized a $2.9 million dollar bond, to leverage a $4 million renovation project at the high school and Main Street Middle School. The renovations will expand facilities at both the high school and the Middle School, as well as address heating and ventilation needs at the High School.

As part of this initiative, the fifth grade classes, presently housed in the Middle School will be moved back to Union

Elementary School, on a temporary basis. This is being done to ease the overcrowding at the Middle School. With the renovations performed at the Union Elementary School in 1993, it was intended that the school would have adequate capacity for the next 30 years. The proposed renovations to the High School should meet the needs of High School students for the next 30 years.

A task force of Montpelier residents who reviewed the needs of the Middle School and High School prior to the bond vote concluded that a new Middle School may be the only practical way to solve the facility needs for grades 5-8. Though recognizing that the cost of construction would be and unacceptable impact on property taxes, the task force recommended the solution outlined above as an interim solution. It is imperative that the School board continue to evaluate space needs and accurately forecast future needs. Any plans to construct a new Middle School in the future is likely to have a serious impact on property taxes and needs to be considered against other planned and necessary capital improvement projects.

7.5 Park and Recreation Facilities

The City's park and recreation facilities are the responsibility of the Montpelier Park Commission and the Montpelier Recreation Department.

The Recreation Department operates the City's recreation programs and is responsible for operation and maintenance of the recreation building on Barre Street, the City's Schools, and two recreation fields.

·The Elm Street Recreation Field, about 18 acres, includes the City's public swimming pool, public playground, basketball courts, 4 lighted tennis courts, a running track, two softball fields, a little league field, a baseball field, and football and soccer fields. The complex also contains a 2 1/2 acre picnic area with horseshoe pits, grass volleyball courts, grills and tables.

·The Dog River Recreation Area, about 11 acres, includes 2 softball fields, a small picnic area, and river access for fishing.

The Park Commission is responsible for four park areas in the City.

·Hubbard Park, Comprising 180 acres in the middle of the city is a major resource which includes picnic shelter, about 10 miles of cross country skiing and hiking trails, and baseball fields. As a backdrop to the Statehouse, the park is a major visual resource in the City, and an important natural area.

· Blanchard Park, about 4 acres behind the City Hall, is basically undeveloped.

· Summer Street Park is a .10 acre parcel in the Meadow area.

· North Branch River Park, comprising 154 acres of undeveloped land, is a shared responsibility of the Conservation and Park Commissions.

In addition to these City facilities, the Statehouse lawn, about five acres in front of the Statehouse, is used by City residents and workers for passive activities and for band concerts in the summer months. The three acre green at the Vermont College campus also serves a similar passive recreation function.

Such common areas in the recent Murray Hill, Hebert, and Independence Green developments are examples of developer contributions to the open space network within the City's residential areas. Additional small open areas can be incorporated in the proposed redevelopment of the Winooski and North Branch riverfronts.

Montpelier is also served by the recreation area at Wrightsville Dam. This dam, located in Middlesex, Montpelier and East Montpelier, was constructed for flood control, and now serves as a recreation area with boating, swimming and fishing. The City is a partner with adjoining towns in the maintenance of recreation facilities at the dam through contributions to the Wrightsville Beach Recreation District.

Taken together, there are approximately 360 acres of public parks and recreation areas in the City. According to national park and recreation standards the City is very well served. The concentration of these facilities in large areas outside the center of population represents some problem, and the City should look for opportunities to add small open spaces in the urban core, bike/hike paths, and tot lots and playgrounds in higher density residential areas.

Montpelier is a city of rivers, which dominate the city scape. Additionally the Winooski and North Branch rivers offer a variety of scenic views, and should be developed as a central component of the City design.

Currently the City is designing improvements to the Winooski East River frontage and a bike/pedestrian path along the Winooski River. These projects, once implemented, will address some of the City's recreation needs in the urban core. However, the City should continue to pursue opportunities to develop recreation space in the urban core whenever possible.

The growth in the City's recreation programs, particularly league sports, has created increased demand for baseball, basketball and soccer fields. Currently the City is unable to allow non-residents to participate in Recreation Department sponsored baseball leagues because of a shortage of fields. Blanchard Park, currently undeveloped offers some potential to meet this demand; however, its severe topography suggests passive uses may be more appropriate.

Development of the City's Bike/Pedestrian Path along the Winooski River frontage is progressing, and will greatly enhance the City's system of recreation trails.

The extensive trail network at Hubbard Park and the sizable acreage of North Branch River Park offer excellent hiking and Nordic skiing opportunities. The City has considerable river resources which could be developed, through river access, as a broader recreation resource suitable for regional tourist marketing.

7.6 Energy and Resource Conservation

Montpelier uses energy for transportation, heating, lighting, air conditioning, appliances, and industrial and commercial processes. Improving the energy efficiency of the vehicles, appliances, and other equipment we use can save significant amounts of energy. In addition to using energy directly, Montpelier citizens also use energy indirectly due to the energy embedded in the products they buy and use. For this reason, reducing consumption and recycling also are significant ways to save energy.

Energy policies differ from many of the other policy recommendations in this plan in that they often do not translate directly into city ordinances, that they require a combination of research and creative implementation work, and that no city office is generally responsible for such policies. For these reasons, a proactive energy coordinator or commission is needed to make progress toward energy policy recommendations.

Montpelier's electricity is supplied by Green Mountain Power Corporation. Two transmission substations are located in the city, on River Street and near the national Life headquarters. Utility corridors have been established in the eastern and southern portions of the city.

GMP currently offers incentives, generally in the form of cash payments or rebates, for energy efficiency improvements for low-income residents and commercial and industrial buildings. In addition, GMP offers free assistance in the form of energy audits, help in the design of energy conservation plans for new construction, and other assistance. The City should take advantage of these cash savings and free assistance to its residents by actively encouraging participation in GMP's programs. The City should be especially proactive in targeting low-income residents for GMP's low-income programs, which include electric fuel switching, weatherization assistance, and multi-family dwelling retrofits.

Montpelier has an unusually excessive percentage of households heated by electricity. Twenty-three percent of Montpelier homes were heated with electricity in 1990 compared with 12% in Washington County and only 9% statewide.(Table 9-11) While electric heat is inexpensive to install, it is one of the most expensive fuels and the most ineffecient fuel for home heating. While the higher fuel cost is especially problematic for low-income residents, it can be taxing even for middle-income homeowners and tenants. GMP currently offers cash incentives for electric heating fuel switching only to low-income residents; however, there is often enough cost savings to justify a switch to a more efficient heating fuel even without such financial assistance. The energy coordinator/commission should work with property owners who have electric heat to promote switching to more efficient fuels. The coordinator/commission should especially target property owners who rent apartments with electric heat, since these property owners have little incentive to switch if their tenants pay the monthly electric bills.

The City's weatherization program, which has assisted over 80 units since 1986, is estimated to cut energy loss in these units by 26 percent.

Montpelier currently leases the greater part of its public lighting from GMP. Because of this, the City does not have direct control over the efficiency level of its street lighting

Table 6-11

Home Heating Fuel

Percentage/Type

Type of Fuel Montpelier Wash. Co. Vermont

Fuel Oil, Kerosene 62.2 56.3 54.3

Electricity 22.8 12.1 9.1

Wood 6.7 17.8 17.0

Utility, Bottled, Tank,

LP Gas 6.5 12.4 18.5

Coal or Coke 1.6 1.2 0.7

Other 0.2 0.2 0.4

Source: 1990 Census

However, GMP has worked with other towns to institute programs where progress towards more efficient street lighting is being made. Montpelier should investigate this option, as well as the feasibility and economy of owning a greater portion of its lighting system.

Montpelier can also save public money through the cost savings of energy retrofits on public buildings, and can thus act as a model of energy efficiency to residents and business-owners. Life-cycle costing (in which the initial purchase price, maintenance, repair, energy, and ultimate disposal costs are considered in conjunction with the lifetime of the product, fuel price escalation, inflation, and externalities) can identify and provide justification for purchasing products that are less expensive over their lifetimes, even though they may have higher initial purchase prices. Through the use of life-cycle coy years into the future. By contrast, losing the opportunity to capture energy savings during new construction results in additional energy use and expenditures far into the future. Montpelier should take a proactive role in beginning to institute efficiency in new buildings by requiring building contractors to submit a plan for energy conservation and recycling of construction waste. In the meantime, the City should investigate the possibility of including Act 250 requirements into City ordinances, one of which addresses energy efficiency directly. (Other Act 250 requirements address high-density, mixed-use town and growth centers, which are also energy saving measures). Several Vermont towns have instituted Act 250 requirements into their city ordinances, with beneficial results. An alternate way to achieve energy efficiency in new buildings is to institute citywide building standards for new construction, as is done in Burlington.

With the restructuring of the electricity industry currently underway in Vermont, the coordinator/commission should monitor the ways in which GMP and other Vermont utilities are likely to be transformed in a restructured environment, along with the subsequent effects on Montpelier electricity customers. Actions taken by Montpelier while the restructuring process is going on could make a difference in the ultimate outcome for city residents. For example, the City could explore the possibility of providing or becoming an energy aggregator that consolidates customers into groups for stronger buying power after increased competition takes hold.

Policies related to energy efficient transportation, high density, mixed-use land patterns, city-wide recycling ordinances, and "buy local" policies are explored in more detail in other sections of this plan, but they are all significant energy policies as well.

Almost one half the energy used in Vermont is for transportation purposes. Through transportation and parking policies, the City should encourage the use of public transit, car pooling, and other mile-reducing means of transportation. The City should work with the Joint Capital Area Study Commission to address the parking needs of state employees, city residents, and visitors to the business district. The City should also work with the state's electric vehicle test project to facilitate the development of this innovative technology, by employing electric vehicles in the city's fleet whenever feasible. The City should also consider promoting a charging station for electric vehicles.

High-density, mixed-use land patterns have the potential to significantly reduce energy use. Reductions in energy use from land patterns result mostly from reduced transportation energy use, but also result from the smaller amount of energy needed to build, maintain, and use infrastructure.

Recycling ordinances are important energy-saving measures because they reduce the "embedded energy" of the products we use. Because each product we discard represents an energy investment, it is more energy efficient to recycle that product and "re-use" some of its embedded energy.

Finally, purchasing local goods and services saves transportation energy by requiring fewer trips to purchase and deliver such goods and services.

8. Cultural Facilities

Central Vermont is a region alive with arts organizations. Of the approximately 200 Vermont arts organizations registered with the Vermont Council on the Arts, over 40 make their home in Central Vermont, and more than half of these are based in Montpelier. Because these numbers reflect only organizations such as theater and dance companies, art galleries, and musical groups, they do not encompass the myriad individual artists, artisans, performers, and crafts people who make Montpelier, and the other communities of Central Vermont, their home.

Montpelier also has four institutions of higher education, Vermont College of norwich University, Vermont Community College, Woodbury College, and New England Culinary Institute. These four schools serve a student population of approximately 2,500 full and part time students. In addition to the private library facilities available through the colleges, Montpelier is also served by the Kellogg Hubbard library, a facility that has over its 100 year history developed into an important regional resource.

The Library

The Kellogg-Hubbard library, while not an educational institution, is clearly one of the major cultural institutions in Montpelier. The library, a 100 year old historic structure, houses over 60,000 volumes, and has the highest circulation of any public library in the state. It is a regional center offering adult and children's reading programs. The children's programs serves over 3,000 children annually.

Educational Institutions

Four institutions of higher education reside in Montpelier. The largest, Vermont College of norwich University, enrolls almost 1,000 older, non-traditional students. The Vermont College campus, comprising approximately 35 acres and several buildings, is a growing institution expected to continue to grow over the coming years. While current space needs are not clearly defined, the college has acquired additional acreage for anticipated development, which could potentially disrupt surrounding residential neighborhoods.

The Vermont College campus is also home to Vermont Community College's Montpelier campus, which enrolls about 900 students. This institution, like Vermont College, largely serves non-traditional students. Its development plan is clearly bound to that of Vermont College.

Woodbury College, which occupies approximately 8 acres and enrolls 130 students annually, offers a curriculum of specialized one year certification programs, primarily to non-traditional students. The College currently operates out of one building, and could potentially grow in the future.

New England Culinary Institute, a two-year culinary school, enrolls approximately 400 students annually and occupies a campus of less than 4 acres, with two primary buildings. In addition to the main campus, the school also owns and operates a number of fine restaurants in the downtown district. As the Culinary Institute is one of the few colleges with a more traditional student population, they do provide dormitory facilities to house some of their students, while others choose to live independently elsewhere in Montpelier. While the schools' space needs are currently being met, this may change in the future

In order to address some of the issues raised by past Vermont College and New England Culinary Institute expansion plans, the City of Montpelier, on February 10, 1993, created an institutions overlay zone around both institutions. The intent of this designation was to provide the schools with room for expansion, to buffer adjoining residences, and to simplify the review process for institutional uses.

Arts Organizations

Montpelier boasts a sizable arts community for a town of its size. The most prominent of the arts organizations serving the community are the Lost Nation Theater, Wood art Gallery, and the Onion River Arts Council. All of these organizations have facilities they utilize as performance or display space. Lost Nation Theater Montpelier's resident professional company, holds theatrical performances six days a week June to October in the City Hall Auditorium, and conducts the drama program at Montpelier High School.

Lost Nation Theater, depends primarily on the City Hall Auditorium for its performance space. This structure, with a capacity of 1,300, was renovated in 1994/95 with a new lighting grid, walling and drapes. While this construction addressed some of the lighting and acoustical shortcomings of the facility, there are still sound system and lighting needs that must be addressed to make the auditorium a high quality performance space.

The Onion River Arts Council, a regional arts organization, manages rentals and utilizes the City Hall Auditorium during the winter months as a space for dance and musical performances, as well as for a variety of performing arts classes. Additionally, as the officially designated City Arts Agency, the Onion River Arts Council sponsors a wide array of performance events throughout the City and region.

The Wood art Gallery, located on the Vermont College campus, with an art collection valued in excess of $3 million dollars, is a focal point for the visual arts in Montpelier. Hosting 15 to 25 major exhibits a year, in addition to the standing collection, the Wood Gallery brings in over 6,000 visitors a year.

The Pyralisk performance space, formerly housed in a historic structure behind City Hall, is in the process of relocating. While in operation the Pyralisk offered a venue for a variety of performers on a year round basis.

Another regional force for artistic endeavors is the Vermont Council on the Arts, the official State Arts Council, offers grant funding to Vermont artists and performers. While all of these organizations currently have some performance space, or access to performance space, there is a general feeling among the arts community in Montpelier that current performance, studio, and display space is inadequate for the size and robustness of the arts community. Of particular need is adequate studio space for performing and visual artists.

9. Economic Development

9.1 Economic Characteristics

The location of the state capital in the city has a profound influence over the character and economy of Montpelier. This is illustrated in both the proportion of administrative and managerial jobs in the City, and the relatively high incomes enjoyed by residents. A number of these sectors are strongly influenced by a few large employers, notably national Life and Vermont College.

Table 9-1 summarizes the growth in the average number of businesses and employment in Montpelier. State government accounted for nearly 28% of jobs in 1994, followed by the Service sector (including Education) with 24.8%, FIRE with 18.1%, and the Retail sector with 12.9%. The Service sector added 219 jobs to the City's economy since 1991, followed by the Retail sector addition of 103 jobs. The Construction sector experienced the greatest decline, where 13 businesses closed and nearly 40% of construction jobs were lost.

Although both public and private sector jobs contracted during the economic recession in the early 1990's, Montpelier's economy fared relatively well. Between 1990 and 1994 the City maintained an unemployment rate equal to or lower than the County and the State in all years except 1993. (Table 9-4) Compared to other large municipalities in the state, however, Montpelier has a relatively large percentage of its labor force out of work. Montpelier's unemployment rate of 4.5% in Oct. of 1995 was the 5th highest out of Vermont's 16 largest towns and cities. This rate did not change between 1994 and 1995 while other large municipalities saw their unemployment rates decline. (VT Dept. of Employ. & Train.)

Montpelier's population consists of a substantially better educated labor force than the county or the state. This is particularly noticeable in the 16.8% of residents over 25 years old holding advanced degrees, nearly double the statewide level. (Table 9-3)

The quality of jobs in the City and high levels of education are reflected in elevated median family incomes. Median household income, which includes unrelated people sharing a dwelling, is lower than the County and the State. This is partly attributable to the population of students living in Montpelier. (Table 9-5)

Similar to the County and State, over a third of Montpelier's residents had adjusted gross incomes of less than $15,000 in 1993. On the other end of the earnings scale the City is distinguished by the 19% of the population earning over $50,000 per year, a larger percentage than either the County or State. (Table 9-6)

For those residents with low incomes the economic situation improved slightly between 1980 and 1990. During this period the number of people receiving public assistance income in Montpelier declined, from 11.8% to 7.7% of all households. However, these rates remain higher than the State average for this period. Some of the demand for assistance came from local families, with 6.0% of the City's families having incomes below the poverty line in 1990, slightly lower than the 6.3% for all families in the State. (U.S. Census, STF3A)

9.2 Montpelier: State Capital and Regional Center

Central Vermont, comprised of 24 communities, is home to approximately 60,000 people. Montpelier is in a unique position, serving as both the geographic center of Central Vermont, as well as an economic and social hub for surrounding communities. The Regional chamber of Commerce reports that Central Vermont has 2000 employers, providing jobs for approximately 27,000 residents. The 1989 Governor's Commission on the Economic Future of Vermont found that 460 employers provide positions for approximately 8,250 individuals in Montpelier.

Table 9-7

Employers and Employees in Central Vermont Communities

TownNumber of EmployersNumber of EmployeesBarre City4304,547Barre Town1091,486Berlin1102,334Montpelier4578,231Waitsfield155942Waterbury1451,692

Source: Governor's Commission on the Economic Future of Vermont

As Table 9-7 illustrates, Montpelier is a significant source of employment for Washington County. The Montpelier Community Development Plan found that Montpelier provides a source of employment for approximately eighty percent of the communities in Washington County. The Plan also reported that Montpelier serves, on average, a daytime influx of approximately 10,000 people. (Montpelier Community Development Plan, 1989)

Clearly a contributor to Montpelier's regional economic position is its role as the State capitol, and the presence of the legislature, administrative agencies, and the corollary industries serving those two entities. As a consequence of this focus on state government, Montpelier's white collar and service sectors are among the most robust components of the local economy, accounting for 54% of employment, according to 1990 census data.

The challenge facing Montpelier in fostering economic development lies in identifying and bolstering those facets of the local economy that are prospering, seeking opportunities to develop new businesses to diversify the current economic base, as well as assist existing businesses to find ways to develop and grow.

Montpelier as a Center of Government

Montpelier, as the Capital of Vermont, acts as home to the State legislature and the Governor, but also to a wide array of administrative and regulatory agencies. The State of Vermont is one of the single largest employers in the City of Montpelier, employing 2,367 individuals and paying total wages of $63,118,209. Those individuals employed by the State constitute 28% of the city's total work force, and 30% of the all wages paid. Although the current trend in State government is to downsize many agencies and reduce overall staffing levels, this remains an area where the city has seen growth in overall numbers of individuals employed.

Since 1990 the number of individuals employed by the state in Montpelier has increased by 1.9%, from 2322 to 2367 in 1994. Generally, the positions held by State workers, are relatively high paying jobs. According to the Department of Employment and Training statistics for 1994 the average wage paid to State employees was $26,663. This is on average $1,000 greater than the average total wage paid in the City, and $2,377 greater than average wages paid by private sector entities.

As the seat of State government, Montpelier is also host to a number of Federal offices and agencies, among these Vermont's Congressional field offices, the Internal Revenue Service, and the Small business Administration. In 1994 the Federal government employed 156 individuals

in Montpelier, paying $5,901,368 in total annual wages. This constituted approximately 2% of the total work force, and 3% of total wages. The number of federal employees in Montpelier has remained substantially unchanged since 1990.

Federal jobs on the whole offered individuals high quality jobs. Department of Employment and Training statistics reflect that federal jobs paid $37,951 on average, a sum $12,844 greater than the overall average wage, and $13,665 greater than average private sector wages. Wages in this sector increased by 20% between 1990 and 1994, from 31,674 to $37,951.

Montpelier as a Regional Center

While the presence of state government is extremely important to Montpelier's economy, private sector employment is also exceedingly important to the economic health of the community, providing the lions share of positions. According to 1994 department of Employment and Training figures, total private sector employment was 5,516 and accounted for $133,968,246 in total wages. This constituted 65% of total employment and 63% of total wages.

Of the components of private sector employment the three largest are Retail Trade (12%), Finance, Insurance and Real Estate (18%), and services (25%). Average wages for Retail Trade were $14,059, $11,048 less than the average wage for the city. Average wages for Finance, Insurance and Real Estate were $36,325, $11,218 greater than the overall average for the city. Average wages for services were $20,869, $4,238 less than overall average wages.

Both the number of individuals employed and salaries have generally been on the increase in these sectors, since 1990. Service positions increased by 11.6% between 1990 and 1994, from 1883 to 2102; Retail Trade, by 10.4% from 991 to 1094; and Insurance and Real Estate decreased by 2%, from 1559 to 1533. Wages, overall, have increased in all of the foregoing sectors. Real Estate wages rose by 13% between 1990 and 1994, from $32,046 to $36,325. Wages in retail trade rose by 8%, from $13,007 to $14,059. In the service sector, wages rose by 11%, from $18,854 to $20,869.

Those sectors that are prime indicators of housing starts and development, manufacturing and construction, comprise a relatively small portion of Montpelier's economy, and remained stagnant or declined between 1990 and 1994. Manufacturing based industry generated 262 positions in 1994, paying approximately $5,851,883 in wages. This constituted a 1% decline from the 265 individuals employed in 1990, and the $5,618,363 in wages paid. While total manufacturing wages have declined, the average wage increased by 5% from $21,242 to $22,314.

Construction has declined far more precipitously than manufacturing. In 1990 contract construction employed 136 workers and paid $3,112,923 in total wages. By 1994, construction employed only 84 individuals and accounted for $1,754,560 in total wages, a decline of 39%. Furthermore, unlike manufacturing, construction saw a concurrent decline in the average wages paid, which decreased by 8%, from $22,585 in 1991 to $20,846 in 1994.

9.3 Areas of Growth/Potential Development Opportunities

Retail Economic Growth Sectors

Any economic development strategy will have to be designed to reinforce the most robust economic sectors while searching for ways to expand those that are lagging. Clearly, those areas that are faring the best are financial and insurance services, service industries, and retail trade. Of these areas of growth, the one where the city has focused the most attention is on retail trade and the city's merchant district.

While retail trade grew by 10.4% from 1990 to 1994, it is an economic sector that is still beleaguered by other regional forces, primarily competition from the Berlin Mall, Barre Montpelier Road, and Burlington. The 1993 Downtown Montpelier Retail Market Study found that in addition to local competition from the Berlin Mall and Barre Montpelier Road for less expensive items, one of Montpelier's primary sources of retail competition are merchants in the Burlington Area. Items for which local residents are particularly willing to travel for include clothing for adults & children, gifts for adults & children, sporting goods, and going out to dinner with other adults.

Those areas where Montpelier is competitive are in the sale of books, stationary and records, movie theaters, restaurants, office supplies and office-related services, and travel services - a finding that is supported by the substantial growth of the service sector in recent years.

Based on these findings the study suggested that there are several areas where merchants could expand businesses in the city. While Montpelier has a number of excellent restaurants, an outgrowth of the presence of New England Culinary Institute and the high number of daytime transient workers in the city, the study indicated that new restaurants serving regional or foreign cuisine, at affordable prices could be viable. This assertion is based on findings that survey respondents frequently traveled to Burlington to dine out.

Furthermore, the study also suggested that the trend in downtown Montpelier is toward specialty stores, and suggested that merchants who specialized in environmental products, or other Vermont specialty products, could do very well.

More broadly, the study recommended several measures the City could undertake to foster commerce in the merchant district. The study found that respondents stated a desire for shops to be open on evening of arts events. Consequently, the study recommended coordinating large cultural events with the merchants. Additionally, the study suggested combined arts and restaurant promotions, for example offering discounted meals with tickets to an event. Along these same lines the study also recommended extending shopping hours until 9:00 p.m. at least one night a week, and possibly coordinating this with the schedules of local arts organizations.

Another recommendation is to establish a visitor information center to assist visitors to find local businesses and points of interest. The study also found that one of the criticisms of Montpelier as a shopping destination was difficulty finding adequate parking. Accordingly, the study recommends establishing a standard municipal parking signage system to more effectively direct visitors to municipal and private parking lots. In addition to this measure, alternatives to consider are the findings and recommendations of the 1992 Ecosometrics Parking Study.(See Transportation Section)

Potential Areas of Development

While the Downtown Montpelier Retail Market Study offers insight into ways in which the city can bolster the retail trade sector, there are physical limitations to retail growth, primarily, a finite supply of on-street retail space. The limitations on the physical boundaries of the downtown, on-street retail space could potentially be overcome in a number of ways. One option to consider would be development of expanded interior mall retail space within existing downtown structures. Another alternative the City can consider is expansion of the Central business district (CBI and CBII) into previously commercially undeveloped areas of the City.

Other potential areas for development are structures, and portions of structures, that are already existing in the downtown business district. There are substantial unoccupied building spaces within the City's downtown, particularly in upper floors, which could potentially be utilized for office, apartment, loft or gallery space.

The City, based on the recommendation of the 1990 Master Plan, has undertaken a number of initiatives to develop public amenities and infrastructure to foster tourism and development. The two primary projects in which the City is currently engaged are the Winooski East Riverfront development project and designing the pedestrian/bike path along the Winooski. The Winooski East project is currently in the site assessment phase, with construction scheduled to start in autumn of 1996. Once completed this project will open up an under utilized portion of the City to substantial development and use as a common space for the citizens of Montpelier.

Until the summer of 1995 the City shared a tourist information kiosk in downtown Montpelier with the State Department of Travel and Tourism, but this facility was eliminated by State downsizing. There is certainly a need for the City to take measures to attract tourism to the Montpelier, through public relations and development of adequate tourism infrastructure. While there is currently no plan to replace this facility, the City should investigate the possibility of re-establishing this important source of tourist information. In 1996 the Montpelier Travel Council was created and an informational booth was built.

9.4 Partnerships and Networks to Support Economic Development

Describe who we have:

Montpelier business network Montpelier Roundtable Montpelier business Association Montpelier Travel Council Economic Council Montpelier Loan Fund Committee Also: CVT chamber commerce CVT Economic Initiative CVT Econ. Dev. Corp. Regional Planning & Development Groups

10. Local Government Finance

Existing Conditions

The City of Montpelier operates on an annual budget of approximately $15 million. The public schools budget comprises approximately 63% of the total budget, while the City's municipal services constitute approximately 32%. The remaining 5% is comprised of the Recreation Department(3%), Green Mount Cemetery(.07%), Senior Center(.03%), and contributions to the outside agencies (1%).(See Figure 1)

The City's primary source of revenue is the property tax which accounts for 80% of the city's budget. The remaining 20% is comprised of state assistance (7%), fees (1.5%), and other miscellaneous sources (12.5%). The heavy dependence on the property tax as the primary revenue source for Montpelier is a trend that is increasing as state and federal revenue assistance decreases. The percentage of state and federal assistance, particularly to the public school system has declined dramatically from 31.2% in 1984 to 20.6% in 1995. Paradoxically, as aid has diminished mandated programs have grown. While the demand for revenues has grown the city's Grand List of property has remained largely stagnant.

This is a problem exacerbated by the presence of the state government and other tax exempt entities in Montpelier. There are currently 120 tax exempt properties in Montpelier, with $112,765,093 in assessed value. The State of Vermont is the single largest property holder with 78 properties valued at approximately $78 million. This constitutes 69% of all tax exempt property in the City of Montpelier.

To compensate the City for services rendered to state properties and employees, in fiscal year 1996 the State of Vermont paid the City a Payment in Lieu of Taxes(PILOT) amounting to $181,518-.2% of the assessed value of the property or roughly 8% of what their actual tax bill would have been. The disparity between the demand for services created by State offices and employees, and the amount of their PILOT payments has long been a point of conflict between the State and the City, which must be resolved in the future.

Diminished outside funding and increased need for services and capital maintenance have driven the City and School budgets to higher levels. Because of this growth, in 1995 the City of Montpelier has the fourth highest effective tax rate in the State of Vermont.

While the tax rate has increased in the past ten years, the City has had a difficult time keeping up with the demand for capital maintenance. Thus the City is currently faced with three bridges that need substantial renovation or complete reconstruction, as well as a variety of other street and facility maintenance projects. The consequence of deferred capital maintenance is increased costs for capital investment in the future.

The growth in the tax rate has created tremendous pressure to find alternative or additional sources of revenue to effect a reduction in the rate. One of the most frequently cited potential sources of tax relief is increased development and the concurrent addition of value to the communities Grand List. While this approach makes intuitive sense, the reality is that it would require an enormous amount of additional development to achieve a minimal reduction in the tax rate

In order to achieve a $.20 reduction in Montpelier's tax rate, it would be necessary to add approximately $29 million dollars to Montpelier's Grand List. This amount of new construction is equivalent to all of the existing buildings on Main and State Streets in the downtown business district and would only result in a 6% reduction in the total 1997 tax rate.

Other alternative sources of tax relief that the City can pursue, with better results, are property tax reform, establishing local option taxes, and regionalization of services. Property tax reform, initiated at the state level, would likely result in substantial tax relief for Montpelier residents. Unfortunately, this is an initiative that has long been debated by the State legislature without any meaningful action.

The creation of some local option taxes, such as rooms and meals taxes, are a potential revenue source that has long been favored by the City of Montpelier. Currently, the City is lobbying the Ways and Means Committee in the legislature for authority to implement a local meals and alcohol option tax.

Regionalization of services, particularly public safety services, is an option that has been long discussed and studied. This approach to service delivery hold great potential for achieving economies of scale, and cost reductions in operations and personnel.

11. Land Use and Development

11.1 Distribution of Land Use

The total land area of the City is 10.03 square miles or approximately 6,419 acres of land. The city's GIS system measures 6,596.04 acres of land and water area. The pattern of land use within this area follows the general pattern of a compact urban core surrounded by decreasingly dense residential uses. Most of the outlying areas not served by public water and sewer service are truly rural in nature.

Earlier chapters describe the character of Montpelier's natural and built environments. They outline the importance of Montpelier's valley location with its open and wooded hillsides and of its dense, diverse urban form.

Table 11-1 indicates land area in current land use, according to the Montpelier GIS office.

11.2 Current Zoning

Montpelier has had zoning since 1947. The current regulations combine the subdivision regulations and were last updated in October 1994. The regulations provide for ten zoning districts:

LDR - Low Density Residential: Non-intensive or open space land uses, primarily residential or agricultural and accessory uses, with a minimum lot area of one acre or two acres with on-site water and sewer. This is generally used by the City as a land conservation zone.

MDR - Medium Density Residential: Single family residential areas. Multifamily residences are permitted through a conditional use permit. Minimum lot areas range from 13,500 square feet (1/3 acre) for lots with water and sewer connections, to one acre for lots with on-lot water and sewer.

HDR - High Density Residential: Centrally-located high density residential areas where City water and sewer are available. Minimum lot area is 10,000 square feet (1/4 acre) for the development and 1,500 square feet per family.

CIV - Civic District (Capital Complex): Office uses associated with the City's function as State Capital.

CB-I - Central Business: The City's primary government and retail center. The district also permits multi-family housing. Minimum lot area is 5,000 square feet (1/8 acre).

CB-II - Central business II: A transitional district between the Civic and Central business Districts. The district permits office and multi-family residences and other uses which would enable the preservation of the historic character of the areas where mapped. Minimum lot area is 10,000 square feet.

OP - Office Park District: Provides for well-designed corporate campus-type development. This district

Insert Figure 13-Land Use

provides special planning for sites with a 10-acre minimum and includes design guidelines to protect view corridors and natural features.

GB - General Business: Auto-related or dependent and associated uses and activities for travelers. The minimum lot area requirement is 15,000 square feet, 20,000 square feet or one acre depending on availability of public water or sewer.

IND - Industrial District: Manufacturing, warehousing, distribution and associated uses and activities. Minimum lot are ranges from one to two acres depending on availability of services.

The zoning regulations also provide for the following special controls and uses:

· Special development regulations for Office Park Development parcels: These regulations offer development standards and design guidelines for the OP District.

· Standards for development in Flood Hazard areas.

· Planned Developments both Planned Residential Developments and Planned Unit Developments are allowed pursuant to State regulations. An Academic Institution Planned Unit Development has been enacted to provide for future development of institutions in residential districts.

The regulations also provide for group housing, signs, parking and loading and other key aspects of development in the City. A parking fund for the provision of public parking has been established to receive parking replacement fees in the CB-I, CB-II and Civic Districts. In addition, provisions have been made for the collection of impact fees for new development in the City.

The zoning map establishes the location of these districts based on the type of existing development, availability of water or sewer services and other infrastructure requirements, and elevation. For comparative purposes, the approximate acreage in the principal zoning districts is shown in Table 11-2: The current zoning map is Figure 14.

11.3 Future Land Use Plan

The City's Future Land Use Plan, illustrated in Figure 15, emphasizes quality development in addition to laying out areas for new development. The Plan has been formed by considering natural and environmental features, the availability of infrastructure, the demand for development, and the desires of the community. Also considered is the existing zoning and how that might be changed in the future. The Future Land Use Plan is intended to provide a general guideline for future land use distribution in the City. It is not a zoning plan, although it should provide guidance for future zoning changes.

As indicated on Figure 15 the future land use plan includes the following components:

Single Family Residential: These areas are primarily single family attached and detached developments. Accessory apartments and planned developments should be allowed by special exception after full consideration of their impacts.

Mixed Residential: The intention of these areas is to encourage high-quality residential development at densities prescribed in the zoning regulations with minimal intrusion of conflicting uses or activities. Residential uses may consist of a variety of building types, including single-family detached residences, town houses and multiple-family dwelling as determined by zoning.

Commercial: This is the central retail shopping and office area of the city and the location of a vital and diverse mixture of pedestrian-oriented uses, including residential. The area houses major institutions and local government functions in addition to commercial activities. Uses and activities which contribute to the cultural vitality for which the City is known should be encouraged because the area is in many ways the landmark area of the City. In addition to shops and financial institutions, places of entertainment, galleries, performance spaces, and housing should be provided.

Capitol Complex: The Capitol Complex lies adjacent to the downtown and has been defined by boundaries mutually determined by the State and the City. It is the location of the renowned Statehouse and affiliate offices of State government.

Planned Office: This is the location of uses requiring larger parcels of land than are available downtown and where access is important. These uses include planned office parks and research facilities. Because they are located in highly visible locations in the City concern must be give to site development and design.

Industrial: These are areas for manufacturing, distribution, and utility uses which are major economic drivers of the City.

General Business: These are outlying commercial and office areas which provide regionally-oriented business and service uses which are automobile oriented and require good access. Because these areas are at the gateway to the City, they can be visually intrusive and require careful design review. Also included are such community facilities as the high school.

Sensitive Areas: These areas include natural conditions, parks and preserves and other areas which should be preserved primarily as open space or limited, restricted development. Many of the conservation areas outside the urban core include features which limit their development potential which are described in the Natural Features and Environment element and lack of public infrastructure. Most of these areas are currently zoned low density residential, or are in established parks and reserves. The identification of these areas does not intend to preclude development. Rather development potential should be defined by the zoning regulations.

Criteria for Future Development

There are sizable and significant opportunities for new development within the City of Montpelier. These opportunities exist on infill lots within the downtown, the redevelopment of existing property through replacement or adaptive reuse, and large undeveloped parcels adjacent to currently developed areas, and remote parcels. In the future the City may entertain development proposals initiated by individual property owners or private developers within each of these areas. In addition, public or institutional entities may initiate proposals. Any proposal will be considered on its merits and according to the land use regulations in effect at the time of application. While this plan does not endorse the development of specific parcels, the following criteria should be taken into account when regarding the location of future development:

. Developments should be in conformance with the uses and standards of the City's zoning and subdivision regulations.

. Developments should utilize the City's existing street grid, or build upon it as through extensions.

. Developments should preserve density and provide access to public transportation.

. Developments should be accessible to the City's existing public water and sewer lines and be within the capacity of existing transmission and treatment systems.

. Developments should avoid the natural resource and environmental constraints discussed in chapter 3.

. Developments should be accommodated within the capacity of existing community facilities without the need to construct new facilities.

. Developments should demonstrate substantial public benefits both economic and in terms of public facilities.

12. Putting the Plan into Action

12.1 Responsibility for the Plan

A city is created over years through the individual and collective decisions and actions of citizens and public officials. The efficiency, attractiveness and desirability of a city is determined, in part, by the ability of the community to plan for its needs, and find the means to put those plans into action.

Previous chapters of this report laid out the planning background, and the goals and policies for each plan element which, taken together, constitute a vision for the type of city Montpelier will be in the future. Accomplishment of the plan will require the cooperation of many people and public and private agencies, using a variety of mechanisms over the next five, ten and twenty years.

This section describes the level of public and private initiatives which will be required, to implement the Master Plan.

Adoption of the Master Plan

Adoption of the Master Plan by the Montpelier City Council, pursuant to the procedures delineated in 24 V.S.A. Chapter 117 Sections 4384 and 4385, is the first step in putting the Plan into action. Through adoption, the Council accepts this document as the guide for future physical growth and change in the City.

Ongoing Planning

Ongoing planning is one of the most important elements of the planning process. The City Planning Commission, board of Adjustment and City Council should use this document on a continuous basis to ensure that the goals and objectives of the Plan are integrated in day-to-day decisions concerning land use and development in the City. The policy recommendation should serve as an agenda for the actions of public bodies and private individuals effecting change in the City.

The City Planning Commission is responsible for the maintenance and amendment of the Plan. As conditions in the City change, amendments may be needed from time-to-time in order to keep the Plan current. The Plan automatically expires five years from adoption. Before the Plan expires, it should be thoroughly reviewed, and information on which the plan is based should be updated. Adjustments to the plan are made through an amendment procedure detailed in 24 V.S.A. Chapter 117, Sections 4384 and 4385. This procedure requires hearings and a report by the Planning Commission and adoption by the City Council.

Because of their comprehensive nature, few master plans can address every issue in detail. Supplementary studies concerning a number of the recommendations contained herein should be undertaken to determine courses of action concerning specific needs, as part of an ongoing planning effort.

Central Vermont Regional Planning Commission Approval

Approval by the cvrpc allows for greater regional planning and facilitates cooperation among towns in addressing mutual problems and challenges. The regional plan should integrate the policies and recommendations contained herein.

12.2 Tools and Techniques

The City has at its disposal a variety of tools and techniques which can be used to implement the Master Plan. This section describes the specific mechanisms which either are currently in place, or could be developed to implement the goals and policies of the City.

Land Use Regulation

The regulation of land use and development is one of the fundamental police powers granted to local jurisdictions in the State of Vermont. There are a variety of regulatory techniques available to the City. Because of their susceptibility to legal challenge, regulatory controls are the most powerful and widely used implementation tools for the Master Plan. The State of Vermont enables communities to pass by-laws concerning zoning, subdivision regulations and the official map.

Zoning

Conventional zoning is the most commonly used by-law for guiding development at the local level. It is employed to control the use of private land and structures, and the density, height and bulk of development. The Montpelier Zoning Regulations should be thoroughly reviewed in the context of this Plan, in particular the proposed land use plan. In addition, the following specific actions should be considered:

· Transfer of Development Rights (TDR)

TDR provisions would allow the City to separate the rights to develop from the rights of ownership of land. Using this technique, the City would designate "sending" areas which are identified for conservation, and "receiving" areas where the rights could be used for increased development. This technique would be particularly useful to preserve open space or meadow areas, or to contain development on hillsides or the riverfronts. TDR is also frequently used for the preservation of historic structures and in historic districts.

· Hillside/Ridgeline Protection

A hillside and ridgeline protection ordinance, as part of the zoning regulations, should be carefully crafted to define the public purpose and areas affected. Ridgeline and hillside conservation areas should be defined on a map and the conditions for development should be determined as site plan approval criteria. The application requirements and review procedures should also be delineated within the regulations.

· Cluster Development

The planned residential development (PRD) provisions of the zoning regulations permit the reduction in lot size, coverage and density requirements in exchange for the preservation of open land or special natural features on units of land three acres or more. These provisions for clustering development can be used effectively to achieve the goals and objectives of this plan. However, a PRD is initiated by the developer. The provisions should be reviewed to enable the City Planning Commission to have greater control over clustering in areas where the preservation of open space or natural features is considered important to the City as a whole. Cluster provisions should include regulations for the preservation and maintenance of public open areas within cluster subdivisions.

· Transitional Districts

The CBII District is a form of transitional district which permits uses from the less intensive adjoining district (Medium or High Density Residential) and selected uses from the more intensive adjoining district (Central business District). Transitional districts are effective in precluding the more intensive uses from creeping into the less intensive zone, and act as a buffer between the two intensities of land use. A similar technique is proposed along Berlin Street between Northfield Street and River Street, where a mixture of selected business and residential uses is proposed.

· Buffering

Buffer strips visually separate one use from another, or from the public domain, such as roadways or public buildings, in order to block noise, lights, or other nuisances, or to provide visual separation. Buffering requirements, incorporated in the zoning regulations, would be effective to control the impacts of strip development, preserve natural areas within entrance corridors, preserve important archeological sites, and soften the transition between potentially conflicting uses.

· Civic District

The zoning regulations for the Civic District should be reviewed in the context of the proposed revision of the Capitol Complex Master Plan.

· Accessory Units

Accessory dwelling units are apartment units in single-family residences which share, at most, an entrance, yard and parking with the primary unit. Such units are clearly secondary to the primary unit in the structure. Both the homeowner and the community benefit from accessory units. Older homeowners with large residences benefit from the extra income of a rental apartment, and the security of tenant companionship. New homeowners find the added income aids in meeting monthly payments. The community benefits from this source of relatively inexpensive housing which meets demands in various stages of the life cycle. Accessory unit zoning provisions usually require preservation of the single-family character of the area, adequate parking, and public sewer and water hook ups. Some provisions require owner-occupancy of the structure, or an owner-tenant relationship to avoid placing the units on the open market.

· Affordable housing Bonuses

Density bonuses for the provision of below market rate units is becoming a popular means of providing for affordable housing. Zoning provisions offer a developer an increase in allowable residential density if a ratio of below market rate units are offered either within the development, on an alternative site, within rehabilitated housing or through a contribution to a housing trust fund. The developer benefits from the economy of scale involved in producing the units, and the community gains affordable units.

· Revised Development Standards for Affordable Housing

A significant component of housing cost is development standards with regard to lot area, frontage, setbacks, coverage and density required by the zoning regulations. Modifying or permitting flexibility in these standards can significantly reduce the cost of housing development. As lot areas, frontage and setback requirements are reduced, modification in design are necessary which produce new housing forms, such as zero lot line developments. The modification of zoning standards could be accompanied with restrictions on pricing to ensure the cost savings are passed along to the consumer.

· Payment in lieu of parking

The City's replacement fee for parking which permits a waiver of parking requirements in exchange for a fee payment should be preserved. The payments should be reviewed annually to ensure they are in line with actual costs of providing parking. The city should consider the relative merit of expending funds on leasing private land for public parking and the improvement of the peripheral parking supply.

· Standards for Off-Street Parking

The zoning bylaw should be amended to require landscaping of parking areas. Standards should be established for buffers, street and interior trees, and lighting. The parking space size requirements should be reviewed to permit down-sizing space requirements to serve compact cars. The local market should be evaluated to determine the appropriate mix between standard and compact stalls. Consideration should be given to shared parking arrangements for complementary uses

· Institutions Overlay District

An institutions overlay district is a means to control the adverse effects of institutional expansion, by providing additional criteria by which such expansion could occur. An overlay district would amend and supplement the regulations of the underlying district; for example, residential development standards would apply to an institutional overlay on a residential district. Institutional uses within the district would be permitted subject to additional standards. Such standards could be applied to buffering, conversion of residential buildings, parking and renovation.

· Site Plan Approval

The site plan approval process provides the City Planning Commission with the means to make informed decisions concerning development within the City. The approval process and submission requirements found in section 15-401 of the zoning regulations should be reviewed in the context of this plan. Specifically, the following review criteria should be considered:

· The preservation of natural features identified in the Natural Features and the Environment element.

· Policies developed by the proposed Conservation Commission considering environmental quality criteria.

· Policies developed by the proposed Tree Commission concerning the preservation of on-site trees.

· Review of impacts from lighting, utility placement and streetscape appearance.

· Review of impact on open space, natural areas; views and vistas.

· Criteria for providing riverfront access.

· Detailed area review of site plans for developments within gateway areas and along entrance corridors to determine contextual relationships and impacts.

· Relationship to revised parking standards and the provision of bicycle storage areas.

· Relationship of the development to the proposed open space network and transportation trail network.

· Design Control

The provisions of the Design Control District, section 15-4-4 of the zoning regulations should be reviewed and revised to include designated entrance corridors and gateways. Review criteria should consider lighting, utility placement, views and vistas.

· Performance Controls

The City should consider instituting performance controls to supplement the existing zoning controls, particularly for non-residential development, and development in the low density residential district. Such controls could govern floor area, open space, impervious surface, buffering and screening. The use of performance controls are a flexible approach which recognizes the unique qualities of a site. The approach would be useful to preserve natural features and environmental quality, control strip development and preserve open space.

Subdivision Regulations

The City's subdivision regulations govern the division of parcels of land and the creation of streets and other public improvements. The subdivision regulations shall be completely reviewed and revised in the context of this Master Plan. Particular attention should be given to the following provisions:

· Referral of subdivision applications to the Conservation Commission for review and comment.

· Streetscape requirements and standards.

· Relationship to the land use plan and reference to the proposed cluster provisions of the zoning regulations.

· Application to residential development standards impacting housing costs, particularly in residential growth areas.

· Relationship to the roadway functional classification

· Standards for private utilities and streets.

· Protection of open space.

· Provisions for pedestrian circulation.

Official Map

The official map is a bylaw which reserves land for streets, drainage, parks, schools and other public facilities. The official map should be reviewed and revised to determine rights-of-way for proposed roadways, parks, and public facilities recommended in this Master Plan.

Other Regulations

· Historic Preservation

The Historic District should serve as a basis for future historic building designations and districting.

A separate historic preservation provision, as permitted in Section 4407 (15)of VSA Chapter 117 should be considered by the City as a means of separating historic considerations from design considerations, thus strengthening both design control and historic preservation.

· Tree Preservation

A tree preservation ordinance would assist the City to recognize and protect mature, specimen trees which give the City character. A Tree Commission is proposed which would be responsible for creating an inventory of street trees and significant private trees which are in the public interest to preserve. The Tree Commission would report to the City Council. The Commission could also promote tree planting and serve to educate the public concerning the value of tree protection.

· Building Code

The City's building code should be reviewed in the context of revising development standards for affordable housing.

Land Acquisition and Easements

Land may be acquired by fee simple acquisitions by government authority from private individuals. Increasingly, however, the acquisition of easements is becoming a common means to acquire interest in land, either for conservation or for other purposes. The acquisition of the development interest in land, either by purchase or by transfer of that interest to another parcel, is another means to acquire property for a particular purpose.

The City requires statutory authority from the State Legislature to purchase land. Generally, this authority is only granted for a public purpose or use. Consequently, fee simple acquisitions of property would be applicable only for such elements of the Master Plan as acquiring roadway rights-of-way, new public facilities, park expansion, or public parking. The City should seek to obtain the statutory authority to create a municipal conservation fund for purchasing property for the protection of open space and natural area. Once such authority is obtained, the City should implement an active program to acquire fee simple or other property rights to such properties, and seek donations of land.

Public Spending

The City is limited in its ability to spend public revenues to those expenditures which are reasonably related to the operation of government, or promote the general welfare of the community. Another limitation is the ability to make funds available through taxation or other revenue producing activities.

· Capital Budget

The City's capital budget will continue to be the principal spending vehicle. The capital budget should be based on the City's capital improvements program, which shall be reviewed and revised in the context of this Master Plan. Such elements of the Plan as public lighting, utilities, streetscape features, road and intersection improvements, water and sewer improvements, and school improvements are appropriate inclusions in the capital program and budget.

· Community Development

The Federal Community Development Block Grant program for Montpelier is administered out of the Department of Planning and Development. The major focus of the program is on housing rehabilitation ad weatherization activities. Projects which are designed to create and retain employment and improve public facilities in support of housing and economic development can also be eligible for community development funding. This funding source could be used for various elements of the plan, including planning activities and "bricks and mortar" improvements.

· Special Assessment Districts

Special Assessment Districts are a particular form of special area designation which permit charges to certain property owners to cover the cost of installing capital improvements. These improvements may include streets, sidewalks, water and sewer services, streetscapes, signage, landscape improvements or the provision or improvement of parking. The districts are voluntarily established in areas where there is a common purpose to be achieved by the property owners, who band together to "tax" themselves for improvements of common benefit. Special assessment districts should be considered for downtown improvements, gateways and entrance corridors. A Downtown Improvement district formed through the collaboration of the City and State governments, merchants and downtown property owners would be an example of a special assessment district

· Impact Fees

In 1989, the City passed an ordinance to permit the collection of impact fees, pursuant to 24 V.S.A. Chapter 131. An impact fee is a fee levied as a condition of issuing a zoning or subdivision permit which pays for the portion of the costs of a capital project that will benefit a particular development, or to compensate the municipality for the cost of construction of an improvement required by the development.

Development induced impacts must be assessed for the collection of an impact fee on the basis of a "rational nexus", or relationship, between the impacts and the cost of the improvements. Collected fees must be earmarked for specific improvements and cannot contribute to the City's general fund, since they are not considered a tax.

Impact fees should form the basis for funding road improvements suggested in the Master Plan. Other aspects of the Plan suitable to charge impact fees are water and sewer improvements, public facilities, parking facilities, public parks and recreation facilities, schools and such public amenities as can be demonstrated to alleviate the impacts of a proposed development.

· PILOT and Other State Funding

State payments-in-lieu of taxes are incorporated in the City's general fund to pay for municipal services provided to the State. This source of funding is the subject of ongoing discussion between the City and the State. While State employees and facilities receive the same services as residents of the City, the State's annual payment is generally significantly less than what its tax obligation would be if State property were taxed at the prevailing tax rate. In 1996 the State paid the City $181,000 for PILOT, while had they been taxed on their $78 million in property they would have paid approximately $2.2 million in property taxes. Because of this disparity between the services delivered to the state, and the States compensation to the City for those services, there is a perennial conflict between the City and State over PILOT. Essential to adequately funding the City's capital budget, is a more equitable and rational payment scheme for the PILOT program.

Act 250

Developments required to obtain a permit under Act 250 must conform to this adopted Master Plan. Although only a few development projects each year require an Act 250 permit, the City should use this law pro-actively to achieve the goals of the plan. In particular, Act 250 reviews should take into consideration protecting of natural features, know and potential archeological sites, impacts to historic buildings and neighborhoods, environmental quality, impacts on transportation and utilities, and economic impacts.

Special Programs and Activities

· Arts District

There is potential in Montpelier for the creation of a small arts district, which would serve to enhance exhibit, studio and performance spaces within areas of the downtown. The central focus of the arts district should be determined by the members of the Montpelier arts community, and based on where suitable and affordable studio and performance spaces can be purchased, rented or constructed.

The objective of an arts district is to combine these areas in such a way as to create a cohesive district. Public policy is established within this area to encourage the provision of arts-related facilities through controls on land use and design.

· Economic Development Inventory

The City, in conjunction with the area chamber of Commerce and private sector, should develop an Economic Development Inventory. Such an inventory would contain a list of sites and facilities available for purchase or lease, the infrastructure available at the site, and other information of interest to potential developers. To the extent practical, the City should make this Inventory to the public through publications and Internet.

· Capitol Complex Master Plan

The Capitol Complex Master Plan should be reformulated in view of current space need projections for state offices and this Montpelier Master Plan. Due to the prominence of the Capitol Complex in the City, and the vast impact of the City's role as State Capitol, the City should play a part an active role in redrafting of the State plan.

· housing and Conservation Trust Fund

The housing and Conservation Trust Fund, created by the State through Act 200, is a means to fund special affordable housing programs. The City should encourage local housing groups to tap this important source of funding.

· housing and Urban Development Special Purposes Grant Fund

The HUD Special Purposes Grant Fund is being used to create two loan programs for the City of Montpelier, one for businesses trying to achieve compliance with the Americans with Disabilities Act and another for small business unable to obtain conventional financing. Utilizing the ADA fund, the City will enable local businesses and commercial property owners to comply with the ADA. The Small business loan fund will bolster existing small businesses and offer opportunities to new enterprises wishing to locate in Montpelier.

12.3 Implementation Strategy and Priority Actions

The following is a list of priority actions which the City should undertake within the next planning period:

Natural Features and the Environment

· Compile an inventory of key natural features and a management plan for use in site plan and subdivision reviews and in Act 250 reviews.

· Extend design review along all river corridors and establish a riverfront corridor design district and a shoreline protection zone to preserve and enhance the river corridor.

· Continue to develop peripheral parking areas and supporting the downtown shuttle.

· Consider using zoning regulations to control future development on ridgelines and hillsides through the adoption of a ridgeline protection ordinance.

Historic Resources and City Design

· Develop tax abatements and other financial incentives for developers to reinforce existing neighborhoods.

! Expand conditional and permitted uses in all of the zones, particularly in office parks and residential zones.

! Review current zoning regulations concerning lot sizes, accessory apartments, and multi- family housing where appropriate, as a means to increase density.

· Establish Montpelier as a Certified Local Government.

· Create a Development Review Commission, as permitted by Title 24 which would merge review responsibilities of the Planning Commission, the Design Review Committee, and the Zoning board of Adjustment.

Transportation

· Develop design guidelines for new bridges in the Design Review District.

· Construct the three bike paths already planned: North Branch, Winooski West, and Winooski East. These should be tied into larger regional transportation path plans.

· Commission a feasibility study of train shuttle service from outlying commuter parking to downtown, as well as a rail shuttle between Montpelier and Barre.

· Subsequent to City Council review and public comment, adopt the new Street Classification system, as proposed herein.

· Review and consider adoption of any traffic and parking policy recommendations or strategies produced by the City-State Study Commission.

Reduce parking space requirements if developer uses an employee incentive program.

Housing

· Design and prepare an inventory of housing type, condition, accessibility and value which can be used to determine housing needs and demands.

· Perform a community needs analysis and compare the results with a City-wide housing inventory analysis, and prepare an analysis of housing needs by housing type, size, and level of subsidy.

· Undertake adaptive reuse of existing buildings where appropriate.

Community Facilities and Utilities

· Construct the water filtration plant to improve the quality of the City's public water supply as an essential public improvement required by Federal law.

· Continue the program to separate storm and sanitary sewer lines.

· Encourage the expansion of sewer and water service through the formation of districts only in planned growth areas which can be effectively served by existing facilities, either within or outside the City limits.

· Encourage water conservation by metering all consumers and creating water conservation programs.

· Improve sludge management as part of waste water treatment by obtaining State funding for proposed plant upgrades.

Cultural Facilities

· Establish a downtown "Arts District" offering arts organizations a tax abatement or other economic relief to locate in the district.

· Explore alternative funding sources to augment contributions to local arts organizations. One option would be a $.01 "arts tax" on restaurant meals in the city.

Economic Development

· Develop and maintain an inventory of development sites.

· Develop and maintain an inventory of available retail business space.

· Develop an Internet presence for the city, preferably a world Wide web site, and incorporate economic development and municipal services as the focus of an interactive web page.

· Establish a Small business Loan Fund with the Special HUD grant awarded to the City.

Public Finance

· Aggressively lobby the legislature to effect property tax reform, and alleviate the significant tax burden borne by the residents of Montpelier.

· Aggressively lobby the legislature to permit the City of Montpelier to implement local option taxes, enabling the City to broaden and diversify its revenue stream.

· Explore opportunities to regionalize City and School services, to achieve economies of scale that will translate into lower annual budgets and tax relief for the citizens of Montpelier.

Land Use

· Provide tax or zoning incentives to encourage the redevelopment of vacant or underdeveloped lots within the built-up portion of the City in preference to outlying areas.

· Control the adverse effects of strip development along Berlin and River Street by utilizing design and landscaping guidelines

· Encourage the full utilization of downtown buildings by developing incentives for adaptive reuse and reviewing permitted uses.

· Work with the State to reformulate the Capitol Complex Master Plan to conform with revised space needs projections.

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