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Implementation Manual • Downtown Revitalization • 2007 • www.vpic.info

VERMONT LAND USE EDUCATION & TRAINING COLLABORATIVE

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Overview

When traveling around Vermont,it’s common to happen upon

small villages that seem to appearfrom nowhere. The state’s traditionalcommunity centers range in size fromtiny hamlets with a cluster of homesand a storefront or meetinghouse, tovillages with small downtowns andresidential neighborhoods, to largerurban centers such as Burlington,Montpelier, Rutland, and St. Johns-bury. The Vermont DowntownProgram describes a downtown as“the traditional central business dis-trict of a community that serves asthe center for socioeconomic interac-tion, and is characterized by a cohe-sive core of commercial and mixeduse buildings, often interspersed withcivic, religious, and residential build-ings and public spaces.” A villagecenter is defined as “the traditional center of a community, typically com-

prised of a cohesive core of residen-tial, civic, religious, and commercialbuildings” (24 V.S.A. §2791).

Many of Vermont’s traditionalcenters date from the mid-nineteenthcentury—a time when communitieswere more self-reliant and localeconomies flourished. Over much ofthe twentieth century, a variety offactors conspired to diminish the eco-nomic underpinnings of these lovely,once-bustling centers, as evidenced inunderused or abandoned buildings,vacant upper stories, and boardedstorefronts. During the 1950s and1960s, many historic buildings andneighborhoods were torn down in thename of urban renewal. (Urbanrenewal statutes are still on the books[24 V.S.A. Chapter 85] and are effec-tively being used for the targeted re-development of blighted areas thatmay require the use of eminent

domain. St. Johnsbury, for example,voted in 2004 to declare a portion ofBay Street a “blighted area” underurban renewal statutes in support ofredevelopment.)

It’s now widely acknowledged thatthe decline of Vermont’s traditionalcenters means more than just the lossof a few old buildings. Our down-towns and villages represent decadesof public investment—in civic build-ings, public spaces, and supporting in-frastructure—and remain the veryheart of our communities. Peoplehave come to realize that commercialstrips don’t have the same function orcharacter as our traditional down-towns and villages and that investinglimited public resources to extend de-velopment far beyond these areas canbe costly and counterproductive.More and more communities aroundthe country, and here in Vermont,are seeking ways to reinvest in and

What Happened toVermont’s Downtowns andVillage Centers?

Every local story is different, butthere are some common threads: • From about 1860 to 1950, Vermont

and most of its communities expe-rienced a significant decline inpopulation, reducing the customerbase of local commercial centers.

• When population growth resumedin the 1960s—around the time theinterstates were completed—travelbecame much easier, and compe-tition from larger chains grew withthe local customer base.

• Old downtown buildings were notreadily adaptable to new uses.Green fields on the outskirts oftown—with easy auto access andacres of parking space—weremuch easier and cheaper todevelop for commercial use.

Downtown Revitalization

Statutory Authorization: 24 V.S.A. Chapter 76A, Chapter 117 §4414 / Type: NONREGULATORY & REGULATORY / Related Topic Areas: Bicycle & Pedestrian Facilities; Brownfields; Capital Improvement Program;Community & Economic Development; Design Review; Facilities Management; Growth Centers; Historic Preserva-tion; Land Use & Development Regulations; Public Transportation (Transit); Zoning Regulations

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By protecting and enhancing the historic integrity of their downtowns and village

centers, municipalities can promote economic growth and redevelopment that

take advantage of the unique character and sense of place that these community

centers offer.



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revitalize their historic cores. Down-town revitalization is a process bywhich to breathe new life into our tra-ditional community centers.

Downtown Revitalization Programs

The phrase downtown revitalizationconveys two very important ideas:

First, we’re dealing with traditionaldowntown and village centers, mostof which contain historic buildingsand places that have physical andvisual qualities that must be respected.

Second, revitalization implies thatthese centers must have vitality: theyneed to generate economic and cul-tural activity that justifies renewed in-terest and investment.

The challenge of revitalization is tostimulate new development and activ-ity while retaining the historical in-tegrity and physical qualities thatdefine a downtown’s or village center’s

traditional character and identity.Probably the most comprehensive

source for information on downtownrevitalization is the National MainStreet Center, a division of the Na-tional Trust for Historic Preservation(www.mainstreet.org). The MainStreet Center has assisted hundreds ofcommunities across the country intheir efforts to revitalize downtowns.Based on this experience, the centerhas developed a four-point approachthat has proven effective in manycommunities. The four points aregenerally described as follows:1. Organization. A long-term organi-

zation is needed that has the capac-ity and community support to headup revitalization efforts. A down-town organization focused on revi-talization carries on as individualparticipants come and go and mayserve a variety of functions. It can:• develop, modify, and implement

the community’s revitalizationplan;

• identify and take advantage of op-portunities that arise;

• serve as the focal point for fund-raising efforts;

• coordinate the efforts of busi-nesses, property owners, and localofficials; and

• oversee community outreachefforts.

Many communities have found thatthe creation of a nonprofit organi-zation effectively fills these roles.This organization, as noted, is typi-cally charged with preparing and implementing a comprehensive revi-talization plan and leads the com-munity through the next threestages.

2. Economic Restructuring. Mostdowntowns begin their decline whentheir economic functions diminishor move elsewhere. In almost allcases, successful revitalization in-volves shifting to a different mix ofeconomic activities. This requiresidentifying and promoting new eco-nomic functions for the downtownin relation to local or regional

markets and competing commercialcenters. Economic restructuringshould be based on a realistic inven-tory and assessment of markettrends, existing businesses, and localassets, including buildings, infra-structure, public amenities, and thelocal workforce. In addition tomarket analyses, work under thiselement can include programs tostrengthen and recruit businesses.

3. Promotion. To initiate and perpet-uate revitalization, the downtownmust be effectively marketed. Pro-motion involves making sure busi-nesses, potential investors, residents,and visitors are aware of what thedowntown has to offer and under-stand the vision for its future. Activ-ities can include branding (imagedevelopment) and marketing cam-paigns, sales events and promotions,special downtown celebrations, andcultural programs that draw peopledowntown. Highlighting economicsuccesses generates more activity.

4. Design. The historical and aes-thetic qualities of a downtown orvillage center and well-definedpublic spaces set it apart from othercommercial areas. Design is the key

Essentials for Downtown Revitalization

The Vermont DowntownProgram’s guide to downtown revi-talization lists the following as es-sential to successful revitalizationefforts:Comprehensive. No single focus

will be successful.Incremental. Small projects lead to

larger impacts.Self-help. Efforts must be commu-

nity driven.Partnerships. Success requires

cooperative action by a variety ofplayers.

Existing Assets. Capitalize on thedowntown’s unique qualities.

Quality. Set high standards foreverything, from brochures to cus-tomer service.

Change. Economic restructuring re-quires changes in attitudes andpractices, which take time.

Action-Oriented. Implement theplan through continuous actions,both small and large. The commu-nity needs to see results.

Downtown OrganizationMission Statement

Example: Waterbury“Revitalizing Waterbury, Inc. was

founded in 1991 to encouragedowntown development in Water-bury, Vermont. Our mission is tocreate a clean and safe downtownthat preserves our architectural andauthentic history as it creates acenter for citizens, businesses andvisitors.

We’re an advocacy organizationthat has the best interests of thewhole community at heart. Webelieve that strong downtownsmean strong communities, botheconomically and culturally. Weidentify projects that will enhanceour town’s vitality, and we help bringthem to life.”

Source: www.revitalizingwaterbury.org.



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element that ties discrete buildingsand spaces into an attractive, visuallycoherent environment for visitors,customers, employees, and residents.Most Vermont downtowns andvillage centers retain an establishedstreet network and core of mid- tolate-nineteenth-century buildingsthat define their overall character.Design can be used to integrate newbuildings, streetscapes, public areas,parking lots, signs, and other ele-ments of the built environmentwithin this established framework ina manner that complements the tra-ditional character of the downtown.The Vermont Downtown

Program, within the Vermont Depart-ment of Housing and CommunityAffairs, provides a wide range of as-sistance to Vermont communities thatare working to revitalize their down-town and village centers. TheVermont Downtown Program is affil-iated with the National Main StreetCenter and has endorsed its funda-mental approach to downtown revi-talization. The state program is agreat source for information, techni-cal assistance, and moral support forindividuals and communities inter-ested in improving their traditionaldowntowns and village centers(www.historicvermont.org).

Vermont has a strong affection forits traditional downtowns and villagecenters and has established nationallylauded programs to encourage theircontinued use and revitalization. Inevery community., it’s up to residents,businesses, and property owners totake the initiative and set in motionthe organization, planning, and devel-opment activities necessary tosupport successful revitalizationefforts.

Downtown Districtand Village CenterDesignation

State statutes, in addition to estab-lishing the Vermont DowntownProgram, provide for state designa-tion of local “downtown develop-ment districts” and “village centers”(24 V.S.A. Chapter 76A). Municipali-ties may apply to the Vermont Down-town Board for formal designation oftheir downtown or village centers.Designation, if granted by the boardunder applicable program criteria,offers municipalities and propertyowners within the district access to avariety of state programs thatpromote downtown redevelopment.For downtown development districts,these include:• state technical and marketing

assistance

• tax credit and rebate programs forqualified rehabilitation, facade, andcode improvements

• eligibility to apply for projectfunding under the downtown trans-portation fund and priority consid-eration under other state grant andloan programs

• priority consideration for the sitingof state facilities and functions inthe downtown, in consultation withthe municipality

• the authority to create special taxingdistricts to finance infrastructureimprovements and operating costs

• Act 250 exemptions for mixed-income housing or mixed-use devel-opment projects that includehousing that meet Act 250 defini-tions and threshold criteriaVillage center designation has

fewer requirements and confers fewerbenefits, but is nevertheless useful tosupport local redevelopment efforts.A more detailed outline of state des-ignation criteria and associated bene-fits for downtowns and villages isavailable from the Department ofHousing and Community AffairsDowntown Program.. Many incentiveprograms have annual funding capsand are therefore made available on acompetitive basis, and additional in-centive priorities may apply. Appli-cants and proposed projects also mustmeet individual program qualificationand funding requirements.

The Vermont Downtown Programhas become a popular program. As ofJune 2006, twenty downtown devel-opment districts and sixty five villagecenters had earned the state down-town designation. State designationsare reviewed by the Vermont Down-town board every three years. If theboard finds that designation require-ments are not being met, it canrequire corrective action, offer addi-tional technical assistance through thedowntown program, or remove thedesignation, which does not affectpreviously awarded benefits.

Statutory Definitions

24 V.S.A. Chapter 76A §2791

Village Center means a tradi-tional center of the community, typi-cally comprised of a cohesive coreof residential, civic, religious, andcommercial buildings, arrangedalong a main street and intersectingstreets. Industrial uses may befound within or immediately adjacentto these centers.

Downtown means the traditionalcentral business district of a com-munity, that has served as thecenter for socioeconomic interactionin the community, characterized bya cohesive core of commercial andmixed-use buildings, often inter-spersed with civic, religious, andresidential buildings and publicspaces, typically arranged along amain street and intersecting sidestreets and served by public infra-structure (for the larger centers).

New Town Center means thearea planned for or developing as acommunity’s central business dis-trict, composed of compact, pedes-trian-friendly, multistory, andmixed-use development that is char-acteristic of a traditional downtown,supported by planned or existingurban infrastructure, includingcurbed streets, sidewalks, on-streetparking, stormwater treatment, sani-tary sewers, and public water supply(for municipalities without a historiccenter or planning to create a centerin a new location).



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Related Considerations

Conformance with the Munici-pal Plan. The municipal plan shouldcontain specific recommendationsthat support the creation of a down-town district and revitalizationprogram, including recommendationsfor the adoption of supporting landuse regulations and a capital budgetand improvement program. For statedowntown district designation, themunicipality must document that it has:• an adopted municipal plan that has

been approved by the regional plan-ning commission, as required for re-gional confirmation of the localplanning process;

• a delineated downtown district thatmeets the statutory definition ofdowntown;

• a demonstrated planning commit-ment to include the adoption of his-toric district, design district, or localAct 250 review regulations underzoning, which must conform to themunicipal plan; and

• a capital improvement program topreserve or improve public infra-structure within the downtown dis-trict, which also must conform tothe municipal plan.Municipalities are authorized to in-

corporate downtown, village center,historic, and design review districts intheir zoning regulations (24 V.S.A.§4414), as discussed in related topicpapers.

Growth Center Designation. Adowntown or village center may alsoserve as the focal point for a larger,extended settlement pattern orplanned growth center, which mayqualify for a separate state designa-tion. (See related topic paper, GrowthCenters.) A downtown or villagecenter, by itself, does not generallyconstitute a growth center under thisdesignation, even though revitalizationmay stimulate new growth and rede-velopment. Growth centers areplanned to accommodate the majorityof growth in a municipality over atwenty-year period and may thereforeincorporate adjoining under- or unde-veloped land. A downtown or villagecenter—or a planned new towncenter where a downtown does notyet exist—is considered an integralpart of a growth center and is a re-quired component for state growthcenter designation. Downtown andgrowth center designations can occurconcurrently.

Infrastructure Capacity. Growthin many of Vermont’s traditionalcenters is constrained by a lack ofpotable water and limited wastewatertreatment capacity. Facility limitationsshould be identified early on and along-term strategy developed toacquire needed infrastructure capacity.A ten-year commitment to constructsupporting infrastructure is requiredfor downtown designation, if suffi-cient capacity does not exist at thetime of application. State designationaffords priority consideration understate infrastructure assistance pro-grams (for example, revolving loanfund and community developmentblock grant programs) and allows themunicipality to create special assess-ment districts to finance capital andoperating costs. If a municipality hasa designated growth center, it is alsopresumed to meet the locational re-quirements for the establishment of atax increment financing (TIF) districtto finance needed infrastructure improvements.

Infill Development. In manydowntowns and village centers, thereare vacant lots where buildings oncestood or buildings that are beyondrestoration and scheduled for demoli-tion. It is important that empty spacesbe redeveloped in a manner that isconsistent with the overall characterof the center. In some areas, openspaces, such as public parks, green-ways, playgrounds, or parking areas,may be appropriate. On many vacantlots, new buildings will be con-structed. It’s critical that infill devel-opment be sited and designed to becompatible in scale, style, and archi-tectural treatment with existing, defin-ing structures. It’s equally importantto ensure that the renovation of his-toric structures does not diminishtheir historic qualities. Both these ob-jectives suggest the need for establish-ing a formal procedure for historic ordesign review in downtowns andvillage centers—as also noted abovefor state designation. Basic siting anddesign standards also can be appliedunder site plan and conditional usereview provisions of zoning.

Brownfield Development. Someproperties that have the potential forredevelopment have been used in thepast for industrial, warehouse, rail-road, or other uses that resulted invarious types of on-site contamina-tion. These brownfield sites are oftenlocated in downtowns and villagecenters and present special challengesand opportunities for redevelopment.The state, the city of Burlington, andseveral regional planning commissionshave established federally funded pro-grams to help finance the assessmentof contaminated sites that are pro-posed for redevelopment. Municipali-ties with designated downtowns mayalso apply for assessment funds fromthe state in the form of planninggrants issued through the VermontCommunity Development Program.Other state brownfield programs aredescribe in the brownfields topicpaper.



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Rebirth of a Vermont Downtown

Example: Winooski Redevelopment Project

Perhaps the most extensive down-town revitalization project currentlyunder way in the state is the WinooskiRedevelopment Project, now known asthe Winooski Falls Riverfront Down-town Project. This project involves acomplete reinvention of the city’s down-town—a former urban renewal areathat had been razed during the early1970s under the federal “Model Cities”program. As a result of subsequent re-cessions and competing developmentin other communities, this land re-mained vacant for decades. In 1999,the city and the Winooski Redevelop-

ment Corporation outlined an ambitiousplan for revitalizing the downtown—oneof the largest community revitalizationefforts ever undertaken in Vermont.

The project encompasses morethan 20 acres of land targeted for rede-velopment and an additional 100 acresof public recreation areas and openspace. The project is being completedin phases and to date has included theconstruction of a new home forWinooski’s largest employer, theVermont Student Assistance Corpora-tion; high-density, mixed-income, andstudent housing; commercial space; amunicipal parking garage; a new roadnetwork and roundabout; and other in-frastructure improvements and publicamenities, including a river walk alongthe Winooski River. Project design in-

corporates transit access, pedestrian-friendly streetscapes, and walkable,mixed-use neighborhoods that comple-ment the traditional character ofWinooski’s downtown business district.

The $175 million dollar project hasbeen funded through a complex mix oflocal, state, and federal funds, includ-ing a $24.25 million federal loan guar-anteed by the state for the garage andinfrastructure improvements. Winooskialso received downtown designationfrom the state in 2003. Given theproject’s demonstrated success, theU.S. Department of Housing and UrbanDevelopment is using it as a model forother redevelopment efforts around thecountry.

Drawing and design by Arrowstreet Inc.

downtown revitalization 7 - vpic · of a few old buildings. our down- ... downtown revitalization...

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