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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 188