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10.0 SPECIAL PLANNING AREAS: ROUTE 6 AND DOWNTOWN BETHEL

10.1 Route 6

This section seeks to resolve the planning issues arising from current conditions and potential future conditions on Route 6. The plan is mindful of one of the Planning and Zoning Commission's objectives for the Plan of Development: to find approaches and techniques that can be implemented by the Planning and Zoning Commission directly or other town entities. Under the exercise of town governance, through zoning and other land use regulations, the public sector can shape real estate market actions. In this way, the results of private sector development will ultimately advance Bethel's land use and community design goals. Thus the Route 6 plan's recommendations focus on zoning and other development controls, roadway improvements, and aesthetic improvements.

(1) Existing Zoning

Route 6 is zoned CI, which is intended to allow light industrial and convenience retail. Convenience retail is the kind of store or business which offers goods and services for the small, local market of the surrounding neighborhood. Generally, convenience businesses do not serve a regional market. Consumers do not comparison-shop for convenience goods as these are not durable or semi-durable consumer items, such as entertainment equipment, appliances, or cars. Under Bethel's zoning, a list of commercial and industrial uses are permitted, with certain uses allowed by special permit. The following development controls are applied:

Route 6 is a prime location for new commercial development. Economic development opportunities here are enhanced by the sheer size of most of the vacant parcels. The parcels are large, regularly shaped, and have significant Route 6 frontage and so can attract and accommodate major retail and office space. There are a total of 14 such parcels which range in size from 1.5 acres to nine acres for a total of about 33 acres. If all were built out with commercial or office uses, a maximum of about 330,000 square feet could be built.

Development on Route 6 can serve two markets. The first is a local one, serving the needs of northern Bethel residents who otherwise would travel into Newtown or Danbury for convenience goods and services. The other is a regional market, taking advantage of the thousands of cars daily that pass along this part of Route 6 en route to destinations outside Bethel. The clear preference expressed in the Plan of Development Public Opinion Survey and at the Phase I Public Workshop was for goods and services serving the local communities, with a particular need expressed for a large supermarket. "Big box" discount retailers such as Wal-Mart are not desired. There are three major impacts usually related to such stores - or any large-scale commercial development. These are 1) the economic impact on smaller, competing retailers, especially in a downtown where parking is limited, 2) the appearance and scale of the big stores, and 3) the traffic. Recognizing the community's preferences, the possibly differing desires of the Route 6 landowners, and the attractiveness of some of the Route 6 parcels to large retailers, there are several points and recommendations to be made regarding the potential impacts. First, Bethel's downtown serves a different market and to some extent would not be affected by large-scale development on Route 6. The downtown has already found itself a series of niches: as a cultural and community center, with the library, Municipal Center, Post Office, and train station, as a high-end clothing, food, and dining center, and an antique/second-hand furniture center. Local business is supported by the surrounding residential areas and is responding to the growing affluence of the town.

Second, the appearance and scale of big box retailers can be controlled through local ordinances. Bethel can regulate the scale, bulk, appearance, site placement, landscaping, and signage of commercial uses. New regulations should be put in place prior to the next round of Route 6 development. In this way, Bethel could benefit from commercial and retail development while also preserving the tree-lined, small scale look of the more attractive stretches of Route 6. And third, the impact of traffic created by big box retailers is mitigated by the Route 6 location itself: to a marginal extent shoppers would prefer the speed and directness of using Route 6 and would likely use the slower local roads only marginally.

(2) Proposed Zoning Changes

The recommendations for Route 6 apply to its full length. The town should keep the basic CI zoning, with a few targeted changes. All uses currently allowed would remain allowed; however, fast food restaurants would not be permitted. The first set of recommendations breaks into the following categories: 1) zoning, 2) site plan approval requirements, and 3) design standards. In the second part of this chapter, traffic and roadway improvements are presented which will enable Route 6 to continue functioning well, both as a road for passing-through drivers and as destination for shoppers and employees.

The nature of Route 6 is changing from primarily convenience goods and services (as currently anticipated by the zoning ordinance) to a mix of light industrial, convenience goods, offices, entertainment and hotels, and regionally-based retail. Changes to the zoning regulation will enable Bethel to again anticipate and shape the market forces at play on Route 6. The corridor is inevitably going to have a more significant role in the local and regional market now that 1) there are sewers in place, 2) the remaining vacant parcels are large ones, 3) Berkshire Corporate Park is nearly fully tenanted with a first class corporation, generating secondary economic development, 4) the local population continues to grow in size and affluence, and 5) zoning just over the town line in Newtown allows only professional and residential uses, making even more attractive the vacant commercially zoned parcels in Bethel so close to I-84's Exit 8.

Route 6 in Bethel has two sides to its character. Most of the existing commercial uses are developed on small lots. The remaining vacant lots (and redevelopment parcels such as Yankee Gas and D'Agostino's Nursery) are larger than the developed lots. Development on these lots will likely be quite different in scale and character than the existing commercial uses. The following recommendations address this issue of development character, and take into account the market forces enumerated above. There should be a two-tier approach: 1) the minimum lot size should be doubled to one acre (40,000 acre), which will accommodate most small-scale redevelopment, and 2) for development applications of 50,000 square feet or more of office park and/or shopping center, the minimum lot size required should be five acres. These large developments will have to meet somewhat more strict design and density standards in order to mitigate their impact on the corridor itself and on neighboring residential uses.

Proposed Density, Area, Height and Yard Requirements:

A) All Uses Except Large* Office/Industrial Parks and Shopping Centers

B) Large Parcels (5 ac +)

The figures which follow this page illustrate the changes created by increasing the landscape buffer and the differences between a site with a 50-foot setback and one with a 100-foot setback.

A Uses: The rationale for these changes is as follows. By doubling the minimum lot size from one-half acre to one-acre, Bethel will reduce by one-half the number of potential curb cuts as land is developed. Increasing the minimum lot size will deter the development of Route 6 into a continuous strip mall corridor. The current minimum yard (setback) is left in place. A floor-to-area ratio of 0.25 is instituted which flexibly regulates the amount of floor area on a parcel. The maximum building height is increased by a small amount. This will allow a developer's architect to create a pitched roof more in keeping with a New England design aesthetic than a flat roof. All existing and conforming uses will be grandfathered, until they come before the Planning and Zoning Commission or Building Inspector for renovation or replacement.

B Uses: There is a second tier within the CI zone. This second group recognizes that the remaining development parcels (whether the land or the building is vacant) are large for the area, averaging about eight acres apiece. While the allowed uses do not change in this recommendation, it is anticipated that market conditions will find the large vacant parcels particularly attractive for office and light industrial parks and large shopping facilities (whether multi-store centers or single big box retailers.) These type of facilities are commonly 50,000 square feet or larger, requiring a minimum of five acres to accommodate the building(s), parking, internal circulation, and setbacks. The bulk and density schedule is thus structured to shape these large uses to meet community goals for Route 6's function and appearance. The minimum lot size is large, reflecting the actual development parcels and assemblages in this corridor. The density is regulated by a floor-area ratio which is a more flexible determinant of scale than the traditional method. The side and rear yard setbacks are increased to protect neighboring uses (especially residential) from noxious impacts created by the largest building scale, lighted parking and delivery areas, dumpster areas, and truck movement.

Landscape Buffer: A building can have parking within its front yard setback. However, a permanent buffer between the street line and the building line must remain free of parking, devoted to landscaping (preferably with the type of large specimen trees found on the Stony Hill Inn property). There are two purposes for this: 1) to create over time a steady line of large mature trees in a greenbelt which will make this highway more attractive, and 2) to allow for the eventual widening of Route 6 without having the new turning lanes or travel lanes encroach on the existing businesses' parking and drop-off areas. In the B Use category, the landscape buffer also applies to the side and rear yards to protect adjacent properties.

Parking: Property developers have a choice of a standard 50 feet front yard setback or a 100 feet one. If the building line is set back only 50 feet from the property line, no parking will be allowed in front of the building except for drop-off or porte-cochere use, emergency vehicle use, and a small amount of parallel parking for visitors. All parking will then be to the side and/or rear. If parking is planned for the front yard, the building must then be set back a minimum of 100 feet.

Figure 20: Landscape Buffers on Route 6

Figure 21a: Views along Route 6

Figure 21b: Views along Route 6

Fast Food Restaurants: Fast food uses will be prohibited in the CI Zone. This can be done with a minor text change to the zoning code and the inclusion of a legally defensible definition of fast food restaurant. The definition could be worded:

Restaurant, Fast-Food: A business primarily engaged in the sale of ready-to-consume food and beverages generally served in disposable or prepacked containers or wrappers and where patrons usually select their orders from a posted menu offering a limited number of specialized items which are prepared according to standardized procedures for consumption either on or off the premises in a facility where a substantial portion of the sales to the public is by drive-in or stand-up service and cleaning up is generally performed by the customer.

Note: With pre-packaged foods and a minimum wait for customer, fast-food restaurants generally produce a much higher volume of foot and automobile traffic than do other types of restaurants.

(3) Site Plan Approval Requirements

There should be several additions to the existing site plan approval requirements. These have to do with 1) traffic impact studies, 2) curb cuts and 3) design standards.

Traffic Impact Studies: Any proposed development having 150 or more parking spaces will be required to prepare a traffic impact study which analyzes existing and future traffic conditions and proposed mitigation. Any existing business with 150 or more spaces which plans to add 50 or more spaces must also prepare a traffic impact study. This recommendation was first made in the 1984 plan and was seconded by the Housatonic Valley Council of Elected Officials. All proposed development on five acres or more or proposing 50,000 square feet of space (the B Use category above) must do a traffic impact study.

Curb Cuts: No lot in the Route 6 CI zone may have more than one curb cut on Route 6 and more than one on another town road, unless the applicant prepares a traffic study which shows the necessity for more curb cuts. The traffic impact study must be prepared for the Planning and Zoning Commission, and the Planning and Zoning Commission must approve the additional curb cuts based on the study's analysis. The study must analyze alternative access points into the site, such as from adjoining properties and local roads. If these alternatives are shown to not work, the Planning and Zoning Commission may then approve the additional curb cuts. In 1997, the Housatonic Valley Council of Elected Officials issued a Route 6 Access Management Plan, adopted by Bethel's Planning and Zoning Commission. The plan proposes an access management overlay zone, to be added to the zoning code. The maps in this plan would be guides to the design and location of driveways and curb cuts.

Design Standards: Applicants in the B Use category will be subject to design standards. The quality of overall site design, building architecture, and parking lot and site landscaping will be reviewed during site plan approval. This is discussed in more detail below.

4) Design Standards

Design standards must be strengthened to meet community objectives. The objective of these is to create over time, as Route 6 is developed, a coherent and attractive design quality conforming to the community's expressed desire for a New England character to the road.

Parking Lots: All parking areas shall be divided into smaller parking courts, separated by raised, landscaped planting islands (minimum 6 feet wide), building blocks, or other architectural or landscape architectural features. The trees in the parking lot shall be a minimum of 3-inch caliper and for every 10 spaces there shall be at least one tree. Walkways shall also be landscaped. The integration of pedestrian, vehicular and utility access between neighboring properties, as appropriate, shall be required by the Planning and Zoning Commission as a condition of site plan approval. If the applicant proposes to connect the site's parking lot with a neighboring one, the Planning and Zoning Commission may waive the parking space requirements by as many as two spaces if this is necessary to accommodate the new internal connection.

Overall Site and Architectural Design: Sites shall be designed with the objective of creating a New England character and minimizing the visual impact of the paved parking areas. Site design for properties located at or near the intersections shall seek to create an attractive gateway into the rest of the Bethel community. A New England character shall be created through special attention to the 1) relationship of building(s) to the site, 2) the relationship of buildings and site to adjoining areas, 3) landscape and site treatment (with the use of salt-tolerant native trees, shrubs and groundcovers), 4) building design, 5) signs, and 6) miscellaneous structures and street hardware, such as lamps, benches, litter containers, planting containers, etc. This design evaluation will be made by the Planning and Zoning Commission, using an architectural review board or consultants as needed. The board would be advisory to the Planning and Zoning Commission, and would review all development on Route 6 of five acres or more, and all development in Bethel Center.

The actual architectural style shall not be restricted, but the evaluation of the appearance of a project shall be based on the quality of its design and relationship to its surroundings and community aesthetic goals for Route 6. Buildings shall have good scale and be in harmonious conformance with permanent neighboring development, if that development conforms to a New England aesthetic. Building components, such as windows, doors, eaves, and parapets, shall have good proportions and relationships to one another as found in a typical New England style. Colors shall be harmonious and shall use only compatible accents. Mechanical equipment or other utility hardware on the roof, ground, or buildings shall be screened from public view with materials harmonious with the building. Or they shall be located as not to be visible from any public ways. Exterior lighting shall be part of the architectural concept and shall be no higher than 20 feet. Refuse areas, service yards, storage yards, and exterior work areas shall be screened from public ways using the small materials as with equipment screening. Monotony of design in single or multiple building projects shall be avoided.

Signs: Generally, all signage must be carefully integrated with other site design elements. The purpose of the sign ordinance should be to enhance and protect the town's physical appearance and provide a more scenic and pleasing community. Section 118.47.2 of the Bethel zoning code regulates signs. The following recommendations would amend this section and would apply throughout the town:

• There should be a sunset plan for billboards, with the goal of removing all billboards along Route 6 within five years.
• The shape, color, and lettering of signs should be addressed. Simple forms, such as rectangles, squares, ovals, and circles should be encouraged, and the number of colors used in a sign should be limited to no more than three. Day-glow colors should be prohibited. Lettering should occupy no more than 60% of the total sign area.
• No sign shall have more than two faces.
• No sign shall be attached to any tree, fence, or utility pole, or be painted upon or affixed to any rock, ledge, or other natural feature.
• No moving, revolving, or fluttering signs shall be allowed as permanent signs.
• No sign shall be erected so as to face a side or rear lot line of any adjoining residential lot.
• F(2): Clarify that in no case shall a sign be higher than 25 feet.
• F(5): Clarify that in no case shall a sign be more than 40 square feet in dimension (counting both sides). The introductory text under subsection G would then need to be clarified.
• F(6): No sign should project beyond a property line.
• G(4): Disallow any signs in windows.

Existing signs would of course be grandfathered, but would need to come into conformance when these are changed due to a change to the business and/or business ownership.

5) Accommodating Traffic Growth Along Route 6

There does not appear to be a need to widen Route 6 in the Town of Bethel at the current stage. There are no traffic forecasts that would indicate such a need in the near future. However, it is essential that the Bethel Plan of Development allow for such growth. The purpose of this section is to present strategies to allow for future capacity increases as needed. Some of the strategies discussed address the potential capacity shortages and also traffic safety.

These strategies are presented in the context of the regional transportation plan that recommends a widening of I-84 throughout this region. For years the widening of I-84 from two lanes to three lanes in each direction has been viewed as an important improvement for the region. This widening would have beneficial impacts on Route 6 in the sense that no traffic volumes would shift from I-84 onto Route 6 because of a lack of capacity on I-84. Currently significant traffic volumes shift from I-84 onto Route 6 whenever there are any blockages (e.g. accidents or construction) on I-84.

Driveway Consolidation and Access Management: Driveway consolidation and access management is an important tool to maintain or increase capacities and fluidity along an arterial. Route 6 is a state highway meant to carry traffic between adjacent communities. The function of through traffic is in conflict with the proliferation of driveways along an arterial. As has been shown in many situations, a high number of driveways along a regional arterial leads to numerous backups caused by turning traffic and to more numerous traffic accidents. As reported in the Bethel-Danbury-Newtown Route 6 Traffic and Curb Cut Management Study prepared by the Housatonic Valley Council of Elected Officials, there were a total of 60 accidents over a three year period along Route 6 in Bethel. Of these 28 were rear-end accidents and 15 were related to turning movement paths. While the town wants to maintain reasonable access to adjacent properties, it also wants to maintain fluidity and safety along Route 6.

Besides improved traffic flow and safety, driveway consolidation will also lead to a more aesthetic road with fewer driveway interruptions and to a road that is friendlier to pedestrians and bicyclists. A proliferation of driveways makes walking and bicycling unpleasant and hazardous.

Even though Route 6 is a federal route and the state has jurisdiction over its design and configuration and the state approves or prohibits driveways along Route 6, the town has an important responsibility in the planning and management of access along Route 6. Because of its basic authority over land uses and development the town has, in effect, more influence over driveways along Route 6 than the state. This is especially true because Connecticut State Department of Transportation is not very aggressive in terms of controlling driveways along state highways and only prohibits driveways if they are a clear and direct safety hazard.

The Town of Bethel has a responsibility to manage access along Route 6 through its zoning code and subdivision regulations. These efforts should be coordinated with the region and the state.

The difficulty with these changes is that they can only be implemented over time as property owners or developers come before the town requesting approvals for development or changes to their property. Without any development application, neither the town nor the state has any legal right or leverage to request changes to the driveways, unless there is a clear and direct safety hazard.

The other drawback to a very detailed access management plan is that the access management strategies could change depending on the development plans. A large retail development could present different access opportunities than a smaller professional office.

In April of 1997, Housatonic Valley Council of Elected Officials prepared the Route 6 Access Management Plan for Bethel, CT, for adoption by the Planning And Zoning Commission. The Route 6 Access Management Plan is part of the Bethel Plan of Development even though it is produced as a separate document. This is an "on-the-go" access management plan with the following basic rules:

1. The Town of Bethel has a responsibility to manage access along Route 6. As long as reasonable access is provided to a property, the Town of Bethel can say "No" to a driveway even if the state approves it.
2. The access management plans should be devised on a case-by-case basis and should be specific to each development. The plan should be used as a general guide and a source of ideas.
3. Sometimes the applicant before the town is willing to consolidate driveways and curb cuts, but the neighbor does not want to participate. In that case the town can set conditions for the future and can ask the applicant to provide an easement to the adjacent property so that consolidation can happen in the future.
4. Generally access is preferable from the side street rather from Route 6, and it is preferable to provide only one driveway along a particular road rather than two. If a parcel has frontage on more than one road, traffic impacts can be minimized by distributing traffic over two or more roads and by having one driveway on each frontage road.
5. For any major development along Route 6 a traffic impact study should be requested by the town to study traffic impacts, mitigation measures and access management.

The plan contains a series of maps detailing the length of Route 6 in Bethel, and shows preferred driveway designs, locations and interconnections. New or expanded development in this corridor would be subject to the plan's recommendations and requirements.

Intersection Improvements: The next line of defense to accommodate traffic increases will be to increase capacity at the critical locations, i.e. at the intersections. Intersection improvements have been identified in the Route 6 Traffic and Curb Cut Management Plan, in traffic studies submitted as part of an application to the State Traffic Commission (for the Berkshire Industrial Park) and by the town planning consultant. These strategies are listed from west to east:

• Route 6 and Sky Edge Drive: It is difficult and hazardous for traffic to drive from Sky Edge Drive onto Route 6 westbound. Local observations have shown a fair amount of vehicles doing this maneuver even though eastbound Route 6 traffic arrives at high speed. The possibility of a traffic light should be studied at this location. This intersection should be studied and improvements should be sought especially when the adjacent Yankee Gas property is redeveloped. A deceleration lane should be built for vehicles turning from Route 6 onto Sky Edge Drive.
• Garella Road/Sand Hill Road Intersection: The primary problem of this intersection is that the two approaches are not aligned and are offset the wrong way (with the left turns from Route 6 in conflict with each other). The Garella Road approach is aligned with the 7/11 driveway about 60' east of Sand Hill Road. The other problem at this intersection is the inadequate turning radius for trucks driving out of Garella Road onto Route 6 westbound. This intersection is scheduled to be improved as part of the expansion of the Berkshire Industrial Park. An eastbound left-turn lane is planned to be added to turn from Route 6 into Garella Road and an additional southbound lane is planned on Garella Road to provide an exclusive right-turn lane and an exclusive left-turn lane. Right-turn radii should be verified for the Garella Road approach.
• Benedict Road/Hawleyville Road Intersection: This intersection is also offset the wrong way in the sense that left turns along Route 6 are in conflict with each other. As recommended in the Route 6 study, this intersection should be redesigned so that both north-south legs are aligned. This can be achieved by realigning the Benedict Road approach slightly to the east and by adding a right-hand lane on the Hawleyville Road approach. The Hawleyville Road approach would thus have an exclusive left-turn lane and a lane for through movements and right turns. See the attached Figure 22 excerpted from the Route 6 study. This figure shows Route 6 to be widened to four lanes plus a left-turn lane; however, this widening is not envisioned in the near future.
• Route 6 and Old Hawleyville Road: The Route 6 Study shows also four lanes for Route 6 at this location plus two approach lanes for Old Hawleyville Road from the north and from the south. See Figure 23 from the Route 6 Study. Not all of these widenings will be needed in the near term. It appears that the most pressing need may be the additional right turn lane from Route 6 eastbound into Old Hawleyville Road southbound and an additional left-turn lane on the northbound approach of Old Hawleyville Road.

Route 6 Widening: Widening Route 6 through Bethel from two lanes to four lanes plus turning lanes is the improvement of last resort and should only be undertaken after the above improvements have been done and if it is shown that the need to widen is generated locally and is not the result of an overflow from I-84. The need for the widening will probably start in the west and will move east as development and traffic volumes increase.

Even though the four-lane Route 6 is not part of the Bethel Plan of Development, it is important to reserve enough land and setbacks so that the widening can occur in the future. Today the right-of-way width varies from 70' to 110' between Sky Edge Drive and Benedict Road and from 60' to 85' between Benedict Road and the Newtown line. A total future right-of-way of a minimum of 80' is recommended except for those sections within 300' from any of the above intersections where the R.O.W. should be 90'.

Figure 22: Route 6 Corridor Study Hawleyville Road and Benedict Road

Figure 23: Route 6 Corridor Study Old Hawleyville Road and Route 6

10.2 Downtown

(1) Description of Study Area

Bethel's downtown area is centered along Greenwood Avenue and extends from Chestnut Street on the east, to Grassy Plain Street and the Whitney Road and Fleetwood Avenue intersection on the west. Retail uses are concentrated within two districts of the almost one-mile long study area: the central core area (between the old railroad station and P.T. Barnum Square), and the more fragmented district adjacent to the Greenwood Avenue/Grassy Plain Street intersection. The downtown area incorporates a variety of retail uses including a number of shopping plazas, office and general commercial businesses, several churches, residential buildings and community facilities, such as the Town Hall and Library.

Historically, commercial uses first appeared on Greenwood Avenue in the mid-nineteenth century. The construction of the Shepaug Valley Rail Road with the station building at Depot Place established the avenue as Bethel's major shopping district. Conversion of historic residences for retail and office use was followed by construction of new buildings such as the three-story buildings lining the south side of Greenwood Avenue which were built specifically for mixed commercial and residential use.

The majority of structures in downtown date from the mid-nineteenth century and document the area's development as both a residential and commercial center. The more recent construction has generally been built on properties originally used as industrial sites. The downtown's capacity for additional development will likely lie in small improvements whose overall impact, if handled correctly, will be greater than the sum of the increments. In the downtown (and also at the gateway intersections of Routes 302 and 53, and Greenwood Avenue and Nashville Road) there will be opportunities for infill development, greater site utilization, and building reuse. Buildings whose reuse will have an impact on the downtown are the vacated Town Hall, railroad station, St. Mary Church, and its rectory. There are important steps the town can take to improve the attractiveness of this commercial district, through control over the new sidewalks and urban design features, control over signage, and regulation of building design and site placement. Creating a historic district in the downtown would give town officials greater leverage over the aesthetics of new development and major renovations.

The downtown has two models of commercial development. On either side of the intersection with Library Place and Depot Place, Greenwood Avenue's commercial character differs. To the west is a modern, suburban model where the shops are contained within strip malls whose parking lots are off-street, separating the stores from the sidewalk. To the east is a traditional, small town model where the storefronts line the sidewalk and parking can be found along the street and in some cases to the rear of the stores. It is now understood that the second model encourages pedestrian use, increases walkability between stores and multi-stop shopping trips, attracts out-of-towners interested in weekend visits, and can be developed into evening and nighttime use. This old-fashioned shopping model creates a distinct character and makes memorable a town center. The Planning and Zoning Commission should study existing zoning to determine how it might be changed so that future development builds upon the established traditional commercial character.

The design quality and character of Bethel's downtown varies considerably along the length of the district. Four district areas can be defined:

1. The Grassy Plain Street area which includes the largely vacant shopping plaza and miscellaneous retail uses.
2. An area of residential buildings and professional offices between Beach Street and the Dolan Plaza Shopping Center.
3. Downtown's core retail district, extending from Dolan Plaza to P.T. Barnum Square.
4. The more fragmented mixed commercial area between the P.T. Barnum Square and the east end of downtown, terminating at Chestnut Street.

Figure 24 illustrates the distribution of buildings along Greenwood Avenue and Grassy Plain Street, and indicates the suggested boundary of the four areas noted above. Brief descriptions of these areas follows:

Whitney Road/Fleetwood Avenue to Beach Street

This western section of Bethel's downtown incorporates commercial uses along Grassy Plain Street as well as along Greenwood Avenue. The area contains a broad mix of uses: a number of restaurants, two banks, two gas stations and a variety of retail and office uses. The largest building in this area is the partially vacant retail plaza complex, involving a total of approximately 28,000 square feet of retail space. In general, this section of downtown is dominated by automobile-related uses and discourages pedestrian activity due primarily to the suburban nature of building layouts and distribution - (see Figure 25).

Positive Visual Features. This section forms the western gateway to downtown. Unfortunately, it presents a generally unattractive image with few distinguished buildings and minimum landscape treatment. One attractive residence - No. 49 Grassy Plain Street - and the street trees marking the residential section beyond the Greenwood Avenue intersection are among the more attractive elements in this area. (See Figure 26.)

Negative Features. The extensive surface parking lots, all with frontage to Greenwood Avenue and Grassy Plain Street and the three gas stations located in prominent positions along the main street establish an automobile-dominated environment for this section of downtown (see Figure 27). Other features that contribute to a generally negative image include:

• Cluttered and unattractive signage, including billboards on Grassy Plain Street and un-coordinated freestanding commercial signs throughout this area.
• The derelict building at the O'Donnell property.
• Vacant stores within the main shopping plaza.
• The architectural treatment of much of the new construction or renovation much of which ignores Bethel's historic context.
• Poorly maintained and discontinuous sidewalks that discourage pedestrian activity. In particular, pedestrian access is impeded by parked cars at the auto mechanics shop on the south side of Greenwood Avenue near the approach to Beach Street.

Figure 24: Downtown Study Areas

Figure 25: Whitney Road to Beach Street: Views

Figure 26: Whitney Road to Beach Street: Visual Analysis, Positive Features

Figure 27: Whitney Road to Beach Street: Visual Analysis, Negative Features

Beach Street to Dolan Plaza

In contrast to the development to the west, this stretch of the study area is characterized by attractive, well preserved buildings set back behind trees and lawns (see Figure 28). The historic residential uses of this area are largely retained in the section between Blackman Avenue and Beach Street, with St. Mary Church (now vacant) being the dominant structure on the north side of the street. Further east, many of the buildings have been converted to office use, including legal and medical offices. Two or three buildings on the south side include ground floor retail and commercial uses.

Positive Visual Features. This section of Greenwood Avenue presents an attractive high quality image due to the well-preserved historic buildings and mature landscape. Over 20 structures date back to the mid or late nineteenth century, and the uninterrupted sequence of these historic buildings, combined with large street trees and spacious setbacks, give this area a special identity (see Figure 29). This quality extends northward along High Street and Grand Street, where historic, well-maintained homes line both roads.

Negative Features. The overhead utility lines, cobra-style fixtures of the street lighting, and pill-box additions to building fronts detract from the overall attractive image of this part of downtown (see Figure 30).

Dolan Plaza to P.T. Barnum Square

Most of the commercial core of downtown is located between Dolan Plaza and P.T. Barnum Square, with the Depot Place/Library Place intersection representing Bethel's center. Major retail and commercial areas include the recently constructed Dolan Plaza and Bethel Village Square development on the west side of the railroad, as well as the retail frontages on the south side of Greenwood Avenue between Depot Place and the P.T. Barnum Square. P.T. Barnum Square itself is surrounded by small-scale retail and commercial stores.

The library, a church, two banks, restaurants and professional office space add to the mix of uses to be found along this stretch of Greenwood Avenue. Depot Place and the vacant old railroad station -- together with other adjacent historic buildings such as the Verdi Woodwork building -- together form a potentially important asset to downtown given its strategic location relative to the Greenwood Avenue (see Figure 31).

Streetscape improvements for this stretch of Greenwood Avenue have been funded as part of the Phase One Rail Station Access and Streetscape Enhancement Project. These improvements include construction of brick sidewalks, additional street trees and new street furniture such as ornamental street lamps and benches. It is anticipated that the streetscape work will include the length of Greenwood Avenue from the railroad tracks to Rector Street, as well as along Depot Place and Library Place.

Figure 28: Beach Street -Dolan Plaza: Views

Figure 29: Beach Street to Dolan Plaza: Visual Analysis, Positive Features

Figure 30: Beach Street to Dolan Plaza: Visual Analysis, Negative Features

Figure 31: Dolan Plaza to P.T. Barnum: Views

Positive Visual Features. This core area contains an important mix of well-designed historic structures and attractively landscaped open spaces. The key assets, shown in Figure 32, include:

• The library, a major landmark due to its historic status and its prominent location and landscaped setting.
• he three story mixed use buildings near Depot Place, including the Opera House building.
• The United Methodist Church, an important Gothic Revival building on the north side of the avenue
• P.T. Barnum Square, a well-landscaped village green serving the downtown area.

Negative Features. The area that requires major renovation and streetscape improvement are concentrated on the west side of the railroad tracks, outside the present Enhancement Program to be carried out further east. The concentration of unattractive surface parking lots, cluttered signage and strip-mall shopping centers create a poor gateway to this central section of downtown (see Figure 33). To the east, the overhead utility and cable lines mar the view of attractive, historic facades that line the south side of the avenue.

P.T. Barnum Square to Chestnut Street

This section of downtown presents a fragmented and untidy image due to the large gaps in building frontage and the wide variety of building types and scales. Chestnut Street marks the eastern entry to Bethel's downtown. Unfortunately, this gateway is identified by two gas stations and other auto related uses. The most dominant building is the Bethel Food Market, a 32,000 square feet store on the south side of Greenwood Avenue. Opposite is the attractive St. Thomas Episcopal Church (see Figure 34).

Positive Visual Features. This area contains a number of smaller structures that reflect Greenwood Avenue's earlier role as a residential street. The Gothic Revival St. Thomas Episcopal Church building (built in 1909) and the Masonic Temple Building (1910) represent the most important assets along this section of Greenwood Avenue (see Figure 35).

Negative Features. Pedestrian activity is discouraged along Greenwood Avenue given the dominance of parking lots, gas stations and curb cuts. In particular, the obtrusive scale of the Citgo Gas Station canopy at the Chestnut Street entry creates an inappropriate image on the edge of Bethel's important historic district (see Figure 36).

(2) Issues And Recommendations

A summary of the major design issues that need to be addressed in the future plan for the downtown district is illustrated in Figure 37. These issues are based on a review of the existing conditions described above, and are combined with the results of the public workshop held in June 1996. An over-riding issue relates to the need for significant landscape design and streetscape improvements to the two outlying sections of the business district -- Sections (1) and (4) described above. Both of these commercial areas display a more suburban character in terms of the scale and arrangement of buildings and parking lots, resulting in less regard for pedestrian amenity, safety and comfort.

Figure 32: Dolan Plaza to P.T. Barnum: Visual Analysis, Positive Features

Figure 33: Dolan Plaza to P.T. Barnum: Visual Analysis, Negative Features

Figure 34: P.T. Barnum to Chestnut Street: View

Figure 35: P.T. Barnum to Chestnut Street: Visual Analysis, Positive Features

Figure 36: P.T. Barnum to Chestnut Street: Visual Analysis, Negative Features

Figure 37: Summary of Design Issues and Recommendations

Issues: Other issues include the following:

• The erosion of the small town New England feel due to the insertion of large retail plazas and their adjacent parking lots.
• Lack of uniform, consistent design themes that would tie together the various land use elements along Greenwood Avenue.
• Lack of identifiable gateways at the east and west entries to Greenwood Avenue that would help to establish the historic quality and character of downtown.
• Poor pedestrian facilities such as unattractive sidewalks and unsafe crosswalks.
• Poor landscaping and screening of surface parking lots.
• Obtrusive scale and character of recent new construction that clashes with the modest size of earlier, historic structures.
• The threat of white elephants such as St. Mary Church and Rectory, the old railroad station, and the old town hall building.
• Poor quality commercial and informational signage, and too many window signs.
• Poor traffic flow on Greenwood Avenue and Main Street due to bad signal timing, lack of turning arrows, and lack of stop signs.

Recommendations: The recommendations for the downtown area are summarized below:

• The enhancement program should be extended to incorporate new landscape and streetscape improvements on Greenwood Avenue between Rector Street and Chestnut Street, and in sections of the avenue to the west, extending to Grassy Plain Street.
• New street trees, improved sidewalks and crosswalks, and screen planting along parking lot frontages are required for three specific areas within the downtown district:
  • At the vicinity of the Greenwood Avenue - Grassy Plain Street intersection;
  • On sites adjacent to the rail road crossing;
  • At the eastern entry from Chestnut Street, incorporating the two major parking lots near the United Methodist Church.
• Attractive gateway signage should be installed at the Whitney Road and Chestnut Street entries.
• The Historic District proposed for the downtown area should incorporate the section of Greenwood Avenue from Beach Street on the west and extend eastward to the vicinity of Chestnut Street (refer to Figure 37). In a second phase of historic district designation, residential streets may be included. District controls should be carefully drawn up so not to conflict with the goal of commercial revitalization. The preferred designation should be federal or local, rather than state. In practice, a state historic district designation can be overly stringent. A federal designation is generally more palatable to local property owners. A local designation can be designed to satisfy the needs and concerns of those affected.
• The paved area adjacent to the old railroad station and Depot Place should incorporate landscaped plazas, planting and other amenities to create a downtown center. This center should be attractively linked by specially designed pathway systems to stores on Greenwood Avenue, the library, and the Bethel Village Square development.
• Commercial building design and sign guidelines should be established to create a design vocabulary for Greenwood Avenue frontages that reflect downtown Bethel's historic qualities and character.
• Bethel should enroll in the National Main Street program. The town would benefit from being integrated into a network of technical resources, funding, and the experiences of other towns.
• The zoning and/or site plan codes should be amended so that 1) gas station canopies are phased out over a period of five years; upon which, canopies may be replaced with small ones which serve only for fire suppression; and 2) building setbacks are preserved with no building or parking encroachments allowed in the front yards. The zoning code should make it clear that throughout the town, front yard playgrounds on commercial sites are prohibited.
• The town-wide survey yielded a number of specific traffic interventions which would make the downtown safer and lead to better traffic (and pedestrian) flow. These are 1) different signal timing at Greenwood Avenue and Library Place, 2) an exclusive turning phase arrow at Greenwood Avenue and Chestnut Street, 3) a four way stop sign at the intersection of Prospect Street, Main Street, Maple Avenue, and Chestnut Street, and 4) improved crosswalks on Greenwood Avenue.