Planning Commission

Burlington Planning Commission Tuesday, April 14, 2026, 6:30 PM Remote & Virtual Meeting via Zoom In person option available: Bushor Conference Room (Room 102), 1st Floor of City Hall, 149 Church St. To Join the Meeting on a Computer Link:https://zoom.us/j/97941883790?pwd=bGZBNzNyV1liL3p5NkhIL2dqUFIzdz09 Passcode: 658929 To Join the Meeting on a Phone Number:+1 646 931 3860 US Meeting ID: 979 4188 3790 1. Agenda 2. Public Forum 3. Chair's Report 4. Director's Report 5. BUILD Report Subject 5.1. Director to share an update related to the City Council's BUILD report. Meeting April 14, 2026 - Planning Commission Agenda - Tuesday, April 14, 2026, 6:30 PM, Burlington Planning Commission Category 5. BUILD Report Department Planning Type Recommended Action 6. planBTV 2050: Existing Conditions Subject 6.1. Staff to present on planBTV 2050 Existing Conditions Analysis and discuss findings with Commissioners. Meeting April 14, 2026 - Planning Commission Agenda - Tuesday, April 14, 2026, 6:30 PM, Burlington Planning Commission Category 6. planBTV 2050: Existing Conditions Department Planning Page 1 of 52  Type Recommended Action 7. Commissioner Items 8. Adopt Minutes & Accept Communications 9. Adjournment Page 2 of 52 BUILD Resolution Report Page 3 of 52 • • • • Page 4 of 52 Action or Activity Goal Status Page 5 of 52 Action or Activity Goal Status Page 6 of 52 Action or Activity Overview Status Page 7 of 52 Action or Activity Opportunities for Collaboration Parties Involved: Page 8 of 52 Action or Activity Opportunities for Collaboration Collaboration: Page 9 of 52 Topic Recommended next steps • • • • • Page 10 of 52 Topic Recommended next steps • • • • • • Page 11 of 52 Topic Recommended next steps • • • • Page 12 of 52  City of Burlington, VT 149 Church Street, 3rd Floor Burlington, VT 05401 Phone: (802) 865-7194 www.burlingtonvt.gov/plan To: Burlington Planning Commission From: Charles Dillard, AICP, Director, Office of City Planning Kara Alnasrawi, Director, CEDO Date: April 14, 2026 RE: BUILD Resolution Report on Housing Barriers and Associated Recommendations Overview The purpose of this memo is to provide the Planning Commission with an update on the BUILD Resolution Report to City Council, which provided a comprehensive understanding of the Administration’s work in identifying and addressing persistent barriers to housing construction in Burlington. The memo concludes with recommendations on next steps to address these barriers, including suggestions on how the City Council and its Community Development & Neighborhood Revitalization committee may participate. Administrative, procedural and regulatory barriers that impede or delay housing development consistent with the Neighborhood Code Administrative Barriers 1. ModGov and OCP Reorganization: The Mayor’s organizational improvement strategy, “ModGov,” focused on the Office of City Planning in FY26 and ultimately relocated OCP to sit within the Community and Economic Development Office (CEDO). A primary goal of this reorganization was to centralize the City’s teams focused on housing and encourage a more holistic housing policy framework. In the two months since the reorganization, staff from OCP, CEDO’s Housing Program and CEDO’s Real Estate Development Manager have worked more closely than before and continue to collaborate on several housing policy initiatives. 2. One-Stop-Shop Evolution: As part of the ModGov process, the Mayor has instructed the Director of City Planning to assist in leading an ongoing evolution and improvement of the City’s “one-stop-shop” development review process. 3. DPI-OCP Coordination: Staff from OCP meet regularly with the DPI team focused on development review and zoning administration to discuss ongoing and anticipated development application review, along with potential zoning amendments. These meetings are critical to developing a mutual understanding on ongoing housing trends, barriers, and strategies to address them. 4. OCP and DPI Advisory Services: OCP and DPI staff routinely provide advice and guidance to property owners and others interested in developing housing, a service provided at no cost. Regulatory Barriers Regulations that impact housing construction and rehabilitation can broadly be organized into three groups: local zoning and other ordinances, state Fire and Building Safety Code, and state land use law (i.e. Act 250). As the City Council noted in its January 12 BUILD Resolution, the City’s Neighborhood Code Part 1, which was adopted in spring 2024, is intended to enable additional housing development, support neighborhood-scale growth, and expand opportunities for diverse and affordable housing throughout the city. However, regulatory barriers across all three aforementioned groups have been persistent and have been or are being addressed by the Mayor’s Office and staff in the following ways: Page 13 of 52 1. Neighborhood Code Part 2B: Where Part 1 of the Neighborhood Code established the framework for infill housing reform, including notably new rules allowing for up to eight units across two buildings on all residential districts in the City and even more development intensity along major transportation corridors, Part 2B created new rules for three development types: Rowhouses, Pocket Neighborhoods and Planned Unit Developments (PUDs). • Notably, until the adoption of Part 2B in June 2025, Burlington did not allow for fee- simple Rowhouses, the missing middle type that has far outpaced all other types in terms of units constructed across the country. This housing type, and the underlying absolute title to land that it offers, has proven to be more desirable and easier to finance than other, condominiumized missing middle ownership types. • Neighborhood-scale PUDs offer enhanced design flexibility and acknowledge the economies of scale that accompany larger lot developments. The Office of City Planning is aware of several Neighborhood Code PUDs in planning that, if constructed, would produce hundreds of units of housing. • Finally, Pocket Neighborhoods, also known as Cottage Courts, offer opportunities for modular construction and thoughtfully-designed community-oriented housing. This type has been particularly popular in communities prioritizing aging-in-place and other accessible housing models. 2. Act 181: The Mayor’s Office and staff, with City Council authorization, have advanced a policy framework in response to Act 181 that has already established Tier 1B Act 250 exemptions for projects of 50 units or fewer across the City’s residential zoning districts. While Tier 1B is a critical step forward in addressing’s Burlington’s housing challenges, staff has been focused more recently on Tier 1A and the more expansive Act 250 relief that it would bring to Burlington’s residential neighborhoods. While there are concerns regarding staff capacity to administer and enforce existing Act 250 permits, the City’s goal is to map all eligible areas – including all residential districts, as Tier 1A. Notably, Tier 1A status would further remove barriers to Neighborhood Code PUDs on large properties within Burlington’s neighborhoods. 3. Ongoing Comprehensive Development Ordinance Reform: Staff have identified several persistent zoning barriers to housing, some of which are actively being pursued: • Administrative Alternative Compliance approaches, like the Administrative Relief available in the Downtown Form Code (Sec. 14.7.3), allow for design flexibility. Staff has explored various topics for inclusion in a potential Alternative Compliance zoning amendment, including several that would address dimensional standards in the Neighborhood Code. • Inclusionary Zoning and Housing Trust Fund Reform is an immediate priority. Among the concepts being considered are reforms to Payment-in-Lieu standards – long noted to be significantly out of step with best practice and market conditions, in order to increase Housing Trust Fund (HTF) Revenue. One goal of this approach is to diversify the City’s use of HTF funds through investment in affordable Neighborhood Code units. • Neighborhood Code has been adopted without a wholesale examination of the Design Review process, which is intended to “further Burlington’s vision for a dynamic, vibrant, sustainable city amidst a scenic, natural setting.” Design Review is required in all Residential Medium and High zoning districts, and for projects in the Residential Low district that contains three or more units or more than one building. Given the severity of Burlington’s housing affordability and supply challenges, and the degree to which Page 14 of 52  Design Review applies to the fundamental concepts underlying Neighborhood Code, staff has identified potential reforms to Design Review that would seek to establish an objective housing project review process. • Ecological Design Standards have been discussed at various points since the 2022 adoption of the Nature-Based Addendum to the Open Space Protection Plan. This approach is reiterated in the recently adopted Open Space Plan and would explore incentives and alternative compliance standards that promote ecologically- responsible housing development. Topics to explore are tree preservation, on-site and neighborhood-based stormwater management, and incentives for bio-based building materials. Altogether this approach acknowledges that Burlington’s housing challenges are not limited to supply and that they also impact environmental and public health. 4. Building and Fire Safety Code: Housing reform nationally has focused on zoning standards. However, a universal experience across the United States and Canada, the only two countries that use the “International Building Code,” has been the degree to which building and fire safety codes create cost barriers to housing construction. Of particular concern to OCP staff are the requirements for sprinklers in Accessory Dwelling Units beyond a 50-foot hose length, and even requirements for sprinklers in three- and four-unit buildings. Staff has begun conversations with DPI Housing staff and the Fire Marshall regarding areas of potential agreement. Recommendations for next steps on the building and fire safety codes are provided below. Procedural Barriers 1. Permit Data Analysis: Despite the numerous zoning and other administrative barriers identified in this memo, data suggests that the primary challenges to housing construction in Burlington may not be due to difficulty in securing permits. As of October, 2025, the City had received 30 applications for Neighborhood Code projects, 21 of which were approved with a median processing time of 36 days. Of the nine applications that were not approved, only three were denied – five were withdrawn and one was pending. Of the 21 approved projects, however, only two have been constructed. This data suggest cost may be the primary driver of project feasibility. However, staff cannot decisively say why permits are withdrawn, or why approved permits are not carried through to construction and occupancy. 2. Pre-Approved Plans: Pre-approved plans address cost and time barriers to housing construction, as well as the daunting complexity that housing construction presents to small- scale developers and property owners interested in taking advantage of the Neighborhood Code. OCP staff is currently engaged with State ACCD leadership on identifying a pathway for Burlington to approve the State’s 802 Homes package of pre-approved housing plans. Additionally, staff, with experience creating the City of Raleigh’s Fast Track ADU program, is exploring a Burlington-specific pre-approved ADU program. 3. Community Housing and Infrastructure Program (CHIP): CEDO, OCP and DFA staff have advanced an internal CHIP policy framework to facilitate transparent and timely municipal review of applications to this State housing initiative. Notably, CHIP could be a valuable tool in the development of Neighborhood Code PUDs. Coordination between City departments, relevant boards and commissions, and State counterparts related to housing development. Bloomberg Harvard City Leadership Initiative Page 15 of 52 Mayor Mulvaney-Stanak was invited to participate in the ninth cohort of this program, which provides “training and capacity-building to help participants foster their professional growth, advance key capabilities within their city hall, and lead more effective, efficient, and equitable cities.” The Mayor identified removing barriers to housing construction and affordability as Burlington’s challenge in this year-long program. In this effort, a core team of City staff from across departments have worked intensively over several months to address housing barriers. This work includes deep engagement with a diversity of stakeholders and iterative development of policy strategies. The City team has identified the following eight strategies within its portfolio, which it will work to implement over the coming year. Of note, the first two strategies – the Housing Shepherd and the Priority Parcels initiatives will be prioritized in the coming months. 1. Housing Shepherd as a new function within the City that will advise applicants and see housing projects through from application to implementation, along with advising on removing regulatory and policy barriers 2. Identify Priority parcels that have the biggest and most immediate potential as sites for housing and engage with owners to encourage and incent development 3. BTV Build, an improved digital experience for housing development applicants outside of the OpenGov site 4. Support and Expand Construction Workforce and Business Ecosystem to bring costs down and increase housing affordability 5. Filling Zoning Potholes, which are residual and persistent zoning barriers to housing 6. Explore potential for Right to Repair legislation that would allow tenants to secure timely maintenance of units and ensure high quality rental units 7. Extend Housing Trust Fund dollars to existing building rehabilitation projects 8. Explore tax abatement for existing and naturally occurring affordable housing, in the model of Minneapolis’ 4D Affordable Housing Incentive 802 Homes As mentioned above, OCP staff is currently engaged with ACCD leadership on proactively identifying a pathway for Burlington’s approval of the 802 Homes package in advance of the project’s completion. Act 181 OCP staff is engaged with Chittenden County Regional Planning Commission (CCRPC) staff on identifying a future land use map that would make most of Burlington’s developable land eligible for Tier 1A status. Additionally, OCP and DPI staff participate in a Tier 1A Working Group consisting of colleagues from South Burlington, St. Albans, Rutland, Brattleboro, Killington and Williston, and that has the purpose of sharing knowledge, practices and experience in implementing Tier 1A status in Vermont’s communities. Chittenden County Infill Housing Campaign This is an education and outreach campaign that will develop materials and workshops to support small-scale infill housing development in Burlington, Essex Junction, Winooski and South Burlington. Funded by the FY26 CCRPC UPWP, this campaign is expected to evolve into additional outreach and training for small-scale builders and developers and to support coordination of 802 Homes implementation. AARP The City is party to a CCRPC application to the AARP Community Flagship Grant, the goal of which is to expand upon the Infill Housing Campaign in delivering a series of public, in-person workshops and peer networking events designed to demystify small scale infill development. Workshops will explain Page 16 of 52 housing options such as ADUs and neighborhood scale homes, clarify basic zoning terminology, outline the permitting process, and introduce residents to financial, design, and construction resources. Interdepartmental Coordination Staff from OCP, DPI, the Fire Marshall’s office, and Water Resources have begun conversations on potential reforms to Building and Life Safety Code barriers to housing construction. As mentioned above, topics to address include sprinklers and backflow preventers. Additional topics related to larger scale construction, such as mass timber and means of egress, could be explored as well. Recommendations on next steps related to this item are included below. Recommendations on next steps to address identified housing barriers, including suggestions on how the City Council and its CDNR will actively participate in this work Building Code Reform 1. Form internal Building Code Working Group to explore potential and balanced reforms that maintain high safety standards while removing unnecessary barriers to housing. The Working Group should consist of representatives from BDS, DPI, OCP, DPW Water Resources, and the City Attorney’s Office and could include representatives from Council and its Ordinance or CDNR Committees. 2. Following the process model adopted in cities and states across the country, Burlington should commission a study of building code reforms to support the Working Group. This study could be commissioned and paid for by the City Council. 3. Depending on the Working Group’s findings, the Mayor’s Office and/or City Council could lobby the State to reform statewide building codes or allow greater flexibility in adopting local building code reforms. planBTV: 2050 1. Advance community dialogue around housing and associated city-building through Plan’s engagement and scenario planning processes 2. City Council should, through its participation in the Planning Advisory Committee, advise City staff and consultants on Council housing priorities. It should be noted that the current CDNR has two members on the plan’s PAC. Pre-Approved Building Plans 1. The City should adopt the 802 Homes package and create marketing material and incentives to encourage the plans’ use. 2. The City should explore the creation of a Burlington-specific Pre-Approved ADU program based on successful models from across the country. City-Owned Land and Priority Parcel Audit 1. Assess and analyze all city parcels for development feasibility, including those that represent opportunities for Neighborhood Code-scale housing. 2. Reform development procurement processes to ensure consistency with community values and high-quality, livable neighborhoods. CDO Amendments 1. Reform Inclusionary Zoning standards and associated Housing Trust Fund policies to help finance the construction of affordable Neighborhood Code units Continued Collaborative Work Page 17 of 52  1. Advance the BH9 portfolio of housing strategies 2. Advance CCRPC and AARP-funding Infill Housing Campaigns Act 181 1. Pursue Tier 1A status for all eligible areas 2. Encourage continued Act 181 reform to create greater flexibility in sunsetting existing Act 250 permits Permit Data Analysis 1. Institute rigorous and regular permit data analysis to better understand project timelines and failure points 2. Engage project applicants after withdrawal and/or permit approval to understand why projects are not constructed and how regulations and procedures can be improved. Page 18 of 52  Planning Commission Update: Existing Conditions Assessment + Community Open House 2026.04.14 Page 19 of 52 planBTV 2050 is a new effort by the City of Burlington to develop four coordinated plans that will guide how Burlington evolves and adapts over the next 25 years. The Municipal Plan, A transportation plan, or comprehensive plan or planBTV Mobility A Parks, Recreation, and A comprehensive Economic Waterfront plan Development plan Page 20 of 52  Burlington’s residents belong to many different communities… Source: 2024 ACS 5-Year Estimates Page 21 of 52 Though the population is predominantly white, the city is home to very diverse immigrant and New American communities - Nepali, Somali, Swahili, Congolese, Karen, Burundi, Vietnamese, and Arabic speaking communities. Source: 2024 ACS 5-Year Estimates Page 22 of 52  Burlington’s population is aging, but college students and young professionals make up a large part of the community. Meanwhile, the City is losing younger families who struggle to find housing Source: 2024 ACS 5-Year Estimates Page 23 of 52 While the City’s population has grown steadily since 2000, that trend has slowed and even reversed recently. Page 24 of 52  The breakdown of household income has changed significantly, with an increase in households earning over $100,000 and a decrease in households earning less than $50,000. The number of households earning $200,000 or more per year increased by 308% in the past 10 years… That’s +1,446 households! This may reflect out-of-state residents with higher-wage remote jobs moving into Burlington. Source: 2024 ACS 5-Year Estimates Page 25 of 52  Over the last 10 years, the median sale price for a home has nearly doubled; average rent increased about 40% in 5 years. The median home price is unaffordable to 64% of Burlington households. Source: (Left) Zillow and Allen, Brooks & Minor, (Right) City Property Database Page 26 of 52  Many jobs that provide essential services do not pay enough to afford a home within the City of Burlington. Source: Bureau of Labor Statistics, Occupational Employment and Wage Statistics for Burlington/South Burlington MSA (May 2024 ) Page 27 of 52 Hospitality and retail sectors play a key role in the local economy for employing residents and attracting visitors. Combined, it is the second largest sector after education and healthcare. 54% of all businesses in the city are retail and food- related Page 28 of 52 Hospitality and retail sectors play a key role in the local economy for employing residents and attracting visitors. Combined, it is the second largest sector after education and healthcare. Page 29 of 52  Burlington has a higher percentage of cost-burdened households than the county and state, but the student population may be skewing these numbers. The City’s car-dependent development pattern further strains household budgets. After housing and transportation costs, there is often little left over for basic necessities including food, medicine, and childcare. Source: 2024 ACS 5-Year Estimates Page 30 of 52  New legislation requires that the Municipal Plan address the State’s housing target of adding approximately 2,000 new units by 2030 and nearly 7,000 new units in Burlington by 2050. The City’s total housing unit count must increase by at least 38% over the next 25 years. That will require a 400% increase in the pace of development over the last 25 years. Since 2000, Burlington has averaged 77 units per year, but that number has grown to 145 units per year in the last decade. To meet the State’s target, the City would need to increase the pace of development to 280 units per year! GRAPHIC IN PROGRESS Source: OpenGov (City Permit System) Page 31 of 52 The upcoming SECORD development will provide over 1,000 units, but in order to meet the State’s housing goals, planBTV 2050 will need to identify additional areas for growth. Page 32 of 52 Source: HULAlakeside.com Transportation investments and housing & jobs growth go hand-in-hand. New developments must be sited where there are transportation options, or integrated transportation options. The SECORD development project is integrating transportation options into the development approach Page 33 of 52 However, open space and natural beauty are vital to the City’s livability, ecology, and climate resilience. planBTV 2050 must show that growth and ecology are mutually supportive and align with the goals of the City’s new Open Space Plan. Page 34 of 52 planBTV 2050 will also evaluate what types of housing are being built in Burlington, and how that meets community needs. There is a mismatch between the smaller size of units that are being created and the size of units needed within certain communities. For instance, New American families tend to be larger and multigenerational, requiring more bedrooms… Burlington’s foreign-born population has been declining since 2018, a potential indication of the lack of affordable and available appropriately-sized housing units within the city. Page 35 of 52 Property taxes and sales taxes contribute a large share of funding to the City budget. Growing the local economy and maintaining the value of commercial real estate is one of the ways to increase revenue for the city. 65% of the budget is funded by property taxes 45% of the city is tax exempt property 68% of city property value is R1 land GRAPHIC IN PROGRESS use Page 36 of 52  Amidst the national housing crisis and opioid crisis, Burlington has experienced a dramatic increase in the number of drug-related incidents since the pandemic, reflecting national trends. Similarly, the unhoused population has grown both in the State and County, which has changed the day-to-day experience Downtown and in some City parks and open spaces. Source: Burlington Police Department, Housing & Homelessness Alliance of Vermont (HHAV) Page 37 of 52 Many social services and resources are located in Burlington, where the impact of this change has been felt most acutely. GRAPHIC IN PROGRESS However, Burlington cannot tackle and solve this problem alone. The City needs both regional and State support to adequately address these issues. Page 38 of 52 Bigger Questions: How can the City be intentional about creating overlapping systems (e.g., housing / livability / mobility / economic development) to allow essential service laborers to live in BTV? In planning for housing and community change, how should we balance current housing needs (which show general need for small units but also need for larger units among certain populations) and long-term vision for BTV as a place for all households, families included? Page 39 of 52 Page 40 of 52 How do we not just sustain Burlington’s economy but grow it? This will require strategies for livable wage jobs, space for businesses, and activities and programming to attract more local and out-of-town visitors to the city throughout the year. Page 41 of 52 Bigger Question: There is economic momentum in the South End and community interests in greater economic activity in all parts of the City. How should we balance continued prominence of Downtown in the City’s economy while allowing for geographic diversification? Page 42 of 52 Page 43 of 52 How does BPRW chart a sustainable and inspiring course for the future, serving the needs of a growing, diversifying city for years to come? This will require balancing investments in overdue maintenance, one-of-a-kind destinations, neighborhood & community parks, and community programming... Page 44 of 52 Bigger Questions: How does Burlington prioritize public access to the lake/waterfront while continuing to be a revenue-generating stream for the City? How does Burlington continue to serve the community within its current capacity, and as Burlington grows? What are the community’s priorities when it comes to programming, events and level of service? Page 45 of 52 Page 46 of 52 Burlington’s transportation system is at a fork in the road - a true multimodal system will require dedicated investment in inclusive, safe transportation options. Past Plans Looming Challenges Safety Action Plans Climate Action Plans Housing Affordability Transportation Options Climate Studies Safety Walk/Bike Plans Funding Uncertainty Neighborhood Plans Page 47 of 52 Bigger Questions: How do we balance attention to day-to-day issues (e.g., frustrations with parking) with the need for a multi-modal future? How do we balance trade-offs in our use of public street space? What transportation issues will be top of mind when we ask Burlingtonians about their transportation concerns/vision? Page 48 of 52 Open House Overview Thursday, April 30 from 3:30 - 8:00pm at Main Street Landing (1 Main Street), upper level, with possible use of lower level & patio if weather permits Communications Save the Date last week (social media, City newsletters) More invites this week (socials, email content, posters) Yard Signs, Sandwich Boards & Banners Please share with your networks! Page 49 of 52 Sketch of Activities Q: what questions are most important to ask? 1. Sign-in, Sign-Up 2. Where Are You Coming From? (local, global) Warm-ups: who is in the room? 3. How Long Have You Lived in Burlington? 4. Orientation Station Background: why are we here? 5. Looping Presentation 6. Survey Station 7. Giant Collaborative Map Starting Point: Burlington 8. Postcards from Future Vision Statements today and high-level visioning 9. Podcast Booth 10. Municipal Plan 11. Mobility Element Specific: 12. Economic Development A chance to ask specific questions 13. Parks, Recreation & Waterfront 14. Trade-offs Budgeting Exercise Bringing It Back Together 15. Spin Wheel / Big Idea Speech Bubble Fun for Kids! Page 50 of 52 Municipal Plan Content and Questions Background: • Municipal Plan, housing targets • Recent planning and engagement – progress + feedback Data: • Demographic trends, housing development, affordability Activities: • Housing types – what is in BTV today, what is missing? Where are there opportunities for growth? How do different housing types meet different community needs? • Neighborhoods – what is missing in your neighborhood that you would like to have nearby? What makes a neighborhood complete, besides housing? What do neighborhoods need as more housing is added? Page 51 of 52 Page 52 of 52