East Norwalk Neighborhood TOD Plan Prepared for the City of Norwalk Prepared by Harriman | NV5 | RKG Draft Report: April 2020 Last Updated: 06.16.2020
1 Acknowledgments
City of Norwalk Planning Team
Mayor Harriman Harry Rilling Lead - Urban Planning and Design
NV5 Planning Department Subconsultant - Transportation and Infrastructure Steven Kleppin, Planning and Zoning Director RKG Subconsultant - Market Analysis Oversight Committee Brian Baxendale, Planning Commission Deb Goldstein, Zoning Commission / Third Taxing District until 11/19 Diane Cece, East Norwalk Neighborhood Association (ENNA) Pam Parkington, Third Taxing District as of 11/19. Stephanie Thomas, Zoning Commission John Kydes, Common Council Judith Dominguez, East Norwalk Business Association (ENBA) Vanessa Valadares, Department of Public Works
2 Contents
EXECUTIVE SUMMARY EAST NORWALK TOD PLAN: RECOMMENDATIONS 7 INTRODUCTION 1 Economic Development 7.1 Land Use and Urban Design 7.2 VISION AND GOALS 2 Multi-modal Connectivity and Access 7.3 7.4 PLANNING CONTEXT Parking 3 Open Space and Recreation 7.5 COMMUNITY ENGAGEMENT Utilities and Infrastructure 7.6 4 Implementation 7.7 March Visioning Workshop 4.1 July Choices Workshop 4.2 November Open House 4.3 Online Surveys 4.4 Stakeholder Interviews 4.5 EXISTING CONDITIONS ANALYSIS 5 APPENDICES Land Use and Current Projects 5.1 Market Analysis - RKG A Existing Zoning 5.2 Transportation Analysis -NV5 B Parcel Sizes 5.3 Community Engagement - Harriman C Property Ownership 5.4 Recommended Zoning - Harriman D Circulation and Access 5.5 Design Guidelines - Harriman E Sanitation, Stormwater, Flooding, and Utilities 5.6 Sea Level Rise 5.7 Market Analysis 5.8 SUSCEPTIBILITY TO CHANGE ANALYSIS 6
3 East Norwalk Neighborhood TOD Plan
Plan Purpose and Process Plan Inquiries and Intent The purpose of the Plan is to develop East Norwalk is a complex study area due to the existing a vision and path for the future of road constraints, the established and stable neighborhoods the East Norwalk Neighborhood surrounding the station, some thriving businesses in the area, based on its proximity to the disjointed land uses, the area being a gateway to the Sound commuter train station. The City and the existing traffic concerns. As indicated in the Request recognized the opportunities for Proposals for this effort, the City sought answers to the as well as the challenges this following questions: neighborhood faced and was aware 1. What is the vision for this area? of community concerns regarding the proliferation of new apartments 2. What are the infrastructure (roadways, sanitation, energy, leading to increased density and etc.) possibilities and limitations in this area? traffic challenges. In response, the 3. How will planned roadway improvements and the eventual City initiated this transit oriented replacement of both the East Avenue Bridge and Walk development (TOD) planning study Bridge affect the area and potential for redevelopment? in conjunction with Harriman. The plan was developed with input by 4. What are the employment numbers and types of an appointed Oversight Committee, businesses within the Industrial One and other zones and comprised of City staff and residents what impacts would regulation changes have on these who represented government, the businesses? business community, and residents Based upon the data and conclusions reached from the initial at large. Over the course of 16 phase of this plan, the planning team addressed the following months the oversight committee additional questions and issues: held numerous meetings to discuss plan progress and direction. Three 1. What should be the bounds of the TOD area? public meetings were held to gather 2. What are the impediments to realizing the vision from ideas and input about the plan the standpoint of economy, mobility, environment, and from the community. The public implementation? meetings and meetings with the oversight committee, as well as 3. What is the appropriate mix of uses for this area? the data gathered and analysed 4. How can we leverage the existing assets in the area? by the planning team lead to the creation of this plan. It is the intent 5. What’s the appropriate density and massing of the TOD of this plan to be incorporated into area? the Citywide Plan and serve as the 6. Establishment of building and streetscape design overarching planning guide for the guidelines for the TOD area. study area. 7. Recommended zoning regulations for the area.
4 Executive Summary
Figure 1: INTRODUCTION TO EAST NORWALK TOD
East Avenue
Strawberry Hill Avenue
Winfield Street Fort Point Street
Van Zant Street Gregory Blvd.
Seaview Avenue 1st Street
Plan Area East Avenue, which is the main desires. corridor connecting I-95 to The areas surrounding East Avenue The East Norwalk station provides East Norwalk is comprised of and the other core streets (Fitch, commuter railroad service to New disjointed development and non- Fort Point, Van Zant and Winfield) York and New Haven on the Metro complimentary uses, and uninspired boast vibrant, well established North rail lines, with over 700 site design and architecture, neighborhoods with key nodes like boardings occurring each weekday resulting in an unfriendly pedestrian the Cove Avenue area. These nodes (based on 2017 data), which is low experience. The pedestrian realm also provide access to idyllic public compared to similar stations. As is further hindered by poorly spaces such as Vets Park and Calf part of the Walk Bridge construction maintained, obstructed, and in Pasture Beach. This plan seeks program, the East Avenue rail bridge some places non-existent sidewalks to improve connectivity from the is scheduled to be rebuilt beginning and a lack of crosswalks. An neighborhoods to the commercial in 2021. As part of that project, industrial district runs west to east and recreational areas so they can the roadway will be lowered and in proximity to the train station. be safely accessed by pedestrians widened, which should ease some of The City has seen increased interest and cyclists. the current traffic bottlenecks that in small warehouse and industrial occur. In addition, a new, elongated, space in this area and should seek to The draft plan provides a roadmap station platform is planned as part of capitalize on this growth. The main for correcting many of these issues the Walk Bridge Program. This project corridors currently have disjointed and new incentives to revitalize is intended to increase ridership by zoning districts and numerous these areas. allowing ten train cars at a time to instances of nonconforming uses. drop off and pick up passengers in This results in land uses that prevent both directions and increase parking the vibrant, walkable area the public and ADA accessibility at the station. 5 East Norwalk Neighborhood TOD Plan
TOP 10 ACTION ITEMS
CREATE A NEW VILLAGE REZONE TO A NEW CREATE A PROMENADE DISTRICT: East Norwalk LIBERTY SQUARE ALONG SEAVIEW AVENUE: 1 TOD Village Zone (EVTZ). 4 VILLAGE DISTRICT: A 8 Connect the Cove Avenue ▶ Add 1 story and a separate in-house planning area to SoNo. The area moderate increase in exercise should be done can be used for multi- density. for this area, once the purpose recreational and Walk Bridge project is entertainment options. ▶ Requires ground floor complete and additional REZONE TO A NEW activation/commercial parcels are available for COVE AVENUE VILLAGE use. redevelopment. This has DISTRICT: A separate in- been considered in the past ▶ Required public 9 house planning exercise and is consistent with the amenities. should be done for this area. Citywide Plan. ▶ All development must This has been considered in adhere to design REZONE FROM the past and is consistent guidelines. COMMERCIAL TO with the Citywide Plan. RESIDENTIAL: Rezone AREA-WIDE ACTIONS: FACADE IMPROVEMENT: 5 to encourage a more The following actions are Explore the possibility of consistent development recommended throughout enacting a program in the pattern and concentrate 2 the TOD Study Area (not areas of Charles Street & growth near the train 10 mapped): Osborne Avenue, north of station and main corridor. Fort Point Street, similar to ▶ Improve connectivity the program employed in ALLOW RESIDENTIAL within the study area SoNo. This area functions UNITS ABOVE GROUND by completing sidewalk Within the as de-facto affordable 6 FLOOR: links and connecting Industrial-1 Zone, allow housing and should be bike routes. preserved. some residential units above the ground floor ▶ Increased green space RELOCATE THE DPW commercial uses, provided and public amenities GARAGE: Study options the commercial uses throughout the area. 3 to move the garage to remain, to enable property elsewhere in the city. If ▶ Explore job-generating owners to monetize their incentives such as TIFs possible, master-plan the properties. site for future uses such as or BIDs. marine commercial or open REZONE TO THE NEW ▶ Respect and preserve space. EVTZ: Undertake street and the character of the 7 sidewalk improvements surrounding residential on Gregory Blvd. in order neighborhoods. to improve safety for all modes of transit.
6 Executive Summary
Figure 2: TOP 10 ACTION ITEMS
1/2-mile / 10-minute walk radius 1/4-mile /
East Avenue 5-minute walk radius 5
Strawberry Hill Ave. 1
6 2 5 3 St. (Rte. 136) Winfield Plan Goals Enhance Quality of Life 7 Foster Community Stewardship Balance Growth Van Zant St. (Rte. 136) and Neighborhood 5 Character 4 Gregory Boulevard 5 E n h a n c e Neighborhood 8 Identity Coordinate with other Plans and Projects 8 Improve Multimodal Accessibility and Connectivity
7 Introduction
The East Norwalk Neighborhood amenities. East Norwalk envelopes Recent Projects Transit Oriented Development Plan many sub-neighborhoods with (The Plan) is the product of many distinct qualities and characteristics Several recent development voices: homeowners, home-renters, ranging from thriving commercial projects in East Norwalk acted as a business owners, commuters, dog- nodes to strong, healthy residential catalyst for this planning process. walkers, joggers, bicyclists, and neighborhoods. A resurgence of development many more who all call East Norwalk activity throughout Norwalk has home. The public engagement raised fears among East Norwalk process encouraged these voices Challenges community members about what to share their experiences and their accelerating change might mean for With this unique set of amenities; their neighborhoods and way of life. aspirations for their neighborhood, however, comes a unique set identifying opportunities for East Specific projects within East Norwalk of challenges. East Avenue and include the Spinnaker Development Norwalk to enhance its social, Gregory Blvd. experience high traffic economic, and environmental assets and the Walk Bridge Program. demand due to their proximity to The Spinnaker Development is an while addressing many challenges the interstate. Together they serve facing the community. adaptive reuse of the structure as the primary route to and from at 230 East Avenue. The current East Norwalk is an area suitable Calf Pasture Beach. Additionally, proposal for the existing five-story for transit-oriented development the four gas stations surrounding structure includes 189 residential because of the central location of East Norwalk Station attract many units and retail, restaurant, café, and the East Norwalk Train Station, its trucks which cause further back-ups offices. The building will sit on top of desirability as a place to live, the and delays. Community members a sub-grade parking garage with 311 number of recent projects in the have expressed great frustration spaces and a public courtyard on the area, both public and private, and at the congestion caused by these roof deck just above grade. The Walk the challenges in this area pertaining conditions. Other traffic-related Bridge program consists of several to traffic and parking. challenges include speeding on infrastructure projects throughout Gregory Blvd. and Strawberry Norwalk that aim to increase safety, Hill Avenue, limited parking and reliability, and ease of travel as Qualities of East Norwalk parking enforcement near the part of a larger effort to enhance train station, and substandard East Norwalk offers an enticing Norwalk’s railroad transportation pedestrian amenities which require quality of life, particularly for families infrastructure, and improve local improvement. Non-traffic related and commuters. With convenient roads and sidewalks. One of the Walk challenges include a desire to guide access to Highway I-95 and regional Bridge projects involves lowering new development to ensure that it rail service to New York City, the East Avenue to allow trucks to aligns with and/or enhances existing study area provides a wide range of pass below the railroad bridge that neighborhood character and accessibility and transit options. The crosses it. There is a neighborhood improves access to existing open community’s coastal New England concern that this may lead to spaces. charm and robust network of open increased truck traffic. spaces offers a unique range of
8 1
Figure 3: STUDY AREA
1/2-mile / 10-minute walk radius Saint Thomas Catholic Church 1/4-mile /
East Avenue 5-minute walk radius
Strawberry Hill Ave. East Norwalk Train Station Rite Aid
St. Thomas Family Center Winfield St. (Rte. 136) East Norwalk Historical Cemetery
Van Zant St. (Rte. 136)
East Norwalk Library Gregory Boulevard
230 East Ave. Development MILL POND NORWALK RIVER
Wells Fargo Bank
Veteran’s Memorial Park
The East Norwalk TOD Study Area is within a 1/2-mile radius of the train station.
9 Purpose of the Neighborhood Planning Process conditions in East Norwalk, the TOD Plan most vital data came from the The City of Norwalk began the public via participation in the three The purpose of the Plan is to develop planning process for this Plan with public workshops facilitated by the a vision and path for the future of the an awareness of the neighborhood’s planning team and via an online East Norwalk Neighborhood based susceptibility to change and a survey. Together, the planning team, on its proximity to the commuter desire to understand and address the City, the Oversight Committee, train station. This purpose was community concerns. The City and the public worked together to divided into several smaller goals as issued a Request for Proposals and develop this Plan. The TOD Plan follows: through this selection process chose provides a community-driven vision a planning team led by Harriman. ▶ Understand the existing for the future of East Norwalk, and As part of a holistic approach to conditions in East Norwalk and a path to implement the actions understanding the opportunities the impacts of those conditions needed to achieve this vision. and challenges in East Norwalk, on future options. the Harriman team included RKG ▶ Engage community members, Associates, to conduct a market business-owners, and analysis, and NV5 to conduct a stakeholders to elicit critical transportation analysis. insight for the development of a The City assembled a committee community driven vision for the consisting of critical stakeholders future of East Norwalk. to oversee the planning process. ▶ Develop a path to achieve the The planning team met with the community vision. committee at regular intervals to ▶ Provide tools to the City to achieve receive feedback on progress to- successful implementation of date as well as vital input on the next the recommendations of this steps in the process. Plan. While the planning team conducted rigorous analysis of the existing
10 Figure 4: CONTEXT 1-mile radius 1/2-mile radius (The Study Area) 1/4-mile radius
NORWALK
WESTPORT
East Ave
Westport Station
Taylor Farm Park
East Norwalk Station Shady Beach Park
Norwalk Cove Marina
South Norwalk Station
Calf Pasture Beach
To New York City
Context map of the East Norwalk TOD Study Area.
11 What’s in this Plan? This Plan is organized into the following sections:
1. Introduction 5. Existing Conditions Analysis: This section provides an in-depth 7. The East Norwalk This section 2. Vision and Goals: analysis of the existing conditions Neighborhood TOD articulates the community’s in East Norwalk including land Plan: This section vision for Transit Oriented use and current projects, zoning, provides the analyses Development in East Norwalk parcel sizes, property ownership and recommendations and describes the goals identified patterns, circulation and made for Transit Oriented through this planning process. access, infrastructure (including Development in East These goals define the broad sanitation, stormwater, flooding, Norwalk. It addresses vision for the neighborhood, and utilities), sea level rise, and Economic Development, given the planning context and an overview of the findings from Land Use and Urban the needs of the community. the market analysis. Design, Bike and Pedestrian 3. Planning Context: This section Connectivity, Parking, Open 6. Susceptibility to Change will address how this Plan Space and Recreation, Analysis: This section identifies fits in with other concurrent Circulation and Access, and which parcels are highly planning and development Utilities and Infrastructure. likely, likely, or not likely to be processes currently underway in The end of this section redeveloped in the near future Norwalk, providing an overview includes a table outlining the based on the analyses of existing of these plans and studies and recommendations, timeline conditions and projections of highlighting the elements that for action, and responsible potential options. intersect with this Plan. parties. 4. Community Engagement: This section will describe the methods of community engagement used 8. Appendices: This report contains summaries of methods and to gather feedback and input findings extracted from separate detailed studies. The full in- and offers an analysis of the depth analysis for each of these studies are included in the results. The engagement process following appendices: included public workshops, A: Market Analysis online surveys, and stakeholder interviews. The full write-up of B: Transportation Analysis the community engagement C: Community Engagement process and results can be found in Appendix C. D: Recommended Zoning E: Design Guidelines
12 Figure 5: VETERAN’S MEMORIAL PARK
Photo taken at Veteran’s Memorial Park on 3/12/2020.
13 Vision and Goals
A well-written vision provides a clear understanding of the future as defined by the many voices VISION who participated in the process. The statements below define East Norwalk is a neighborhood with a high quality the community’s goals for the of life for all, supporting existing residents and enhancements to their neighborhood that could be implemented by the businesses, and attracting new ones. Rehabilitation recommendations of this Plan. and new development support public amenities The following statement of the vision and ground floor uses that enhance the pedestrian and supporting goals was developed from public input throughout the environment, connecting housing to goods and planning process with direction services, and multimodal (pedestrian, bicycle, and refinement provided by City planning staff and the Oversight vehicular, and rail) transport. Planning processes and Committee. This vision captures decisions include many community voices and focus the collective aspirations of East Norwalk community members as on enhancing the overall neighborhood as a maritime they look towards the future of this community with a series of village clusters. neighborhood.
14 2
Figure 6: EAST NORWALK TRAIN STATION
Photo taken at East Norwalk Train Station on 3/12/2020.
15 GOALS
Enhance Quality of Foster Community Balance Growth Life Stewardship and Neighborhood Character Enhance the quality of life Foster community agency for everyone, including and stewardship in East Promote beneficial residents, visitors, Norwalk by delivering economic growth that business owners, and a plan based on public serves to enhance East property owners. engagement and input. Norwalk’s neighborhood identity and public amenities. East Norwalk should remain an Community engagement for this affordable place to live and work Plan is about more than just the with convenient regional and process. The goal is to develop Transit Oriented Development local multi-modal transportation continued involvement and promotes added density and options, a diverse housing stock, investment from community mixed-use development near access to good jobs, a vibrant members to advocate for the transit nodes, such as the East public realm, a well-connected changes they want to see and Norwalk Train Station. TOD network of open space and feel ownership of the vibrant can improve access to jobs recreation areas, and thriving environment they helped to via public transit, diversify the commercial nodes. create. Bringing stakeholders housing stock and increase together early in the process affordable housing, and ensures a result that benefits promote a more walkable and the entire community and sets bikeable pedestrian realm. the groundwork for continued These outcomes could benefit collaboration and successful the entire City of Norwalk implementation. economically, socially, and environmentally, but must be balanced and aligned with the East Norwalk neighborhood’s unique identity as a small coastal village within the city.
16 Enhance Coordinate with other Improve Multimodal Neighborhood Plans and Projects Accessibility and Identity Connectivity Coordinate efforts with Preserve and enhance the other planning initiatives, Balance public health characteristics that give studies, and projects and safety needs East Norwalk its unique to ensure a clear and with convenience and identity as a small coastal cohesive vision for the reliability of pedestrian, New England community. implementation of this bicycle, transit, and plan. roadway infrastructure. East Norwalk is a primarily residential neighborhood Infrastructure improvements The East Norwalk community prominently located along Long like the Walk-Bridge program, is bustling with an active Island Sound. When asked to East Avenue upgrade, East population of pedestrians, characterize East Norwalk, Norwalk Station improvements, bicyclists, motorists, and transit- many community members use and planned development users. Accessible transportation phrases like “coastal village,” projects like 230 East Avenue options are major contributors to “New England charm,” “small- will likely be catalytic in spurring the high desirability and quality town feel,” or “quiet community.” further changes in East Norwalk. of life in East Norwalk. The City Transit Oriented Development It is important for the City to must enhance this accessibility in East Norwalk should be coordinate and prioritize current and connectivity for all modes implemented in a way which and future efforts to deliver a of transportation so that East reinforces, rather than degrades clear path toward implementing Norwalk community members this identity. a cohesive vision for the city. and visitors alike can easily plan multi-modal trips whether it’s to run daily errands or make a special visit to one of the many amenities East Norwalk has to offer.
17 Planning Context
The recommendations of this Norwalk Environment, Sustainability, and Plan are based on a broad Citywide Resilience range of information sources Plan/Plan of Parks, Open Space, Trail, and and data and will support Conservation Recreation Systems and enhance previous and and concurrent planning Development ▶ Give priority to completing the efforts, while also informing (POCD): 2019 Norwalk River Valley Trail. future efforts. While the – 2029 ▶ Identify more opportunities to planning process included provide public access to water, new research, analysis, and including streams, the Norwalk community engagement, the The Citywide Plan is an update to River and coastline. planning team also looked the 2008 Plan of Conservation and closely at the findings from Development. This plan, which ▶ Identify potential park other relevant plans and was adopted on December 5, 2019, opportunities in areas of the city studies so as not to repeat or provides a comprehensive vision for underserved by parks so that all contradict what has already all aspects of life in Norwalk over residents can walk or bike to a been accomplished. the next 10 years. The East Norwalk park. Neighborhood TOD Plan addresses Sustainability and the Norwalk many of the same topics within the environment While this plan focused on specific context of East Norwalk and a small area surrounding supports the overarching priorities ▶ Use green infrastructure and the East Norwalk Train for the whole city. The following low-impact development to Station, many of the findings goals from the Citywide Plan are improve water quality and and recommendations are especially relevant to East Norwalk mitigate flooding. applicable to the larger and reflected in this plan: ▶ Continue to maintain and context surrounding the Living and Working in Norwalk increase the shade tree canopy. study area. East Norwalk has its own unique identity Housing Choice and Healthy City Systems within the City of Norwalk Lifestyles Transportation and Mobility and is integral to the ▶ Maintain the overall character Networks vibrancy of the city. The of established single-family ▶ Adopt multi-modal level of community-driven vision of neighborhoods. this Plan has the potential service to measure street to inform and direct future ▶ Promote diverse housing types performance. plans and studies for both in the urban core, at transit- ▶ Make land use decisions this neighborhood and city- oriented locations, and at mixed- that support walking, wide. use clusters on major corridors, bicycling, and transit use. and in village districts where appropriate.
18 3
▶ Explore innovative ways to moved underground, improving than forcing them onto narrow improve transit service, such as the aesthetic quality of the built residential side streets to get consolidating shuttle services or environment. around. At the same time, the flexible route service. road will be widened, which will ▶ Walk Bridge Replacement: The provide much needed relief from ▶ Implement access management bridge that carries the railroad the bottleneck condition that is in major corridors. Expand tracks across the river, known currently caused by the two-way/ pedestrian and bike networks. as Walk Bridge, will be replaced single-lane configuration. New with a durable 240’ Vertical Lift ▶ Right-size parking. sidewalks will also be added to Bridge. This will help maintain both sides of the road, improving The Future City Norwalk River navigation and pedestrian connectivity and improve the dependability of rail Future Land Use, Urban Design, and safety. Zoning service for commuters. ▶ Re-write and modernize the ▶ Fort Point Street Bridge zoning ordinances with best Replacement and Roadway Norwalk Pedestrian and practices and user-friendliness. Realignment: The railroad Bikeway bridge that crosses Fort Point Transportation Street will also be replaced and Plan (2012) Norwalk in the process Fort Point Street Walk Bridge will be realigned with South Program Smith Street, improving safety The Norwalk (2019 - and visibility for drivers and Pedestrian & ongoing) pedestrians. Bikeway Transportation Plan recommends improvements for ▶ Osborne Avenue Replacement pedestrian and bicycle infrastructure and Bridge Rehabilitation: This in support of the City’s overarching project will replace the railroad transportation and mobility goals. bridge that crosses Osborne The document covers tools for Avenue as well as repair the improvements, design concepts for The Walk Bridge Program is an substructure. ongoing project being implemented prioritized corridors, the Norwalk by the Connecticut Department ▶ East Avenue Bridge Replacement River Valley Trail Improvements, of Transportation (CTDOT). There and Roadway Improvement: This implementation, design are 6 projects under the umbrella project will likely have the most guidelines and non-infrastructural of this program, 4 of which will significant impact on improving recommendations such as have significant positive impacts traffic conditions in East Norwalk. educational outreach programs. improving safety and mobility This will be the fourth and final Strawberry Hill Avenue and Winfield for pedestrians and motorists bridge replacement. The new Street within the TOD Study Area alike in East Norwalk. During bridge will be taller, allowing were prioritized as Tier 1 corridors. this construction, utilities will be trucks to pass underneath rather Tier 2 corridors within the Study Area
19 are Gregory Blvd., Seaview Avenue, ramps, sidewalks and footpaths, Norwalk Transportation and East Avenue. This plan is well curb extensions, pedestrian Management Plan (2012) underway to implementation. The refuge islands, sharrows, bicycle following upgrades have recently lanes, bike boxes, bike pockets, been made or are about to be multi-use paths, bicycle racks, The Norwalk made to these corridors. This Plan lane reduction, and wayfinding. Transportation elaborates on next steps for further Management improvements to enhance overall Plan provides a connectivity and safety based on Norwalk River Valley Trail broad framework community feedback on the success (Began with 1979 Norwalk for incorporating of these measures so far. River Masterplan Study, multi-modal elements and context-sensitive Tier 1 Corridors ongoing) design practices in the City of ▶ Strawberry Hill Avenue: Norwalk. The plan identifies specific Sharrows were added within areas for improvement as well as the Study Area. Dedicated bike The Norwalk broader recommendations which lanes, sidewalk improvements, River Valley Trail address a range of multi-modal crosswalk improvements, and is a regional effort transportation needs. The Plan is wayfinding signage have been dating back to an extensive document with the implemented along this corridor a concept that aim of moving Norwalk towards a north of the TOD Study Area. emerged from broad, sustainable, multi-modal ▶ Winfield Street: The redesign the 1979 Norwalk transportation system. This means for Winfield Street includes River Masterplan Study for a creating safe and convenient the following: sharrows in continuous multi-modal trail. The mobility options for all community both directions; sidewalk first segment of the Harbor Loop members and visitors including improvements on one side at portion of the trail was built in 1981 pedestrians, bicyclists, transit each end; wayfinding signage at Oysterbend Condominiums and users, emergency service operators, and crosswalk improvements at has been continually extended and automobile drivers, and commercial the intersections of East Avenue enhanced ever since. The trail, which vehicle operators. In addition to and Strawberry Hill Avenue; will ultimately connect from Calf recommending design guidelines, and additional crosswalk Pasture Beach in Norwalk, to Rogers policies, and strategies to address improvements at the Gregory Park in Danbury, passing through future transportation challenges, Blvd. intersection. Wilton, Ridgefield, and Redding, is the Transportation Management handicap-accessible and provides Plan identified locations for Tier 2 Corridors recreation opportunities for walkers, “demonstration projects” that ▶ Gregory Blvd., Seaview Avenue, hikers, bicyclists, children, and pets. the City could prioritize to set an and East Avenue: These corridors The trail is widely popular and well- example for best practices and act as are recommended for further supported by the communities. catalysts for the implementation of study to implement the tools Almost all other plans and studies similar upgrades elsewhere. Within recommended in the Pedestrian relating to Norwalk contain some the TOD Study Area, East Avenue and Bikeway Transportation Plan language supporting the trail and and Strawberry Hill Avenue were following the completion of Tier its continued implementation, as it both selected as demonstration 1 corridor projects. These tools offers numerous benefits as social locations, but were not extensively include marked crosswalks, infrastructure and an economic redesigned as part of this plan given crosswalk signage, pedestrian driver. that other efforts were already actuated crossing signals, curb underway to make improvements to
20 these corridors as part of the Walk East Norwalk The Norwalk Bridge Program and the Pedestrian Master Plan Harbor and Bikeway Transportation Plan. Recommendations Management Plan (2004) (Approved 1989; Effective 1990; City of Norwalk Plan Amended 1993, of Conservation and 1998, 2009) Development (2008) The East Norwalk Master Plan Recommendations were the result The Norwalk Harbor Management of an effort led by the East Norwalk Plan guides regulations and uses Neighborhood Association to around Norwalk’s waterfront in The City of guide the discussion of the East respect to ecological, cultural, and Norwalk Plan of Norwalk 2008 Plan of Conservation economic considerations. The Plan Conservation and Development (“Master Plan”). provides 13 goals and objectives for a n d The document extensively lists Norwalk’s Harbor. Goals 9-11 are Development recommendations for the Master particularly relevant to East Norwalk (POCD) is an Plan primarily based on community and are picked up and reflected in update to the input. It addresses public policy this TOD report. previous POCD and approach to planning, people/ planning effort (1990) as required community and housing, historic ▶ Goal 9: Preservation of Maritime per the Connecticut General assets, infrastructure, public Heritage and City Character Statutes. The City of Norwalk Plan buildings, land use and zoning, ▶ Goal 10: Public Access to Norwalk of Conservation and Development environmental hazards and pollution, Harbor aims to preserve Norwalk’s natural parks and waterways, urban design resources and coastal identity while and development, and roads and ▶ Goal 11: Preservation of providing opportunities for the city to parking. The recommendations Quality of Life in Shorefront grow responsibly and prosperously, emphasize the importance of broad- Neighborhoods. values which are reflected in the reaching community engagement East Norwalk TOD Plan. The POCD throughout the planning process to was updated again in 2019 as “The achieve a bottom-up/community- Citywide Plan.” driven plan. This study provides a comprehensive look at residents’ perspectives toward any future planning efforts in East Norwalk.
21 Figure 7: TIME-LINEOF PLANS AND STUDIES
2004 ENNA Recommendations informed the 2008 POCD, which in turn informed the 2019 Citywide Plan
2012-Present: A focus on multi-modal connectivity
The Norwalk Transportation Management Plan The Norwalk Harbor The East Norwalk The City of Norwalk Management Plan Neighborhood Plan of Conservation 2012 Approved 1989 Association (ENNA) and Development Master Plan 2008 Effective 1990 Recommendations Amended 1993; 1998; 2004 2009
1990 1995 2000 2005 2010
22 Norwalk River Valley Transit-Oriented Trail (NRVT) Development Toolkit for CT
The Norwalk Pedestrian and Bikeway Transportation Plan The Norwalk Walk The Norwalk 2012 Bridge Program Citywide Plan The East Norwalk Neighborhood TOD 2019; On-going 2019-2029 Plan 2020
2010 2015 2020 2025 2030
23 Community Engagement
4.1 March Visioning Committee included representatives The planning team reviewed from the Planning Commission, feedback from the community Workshop the Zoning Commission, the Third process with the City Planning Taxing District, the Finance and Department and the Oversight 4.2 July Choices Claims Committee, the Planning Committee. Input from both on the Workshop Committee, the Norwalk Harbor community input an the analyses Management Committee, and the conducted by the planning team 4.3 November Open Department of Public Works. allowed the team to draw out feasible House TOD recommendations that are in line with the community’s vision 4.4 Online Surveys Oversight Committee for the future of East Norwalk. The ▶ Brian Baxendale, Planning Plan is therefore the result of close Commission collaboration among the community, 4.5 Stakeholder the Oversight Committee, the City, Interviews ▶ Deb Goldstein, Zoning and the planning team. Commission / Third Taxing District until 11/19 For a full write-up of all community ▶ Diane Cece, East Norwalk engagement methods and results, Neighborhood Association see Appendix C. (ENNA) Community engagement was a ▶ Pam Parkington, Third Taxing key aspect of the planning process District as of 11/19. for the East Avenue Neighborhood Transit Oriented Development Plan ▶ Stephanie Thomas, Zoning (the Plan). This chapter of the report Commission provides an overview of the methods ▶ John Kydes, Common Council used and results gathered from public workshops, online surveys, ▶ Judith Dominguez, East Norwalk and stakeholder interviews. Business Association (ENBA) An appointed Oversight Committee ▶ Vanessa Valadares, Department of critical stakeholders guided of Public Works the process and provided input. Members of this Oversight
24 4
Figure 8: VISIONING WORKSHOP
Participants at the March 2019 Visioning Workshop identify missing land uses around the East Norwalk Train Station.
25 Process and Participation each workshop was varied in an at the following workshop. This effort to make the workshops more iterative process allowed for each The planning process included the accessible to community members public meeting to build off of the following: with conflicting schedules, and all input from the previous one, creating ▶ Fourteen meetings with the workshops were centrally located in a transparent planning process City Planner and Oversight City Hall. The March workshop was where participants were continually Committee held on a Saturday morning, the July shown the results of previous workshop on a Thursday evening, engagement and able to provide ▶ Stakeholder interviews and the final open house was on a input on the analysis, conclusions, ▶ Three public workshops Monday evening. In addition, two and implications. The Oversight online surveys were distributed Committee and public participants ▶ Two online surveys to extend the reach of the public provided feedback on progress as Stakeholder interviews early in the workshops to those who were unable well as input on next steps. process established themes and to attend in person. The planning process saw a high level focus areas for the planning team’s The planning team analysed data of participation from the community: research and analysis and the public gathered from the public, who workshops. translated that data into findings The time and day of the week of and graphics which it then presented
Figure 9: COMMENT CARD
March Visioning Workshop 3/23/2019 77 Attendees*
July Choices Workshop 7/25/2019 73 Attendees*
November Open House 11/9/2019 50 Attendees* Online Visual Preference Survey 7/30/2019 - 9/6/2019 121 Respondents Online Commuter Survey 7/31/2019 - 10/15/2019 61 Respondents
Stakeholder Interviews 4/29/2019 15 Participants
*Represents the number of attendees who signed in, the actual attendance numbers were higher.
26 Outreach Tools Figure 10: COMMENT CARD In order to raise awareness of this process in the community and promote participation, the planning team and the City coordinated the distribution of information in English and Spanish by distributing business cards, flyers, postcards, and displaying digital roadside signage. These efforts were extended to online and social media platforms as well. A Spanish Translator was available at public workshops. The planning team sought to ensure that this planning process was as transparent and accessible to as much of the population as possible.
A comment card received at the first public workshop in March 2019.
27 4.1 March Visioning Workshop
The first public visioning workshop property owner in Norwalk or the reveal the elements and landmarks was held on the morning of Saturday, surrounding region with an interest that stand out and become icons or March 23, 2019 at City Hall. Harriman, in East Norwalk. way-finding devices, and everything RKG, and NV5 facilitated three that is not significant is left off the The comment cards asked four exercises with 77 attendees. The map all together. After completing questions: exercises engaged the audience to their maps, participants were asked think about their perceptions of East 1. What does the area have now to draw a happy face and a sad face Norwalk’s identity, the navigational that you want to keep? on the locations that they enjoyed and accessible challenges of their 2. What does the area have now the most and the least. This set the daily lives, and their aspirations for that you don’t want to keep? groundwork for the next exercise, the future of their neighborhood. which looked more deeply at why 3. What would you add to the area those specific locations elicited such The data taken from these exercises that it doesn’t have now? strong emotions. revealed patterns of the challenges that East Norwalk residents 4. What would you not add to the area that it doesn’t have now? face on a daily basis, as well as Routes the opportunities to strengthen The responses were evaluated the identity and resiliency of through the creation of word clouds. The second exercise revealed the community. This chapter Phrases and text were pulled out and opportunities and challenges summarizes the data gathered and entered into a word cloud generator related to mobility. In this group the key sentiments expressed at this for each question. Phrases or words mapping exercise, participants were workshop. that only showed up once or twice asked to locate the places that they in the comments are expressed as lived, worked, shopped or dined small text in the cloud; the more out, played, or ran into neighbors. Comment Cards frequently a phrase or word was This began to reveal clusters of destinations. Next, participants At the first public visioning workshop used, the larger it appears in the were asked to describe how they on the morning of Saturday, March cloud. move between these destinations – 23, 2019, 77 participants signed in identifying the route and the mode and 50 turned in comment cards. of transportation. Of the participants who filled out Mapping and Perceptions comment cards, 40 checked off that The first facilitated exercise was a they are a resident of East Norwalk, 20 quick 10-minute warm-up which checked off that they are a business asked participants to draw a map of or property owner in East Norwalk, their neighborhood from memory 11 said they commute from East in the space provided on a given Norwalk, 18 work in East Norwalk worksheet. This activity was inspired or patronize East Norwalk retail by Kevin Lynch’s approach to and restaurants, and 12 checked off mapping neighborhood character. that they are a resident, business, or When drawn from memory, the maps
28 Figure 11: WHAT DOES THE AREA HAVE NOW Figure 13: WHAT WOULD YOU ADD TO THE THAT YOU WANT TO KEEP? AREA THAT IT DOESN’T HAVE NOW?
Figure 12: WHAT DOES THE AREA HAVE NOW Figure 14: WHAT WOULD YOU NOT ADD TO THAT YOU DON’T WANT TO KEEP? THE AREA THAT IT DOESN’T HAVE NOW?
29 Village Center (0-5-minute walk from train)
Village Edge (5-10-minute walk from train)
Figure 15: DESIRED Beyond Area of Study USES GRAPH (10+ minute walk from train) Aspirations
20 For the third and final exercise, 19 each participant was given one sheet of stickers corresponding 18 to land uses in the categories of 17 open space, commerce, civic/ 16 institutional, and housing. Facilitators asked which uses 15 they would support adding 14 to the village center (within 13 a 5-minute walk of the train station), the village edge (within 12 a 10-minute walk of the train 11 station), or beyond the area of 10 study (more than a 10-minute walk of the train station) and 9 participants placed their stickers 8 in the appropriate location on NumberTotal of Dots Placed 7 the provided boards. 6 The graph on the following page 5 reveals community aspirations. Open space and commerce 4 come forward as priorities, while 3 housing is less desirable, with 2 many participants expressing a strong aversion to adding more 1 housing, particularly anything taller than 3-4 stories. A grocery COMMERCIAL OPEN store in the village center is the most desired amenity within the village center and a community garden is the most desired amenity within the village edge. Bar Café Plaza Dog Park Retail Shop Restaurant Playground Small Park Grocery Store Light Industrial Ice Cream Shop Recreation/Sports
Research and Development
30 “Other” Uses: Parking Office Building Stationary Store Trolley Single-Family Housing (x2) Health Care Co-Housing Maker Space
“Other” Uses: School Parking (x2) Signage Bike Share Underground Utilities Maker Space Co-Housing Farmer’s Market (x2) Bike Share (x3)
SPACE CIVIC / INSTITUTIONAL HOUSING OTHER
Gym Plaza Other Library Small Park Child CarePost OfficeMixed Use Live-Work Senior Housing CommunityArt Center Gallery / Studio Affordable Housing Rental Apartments Community Garden Multi-Family Condos
31 4.2 July Choices Workshop
The purpose of this workshop Exercise 1: Visual Preference and the suitability of its function. was to gather feedback through Survey Results Participants were asked to rank the facilitation of three different their enthusiasm toward each image exercises. The first was a visual A Visual Preference Survey (VPS) was based on its suitability to the context preference survey which asked issued to attendees of the public and character of East Norwalk participants to rank their enthusiasm meeting on the East Norwalk TOD according to the following scale: toward 16 images for each of four Plan on July 25, 2019 at Norwalk City categories: Built Environment Hall. The VPS was later posted online – Housing, Built Environment so that community members unable 2: Highly Desirable – Commercial and Mixed Uses, to attend the meeting could share 1: Desirable Connectivity and Access, and Public their opinion. The results captured in Space. The second exercise engaged this memo reflect only the responses 0: Neutral from the public forum. participants in a discussion of -1: Undesirable the opportunities and challenges For the VPS, attendees were invited posed by each of three conceptual to evaluate images within four -2: Highly Undesirable approaches to the TOD Plan categories: proposed by the planning team: ▶ Built Environment: Housing 1. East Avenue as a Main Street ▶ Built Environment: Commercial 2. Side Street Villages and Mixed Uses 3. Community of Nodes ▶ Connectivity and Access The final exercise was a comment ▶ Public Space card which asked participants to For housing, participants were asked identify which of the sub-areas to consider the height and massing within the TOD study area they of the building. For commercial felt each planning concept option and mixed uses, participants were was most suited to. This provided asked to consider the same as well the planning team with a clear as their preference toward the uses approach to redevelopment that was shown. For connectivity and access appropriate to the existing context and public space, participants were and would allow the development of asked to evaluate the images based a fourth hybrid option containing the on the aesthetic contribution of the desirable elements from each of the elements shown to the streetscape other options. and/or public realm environment,
32 Figure 16: VISUAL PREFERENCE SURVEY
At the public workshop, the community expressed a fairly strong adverse reaction to adding new housing. At both the March and July workshops, participants conveyed that the maximum height of any new development should be 2.5-3 stories. Results from the workshop indicate a preference for retail and restaurant spaces rather than office space. For connectivity and access, results indicate a preference for smaller-scale, more localized interventions rather than any major or sweeping changes. Results indicate community enthusiasm for enhancing and expanding East Norwalk’s open space network, especially the opportunity to create more active and lively streetscape environments with added green space and vegetation. Whether discussing housing, commerce, connectivity, or public space, it is clear that there is no one-size-fits- all approach for all of East Norwalk. The TOD Plan should be strategic in locating any interventions and careful not to create new problems by solving existing ones, especially when it comes to traffic and parking. Overall, the community seems to be wary of this planning process and measures should be taken to ensure that development will be contextually appropriate in enhancing East Norwalk’s identity as a coastal New England village.
33 2 Highly Desirable 1 Desirable 0 Neutral -1 Undesirable Figure 17: VISUAL PREFERENCE SURVEY RESULTS -2 Highly Undesirable
MOST PREFERRED IMAGES
CATEGORY WORKSHOP RESULTS ONLINE RESULTS COMBINED RESULTS A-3 2 floors A-2 2.5 floors A-3 2 floors
HOUSING
Mean 1.0 Mean 0.8 Mean 0.9 Standard Deviation 1.2 Standard Deviation 0.9 Standard Deviation 1.1 B-10 Retail B-10 Retail B-10 Retail
COMMERCIAL AND MIXED- USE
Mean 1.2 Mean 1.2 Mean 1.2 Standard Deviation 0.9 Standard Deviation 0.8 Standard Deviation 0.8
Crosswalk w/ Crosswalk w/ C-16 C-13 C-13 Flashing Lights C-13 Flashing Lights Improved Signage CONNECTIVITY AND ACCESS
Mean 1.0 Mean 1.0 Mean 0.8 Mean 0.9 Std. Dev. 1.4 Std. Dev. 1.2 Standard Deviation 1.1 Standard Deviation 1.1
Sidewalk - Retail Use Sidewalk - D-8 D-7 Restaurants/Cafe D-8 D-7
PUBLIC SPACE
Mean 1.5 Mean 1.6 Mean 1.5 Mean 1.5 Standard Deviation 0.7 Standard Deviation 0.7 Std. Dev. 0.7 Std. Dev. 0.8
34 LEAST PREFERRED IMAGES
CATEGORY WORKSHOP RESULTS ONLINE RESULTS COMBINED RESULTS A-16 4 floors A-7 5 floors A-16 4 floors
HOUSING
Mean -1.9 Mean -1.4 Mean -1.6 Standard Deviation 0.4 Standard Deviation 1.0 Standard Deviation 0.8 B-8 Retail + 3fl Residential B-6 4fl Office B-3 B-6 Ground-floor COMMERCIAL Parking + AND MIXED- Residential USE
Mean -1.5 Mean -1.2 Mean -1.2 Mean -1.2 Standard Deviation 0.9 Standard Deviation 1.1 Std. Dev. 1.1 Std. Dev. 1.1
Painted Sharrow Painted Sharrow Painted Sharrow C-8 Lane in Car Lane C-8 Lane in Car Lane C-8 Lane in Car Lane
CONNECTIVITY AND ACCESS
Mean -0.7 Mean -0.8 Mean -0.8 Standard Deviation 1.4 Standard Deviation 1.2 Standard Deviation 1.3 D-9 Sidewalk - No Planting D-9 Sidewalk - No Planting D-9 Sidewalk - No Planting
PUBLIC SPACE
Mean -0.5 Mean -0.4 Mean -0.4 Standard Deviation 1.3 Standard Deviation 1.1 Standard Deviation 1.2
35 Exercise 3: Comment Cards each of the sub-areas within the TOD EAST AVENUE MAIN STREET study area and asked participants to After completing the visual preference identify which of the three proposed surveys, participants at the July 25 options is most suited to each of workshop worked in small focus these sub-areas. groups to explore the opportunities and challenges they foresee with The results were fairly consistent each of the three options (1: East with a general preference toward Avenue Main Street, 2: Side Street Option 2, Side Street Villages, Villages, and 3: Community of Nodes) with the exception of Option 1, for development of the East Norwalk Main Street, being preferred along TOD study area proposed by the East Avenue, and the approach of planning team. The presentation and community nodes in the Cove Street workshop facilitators elaborated on and Reynolds Street areas. These these concepts to aid participants results, as illustrated by Figure 19, SIDE STREET VILLAGES in gaining a better understanding provide a clear direction for moving of what they might mean for the forward with a hybrid of the three neighborhood. After engaging in plan options. these discussions, facilitators asked participants to fill out comment cards. Side A of the cards identified
Figure 18: SUB-AREAS F B COMMUNITY OF NODES A C H E D
G
36 Figure 19: HYBRID OPTION SELECTION EAST AVENUE MAIN STREET Preference toward design concept options by sub-area SIDE STREET VILLAGES COMMUNITY OF NODES 40
35
30
25
20 Votes
15
10
5
A: Fort B: Fitch C: D: Van E: Van F: East G: Cove H: Point St. Street Winfield Zant Zant Avenue Street Reynolds Street Street Street Street
37 4.3 November Open House
The open house took place on questions and answers, participants Four interactive boards provided Monday, November 9, 2019 at were provided the opportunity to participants an opportunity Norwalk City Hall from 6:30-8:30pm circulate the room to review the to vote on the prioritization of to share progress and gather boards on display. The boards recommendations. Each participant feedback on the Plan. The meeting offered a more detailed overview of was given a set of 10 sticker dots to began with a presentation led by the TOD planning process to date vote with. Harriman and RKG which provided an and addressed the following topics overview of the project, summarized (1 board per topic): the community engagement ▶ What is a Typical Transit Oriented Highest Priority process, identified opportunities Development Plan? Recommendations: and challenges, discussed criteria ▶ Wider sidewalks, mid-block ▶ What is the East Norwalk TOD for planning, described the “keys to crossings, pocket parks, plazas, Plan? success” and recommendations for community gardens, and TOD in East Norwalk, and shared ▶ Three Concepts for the East publicly accessible open spaces next steps in the process. Fifty Norwalk TOD Area attendees signed in at the meeting. ▶ Traffic calming tools and The presentation was followed by ▶ March Visioning Workshop – methods to slow traffic and about 20 minutes of questions from What We Heard discourage cut-through traffic the audience answered by members ▶ July Choices Workshop – What ▶ Preserve and enhance existing of the planning team. We Heard residential neighborhoods ▶ Appropriate Strategies Based on Community Preferences Lowest Priority ▶ Summary of Recommendations Recommendations: ▶ RKG Associates provided two ▶ Examine two-way traffic additional boards covering the circulation options around the market analysis aspects of the cemetery project: ▶ Road signage to increase driver ▶ Development Feasibility in East awareness Norwalk ▶ Increase turn-over of prime on- ▶ Norwalk’s Market for street parking Development
Participants vote on their top priority recommendations at the November 2019 FollowingOpen House. the first round of
38 4.4 Online Surveys
Visioning Workshop - SurveyMonkey. 121 community Commuter Questionnaire Community Feedback members responded. The results of Questionnaire this online survey were added to the 8/1/2019 - 8/22/2019 results from the in-person workshop In late August, NV5 conducted a 4/2/2019 - 6/1/2019 and analyzed collectively as survey targeted toward commuters The first online survey was a digital discussed previously in this section which informed their analysis of the version of the comment card that was and in Appendix C: Community transportation conditions in East handed out at the first community Engagement. Norwalk. The full summary of results visioning workshop. Sixty-one for this survey is included in Appendix community members responded to C: Community Engagement. the four prompts via SurveyMonkey. Their responses were grouped and analyzed with the responses from the in-person workshop previously discussed in this section. Figure 20: MARCH VISIONING WORKSHOP
Choices Workshop - Community Feedback Questionnaire 7/30/2019 - 9/6/2019 A second survey was open from the end of July through early September to expand the scope of participation in the July choices workshop. The same visual preference survey that was provided at the July Workshop was made available online via
Participants at the March 2019 Visioning Workshop collaborated in small focus groups.
39 4.5 Stakeholder Interviews
Methods Interviewees Stakeholder interviews were ▶ Kim Morton, Norwalk Transit ▶ East Norwalk Business conducted with small groups District, and Britt Liotta Association (ENBA) and individuals offering critical ▶ Michael DiScala, developer Judith Dominguez, ENBA perspectives and insights on President existing conditions and trends in ▶ Pam Parkington and Kevin East Norwalk. The interviews were Barber, 3rd Taxing District Marc Nieto, Nieto Properties conducted in person, facilitated ▶ Nancy Rosett, Chair of the Vincent Scicchitano, Fitch by members of the planning team, Norwalk Walk/Bike Commission Street (Accurate Auto on April 29, 2019. The following Repair) questions were used to guide the ▶ East Norwalk Neighborhood conversations: Association (ENNA) Winthrop Baum, ENBA President (WEB Realty ▶ What are the challenges in this Mark Albertson Company) area in your opinion? Jan Nelson Broome Jason Minoff, 19 Fort Point ▶ What are the assets or Diane Cece Street (Perfect Plantings opportunities that you think we LLC.) should definitely consider while Roberta DiBisceglie planning? Ray Schaer, 74 Fort Point Sarah Hunter Street (Hanes Precision ▶ What are the plans of the Marrianne Johansson Industries) organization you represent? Megan McNeill Norma Zukim, 215 Liberty ▶ What do you see as the challenges Square (Rowlinson Agency for development/parking/ Inc.) walking/biking/recreation? Jim Blair, 215 Liberty Square ▶ Tell us what you think can spur (Rowlinson Agency Inc.) reinvestment in this area? Richard Tavella, Rick’s Main ▶ What do you think are the market Roofing conditions? Robert Kunkel, Harbor Harvest
40 Themes traffic and parking challenges. Parking The themes and related feedback ▶ Sidewalk repair is currently ▶ There is a lack of adequate listed in this section emerged from the the responsibility of property- parking at the station. Conflicts conversations had with stakeholders owners, which has led to a high continually arise between at these interviews. These comments level of neglect and disrepair. commuters, residents, and have been edited for the purposes of ▶ Crossing East Avenue is a business owners all competing maintaining language consistency, challenge because of the heavy for limited parking space and but the intent of each remains intact. traffic and lack of adequate access. These comments reflect individual pedestrian infrastructure. ▶ The current parking situation perceptions and opinions. ▶ Some businesses offer discounts surrounding East Norwalk to customers who walk or bike to Station is an assembly of multiple Transit their business. owners and arrangements. ▶ The 2 main goals related to ▶ Service to East Norwalk ▶ The Norwalk Bike and Pedestrian parking should be to improve Train Station is limited, Plan aims to connect public safety and convenience. a comprehensive transit amenities such as Calf Pasture operations analysis is in the works Beach and incorporate the East ▶ The City should streamline and will evaluate opportunities Coast Greenway in connecting mechanisms for parking to connect the East Norwalk to larger Citywide bicycle permitting and paying for Station to the South Norwalk infrastructure networks as part parking. of the Norwalk River Valley Trail. Station to provide commuters ▶ Saint Thomas’s Church heavily with more options and better utilizes its parking lots with the access to frequent rail service. Traffic exception of Saturday mornings. ▶ The planned development at ▶ The 7th Day Adventist Church 230 East Avenue may be an ▶ Cut through traffic from I-95 causes issues for the community. does not have an adequate ideal location for a local transit supply of parking to support its connection. ▶ Truck traffic is a major challenge diverse congregation of primarily ▶ People from East Norwalk are for the East Norwalk community French and Creole-speaking more likely to go to Saugatuck contributing to severe community members, who Station because there is more congestion problems. carpool to the church services. parking and more service ▶ Events such as the Boat Show or There is an informal agreement available. Taste of Norwalk create immense with the neighboring bank to traffic challenges. allow church parking to overflow onto their lot. Connectivity ▶ Streets are too narrow to handle the traffic flow. Widening East ▶ There needs to be better parking ▶ It is critical to make East Norwalk Avenue may help, but would enforcement. more walkable and bikeable. East require the City to take some Avenue is especially challenging. private property. Development ▶ Improving the conditions of ▶ There are concerns of the SoNo sidewalks is vital, especially Mall development causing even ▶ Two parcels on Fort Point Street within the five to ten minute walk worse traffic challenges. currently offering around 100 radii of the station to reduce car- parking spaces will be removed dependence which exacerbates with the implementation of the Walk-Bridge program
41 Market Conditions Figure 21: EAST AVENUE ▶ There is no market for office space in East Norwalk. ▶ Condos are taxed the same as single-family dwelling units, making them extremely expensive and difficult to sell. The market only supports rentals as a result, limiting access to home ownership and opportunities for desired mixed-use development in East Norwalk. ▶ A low population density contributes to low rents. ▶ The construction of the new SoNo Mall will have a major impact on retail and will likely cause Westport Center to “empty out.” Westport Center is offering free parking as an incentive to generate more foot traffic. East Avenue: Saint Thomas Church and ▶ The City should focus on Penny’s Diner. supporting small and local businesses, who are struggling to combat the Amazon effect. and the placement of utilities height to 35’ and demands a underground. maximum floor-to-area-ratio ▶ The City should develop (FAR) of 1 unit per 1,650 square programming to attract, ▶ There is a trend for older and feet of land. If zoning could support, and retain younger 2-3-family homes to be converted accommodate an FAR of 1 unit demographics who currently into multifamily rentals. These per 800 square feet and a parking have limited opportunities to live rentals do not comply with code requirement of 1.3 spaces per and or work in East Norwalk. and are not adequately invested unit, redevelopment would be in by property owners, resulting far more feasible. This particular in overall lower property values. site has added constraints Urban Design ▶ Saint Thomas Church may with drainage easements and ▶ East Norwalk should promote consider selling their property flooding issues. The Owner is “live, work, shop.” if zoning conditions were willing and open to negotiating modified to create incentives for a public amenity, such as access ▶ There is a desire for a variety redevelopment. to the water through their site, of retail spaces with indoor in exchange for these added and outdoor green spaces and ▶ The DiScala property between common areas. the cemetery and Mill Pond is development incentives. interested in redeveloping, but ▶ A pilot bike-share program is in ▶ The City should prioritize the current zoning limits any building the works. redevelopment of blighted
42 parcels. need to be better communicated challenging. and coordinated with business ▶ Open Space/Environment ▶ No one knows the current and property owners to status of the East Avenue ▶ Flooding is a major issue for East minimize disruption to business reconstruction project. Norwalk during heavy storm operations and patronage. events. ▶ There is lack of coordination ▶ The Third Taxing District can or communication between acquire property and park land. businesses, utility companies, ▶ There are potential industrial law enforcement and the City. brownfield sites north-west of Business owners suffer when the train station. there is work in front of their business without them knowing about it. Many times, they Identity/Character cannot run their businesses and are forced to send employees ▶ The City should strive to maintain and customers away because East Norwalk’s “New England there was no communication character” and “neighborhood about the work and police/ feel.” This character in itself utility companies have shut actually increases property them down for a day. Road value; how can the City allow for closures and diversions need more density while preserving to be coordinated to minimize and enhancing the value of East disruption to businesses Norwalk’s coastal identity? and services, and need to be ▶ East Norwalk is nothing like communicated in advance. South Norwalk and a far cry We strongly recommend from Wall Street, a more parallel coming up with a clear line of comparison would be with Old communication to convey utility Greenwich, Port Chester, CT or work and construction plans to Port Jefferson, NY. residents and business owners who will be impacted. ▶ East Norwalk is a residential area in a big City, with many distinct ▶ There needs to be a long-term sub-identities within the multiple strategy and coordinated effort East Norwalk neighborhoods. among all the many construction projects planned to take place in ▶ Destinations such as Marvin the next five years. There needs Beach, Calf Pasture Beach, to be a clear implementation and the Parks lend themselves plan to minimize disruption to to enhancing East Norwalk’s the way of life for East Norwalk character. residents and businesses. 350-500 businesses could be impacted and may choose to Communications relocate if years of construction ▶ Road construction and is going to make running a infrastructure improvements profitable business highly
43 Existing Conditions Analysis
5.1 Land Use and 5.1 Land Use and Current Projects Current Projects 5.2 Existing Zoning 5.3 Parcel Sizes The Study Area for this plan is higher and lower levels of density, bounded by the half-mile radius giving it a distinct character and 5.4 Property from the East Norwalk Train identity apart from its context. Station. It is comprised primarily Ownership of residential parcels with the exception of commercial corridors 5.5 Circulation and along the train tracks and East Figure 4622 Legend Access Avenue, which intersect at the Train Station. Institutional parcels break Industrial 5.6 Sanitation, up the continuity of the commercial Commercial Stormwater, and uses along East Avenue, generating a cluster of commercial activity near Flooding Exit 16 off Interstate-95 and another Municipal cluster near the train station. 5.7 Sea Level Rise Mixed Use Smaller, neighborhood-oriented 5.8 Market Analysis commercial centers include Cove Religious Street and Liberty Square. Liberty Square commercial uses include State-Owned auto-oriented uses and serves as a transitional area connecting East Charitable Non-profit Norwalk to South Norwalk via the Washington Street Bridge. Light Single-Family industrial land uses cluster along the Norwalk Riverfront on the periphery Apartments of the Study Area. Below the Study Area, South Norwalk Multifamily has comparatively higher density within its residential areas. To the Vacant west of the Study Area, Westport has comparatively lower density than Condos East Norwalk. East Norwalk serves as a transitional zone between these Open Space
44 5
Figure 22: EXISTING LAND USES
1/2-mile / 10-minute walk radius 1/4-mile /
East Avenue 5-minute walk radius
Strawberry Hill Ave.
Winfield St. (Rte. 136)
Van Zant St. (Rte. 136)
Gregory Boulevard
An industrial zone runs the length of the railroad tracks, intersecting a commercial zone running the length of East Avenue.
45 5.2 Existing Zoning
The following zones overlap with the There are currently no zoning East Norwalk TOD Study Area: overlays, special districts, or design guidelines that apply within the TOD ▶ Neighborhood Business (NB) Study Area. Although the overall ▶ Industrial – 1 (I-1) planning area is not located within ▶ Residence Zone A a flood zone, there are known flood risks along Seaview Avenue, Mill ▶ Residence Zone AA Pond, and South Smith Street. Just ▶ Residence Zone AAA over half of the TOD Study Area is within the Coastal Area Management ▶ Residence Zone B Boundary (CAM). ▶ Residence Zone C Based on this study, there are no ▶ Residence Zone D zoning changes anticipated for the Residence Zones A, AA, AAA, and B as ▶ *There is a small corner of the these are stable residential districts East Avenue Village District with long-term ownership patterns. (EVD) zone which overlaps with the TOD Study Area north of Figure 24 provides an overview of Interstate-95. Since this Plan the uses allowed As-of-Right and focuses on the conditions south with Special Permit for the zones of the highway, this EVD zone affecting the TOD Study Area. was not extensively studied as Figure 25 provides an overview part of this analysis. of the height and bulk limitations applicable to Neighborhood Business, Industrial #1, and Residence Zones D, C and B.
46 Figure 23: EXISTING ZONING
EVD 1/2-mile / 10-minute B walk radius 1/4-mile /
B East Avenue 5-minute walk radius NB Strawberry Hill Ave.
C I1 NB C B
Winfield St. (Rte. 136)
I1 NB A
Van Zant St. (Rte. 136) AAA
Gregory Boulevard AA D
D C AAA
NB B
An industrial zone runs the length of the railroad tracks, intersecting a commercial zone running the length of East Avenue.
47 Figure 24: EXISTING ZONING OVERVIEW OF USES
ZONES USES ALLOWED AS-OF-RIGHT USES ALLOWED BY SPECIAL PERMIT NEIGHBORHOOD Allowed: Single and two-family dwellings, Multifamily dwellings* (more than 12 BUSINESS (NB) multifamily (fewer than 12 units), retail units) on, retail stores and personal stores and personal businesses (gross area businesses (gross area more than 8,000 less than 8,000 sq. ft.), offices (gross area sq. ft.), offices (gross area more than 8,000 less than 8,000 sq. ft.), restaurants (gross sq. ft.), restaurants (gross area more than area less than 2,500), financial institutions, 2,500), distilleries/brew pubs, commercial, religious institutions, educational, marinas, recreational, gas stations, storage, nursing, parks, museums and libraries, off-street and group homes. *Multifamily and mixed- parking facilities, fire stations, and boutiques use development allowed by special permit (accessory use to retail). only in the East Norwalk TOD Area. INDUSTRIAL-1 (I1) Manufacturing, warehouse, transportation, Municipal utility plant or storage yard, gas storage facilities, transportation and bus stations, motor vehicle storage, commercial storage terminals, building materials recreation establishments, hotels, adult day sale and storage yards, offices, retailcare centers, helicopter landing sites, animal stores, printing establishments, municipal care centers, multifamily dwellings, and sewage treatment facilities, research and mixed use (conditions apply). development facilities, off-street parking Mixed Use: For Transit-Oriented Development facilities, distilleries/brew pubs, and all uses at the East Norwalk Railroad Station permitted in Residence Zone C. AAA RESIDENCE Single-family detached dwelling, parks and Public museums, places of worship, churches playgrounds, Farms, truck gardens and and church buildings, schools, public utility nurseries, and neighborhood clubhouses. supply or storage facilities, firehouses, conservation development, waterfront clubs, full-service/all-season restaurants, golf clubs, nursery schools or child day-care centers, and athletic field facilities. AA RESIDENCE Single-family detached dwelling, parks and Public museums, places of worship, churches playgrounds, Farms, truck gardens and and church buildings, schools, public utility nurseries, and neighborhood clubhouses. supply or storage facilities, public and private colleges and universities, schools or institutions for the mentally retarded, physically handicapped or the emotionally or developmentally disabled, cemeteries, golf clubs, youth day camps, firehouses, conservation development, waterfront clubs, convalescent or nursing homes, congregate housing, nursery schools or child day-care centers, and athletic field facilities.
48 ZONES USES ALLOWED AS-OF-RIGHT USES ALLOWED BY SPECIAL PERMIT A RESIDENCE Single-family detached dwelling, parks and Public museums, places of worship, churches playgrounds, Farms, truck gardens and and church buildings, schools, public utility nurseries, and neighborhood clubhouses. supply or storage facilities, public and private colleges and universities, schools or institutions for the mentally retarded, physically handicapped or the emotionally or developmentally disabled, cemeteries, golf clubs, youth day camps, firehouses, conservation development, waterfront clubs, convalescent or nursing homes, congregate housing, nursery schools, child day-care centers or maternity homes in existing accessory structures, commercial communication antennas, and athletic field facilities. B RESIDENCE Allowed: Single-family, parks and Museums, religious institutions, schools, playgrounds, and neighborhood clubhouses. storage facilities, colleges and universities, cemeteries, golf clubs, youth day camps, firehouses, waterfront clubs, nursing homes, athletic fields, congregate housing, and planned residential development. C RESIDENCE Allowed: Single-family detached dwelling, Museums, religious institutions, schools, two-family detached dwelling, parks and storage facilities, colleges and universities, playgrounds, and neighborhood clubhouses. cemeteries, golf clubs, youth day camps, firehouses, waterfront clubs, nursing homes, athletic fields, congregate housing, community residence, and planned residential development. D RESIDENCE Allowed: Single-family detached dwelling, Museums, religious institutions, schools, two-family detached dwelling, multifamily storage facilities, colleges and universities, (less than 12 dwelling units), parks and cemeteries, golf clubs, youth day camps, playgrounds, and neighborhood clubhouses. firehouses, waterfront clubs, nursing homes, athletic fields, congregate housing, community residence, multifamily (more than 12 dwelling units), and planned residential development.
NOTE: Residential zones have For the full list of restrictions, refer additional restrictions on some of to Article 30 of the Norwalk Building the uses listed, including special Zone Regulations: permit historic preservation criteria. https://www.norwalkct.org/203/ Building-Zone-Regulations
49 Figure 25: EXISTING ZONING HEIGHT AND BULK LIMITATIONS
MINIMUM SIZE OF PLOT MAXIMUM BUILDING ZONE MAXIMUM HEIGHT AREA AREA WIDTH NEIGHBORHOOD 2 1/2 stories MINIMUM 5,000 sq ft 50 feet 35% for buildings, 80% for BUSINESS (NB) & 35 feet HEIGHT buildings and parking, 20% 2 stories and open space 25 feet INDUSTRIAL-1 (I1) 4 stories & 50 feet; 6 stories 800 sq ft per 50 ft 50% for buildings, 90% & 72 ft on lots 30 acres or dwelling for buildings and parking; larger unit; none for multifamily and 5,000 sq ft mixed use developments minimum in transit oriented developments AAA RESIDENCE 2 ½ stories & 35 feet 43,560 sq ft 150 ft 25%
AA RESIDENCE 2 ½ stories & 35 feet 21,780 sq ft 100 ft 25%
A RESIDENCE 2 ½ stories & 35 feet 12,500 sq ft 100 ft 25%
B RESIDENCE 2 1/2 stories & 30 feet 6,250 sq ft 50 ft 25% - 35%
C RESIDENCE 2 1/2 stories & 30 feet 5,000 sq ft 1 50 ft 25% - 35%, dwelling unit 1-2 Dwelling Units 6,000 sq ft 2 dwelling units
D RESIDENCE 2 1/2 stories & 30 feet 5,000 sq ft 1 50 ft 25% - 35%, dwelling unit 1-2 Dwelling Units 6,000 sq ft 2 dwelling units
50 MINIMUM SIZE OF PLOT MAXIMUM BUILDING ZONE MAXIMUM HEIGHT AREA AREA WIDTH D RESIDENCE 2 1/2 stories & 35 feet 1,650 sq ft 80 feet 30%; per dwelling 60% buildings and parking 3-6 Dwelling Units unit; 7,500 sq ft minimum
D RESIDENCE 3 ½ stories and 40 feet 1,650 sq ft 100 ft 25%; per dwelling 65% buildings and parking Over 6 Dwelling Units unit; 12,000 sq ft minimum D RESIDENCE 3 ½ stories and 40 feet 1250 sq ft 100 ft 25 % for 1 and 2 story per dwelling buildings Over 6 Dwelling Units Elderly unit Housing 20% for 3 and 4 story buildings
D RESIDENCE 3 ½ stories and 40 feet 1250 sq ft 100 ft 25%; per dwelling 65% buildings and parking Over 6 Dwelling Units unit; 500 Congregate Housing sq ft per dwelling unit in Business No. 2 zones
51 CALCULATED FLOOR-AREA RATIO COMPARATIVE ZONE MAXIMUM RECREATION AREA RESIDENTIAL DENSITY NEIGHBORHOOD 0.7 200 sq ft per dwelling unit 26 units per acre BUSINESS (NB)
INDUSTRIAL-1 (I1) 1.0; 2.0 for multifamily and 150 sq ft per dwelling unit, 8.7 units per acre - 1 unit may include balconies, mixed use developments 14.5 units per acre - 2 units in transit oriented courtyards, indoor developments recreational facilities, landscaped roofs and outdoor recreational areas AAA RESIDENCE 1 unit per acre _ _
AA RESIDENCE 2 units per acre _ _
A RESIDENCE 3.5 units per acre _ _
B RESIDENCE 7 units per acre _ _
C RESIDENCE 8.7 units per acre - 1 unit 1-2 Dwelling Units 14.5 units per acre - 2 units _ _
D RESIDENCE 8.7 units per acre - 1 unit 1-2 Dwelling Units 14.5 units per acre - 2 units _ _
52 CALCULATED FLOOR-AREA RATIO COMPARATIVE ZONE MAXIMUM RECREATION AREA RESIDENTIAL DENSITY D RESIDENCE 200 sq ft per dwelling unit 26 units per acre 3-6 Dwelling Units _
D RESIDENCE 200 sq ft per dwelling unit 26 units per acre Over 6 Dwelling Units _
D RESIDENCE 125 sq ft per dwelling unit 34 units per acre Over 6 Dwelling Units Elderly _ Housing
D RESIDENCE 100 sq ft per dwelling unit 34 units per acre Over 6 Dwelling Units Congregate Housing _
Density Limitation in Zoning Permit regulated by a height of 35 ▶ 1 Dwelling Unit – 5,000 SF Districts Feet and a minimum lot area per (Residence Zones C and D) dwelling unit of 1650 SF/ Dwelling ▶ 2 Dwelling Unit – 6,000 SF The analysis of the zoning code and Unit. the height and bulk regulations reveal (Residence Zones C and D) Industrial-1 allows 1 and 2 family how density is controlled in various ▶ 3-6 Dwelling Unit - 7,500 SF Dwelling Units as well as all uses districts. In the Neighborhood (Residence Zone D) Business and Industrial-1 districts, permitted in Residential-C and does the density and bulk of the built not allow multifamily, including any ▶ 6-12 Dwelling Units – 12,000 SF form are regulated with the use of Planned Residential Development. (Residence Zone D) FAR of 0.7 and 1.0 for Neighborhood Mixed use is currently allowed only ▶ Residential Zones (B, C and D) Business Industrial-1 districts, on the Spinnaker parcel at 230 East allow multi-family with Special respectively. Avenue. Permit via Planned Residential The Neighborhood Business district Density in residential zones is Development allows a range of residential densities regulated based on minimum lot with Site Plan Review and Special sizes with the following standards
53 5.3 Parcel Sizes
Overlaying maps of parcel sizes Parcels in Residential Zone D are Figure 26 Legend with zoning layers reveals the eligible for a minimum of 1 to 6+ potential of some of the parcels in dwelling units based on the parcel the Study area. Large parcels in the sizes. For parcels in Residential Zone 0-3 acres Neighborhood Business district D, the density of more than 3 dwelling are eligible for a residential density units requires 1,650 SF of lot area of 1,650 SF/DU. Large parcels in per dwelling unit. Hence, any parcel 3-6 acres Industrial #1 are eligible for 1 and greater than 7,500 SF in size can 2 family dwelling units based on accommodate the density of more Residential Zone C. Multifamily and than 3 dwelling units in Residential 6-9 acres mixed-use development is allowed Zone D. by special permit if the parcel is Planned residential development within the Industrial-1 zone and the 9-12 acres (PRD) is allowed in zones B, C, and D; East Norwalk TOD Area. however, the number of multifamily Parcels in Residential Zones are dwellings allowed in Zone B allows 12-15 acres eligible for 1, 2 and multi-family a maximum capacity of 1,806 units, units by right and with special which was reached in 1990. Zone permit. Parcels in Residence Zone C allows a maximum of 638 units, 15+ acres C require a minimum lot area of which was reached in 1992. For this 5,000 SF for 1 dwelling unit (DU) and reason, PRD’s are currently only 6,000 SF for 2 dwelling units. Multi- allowed in Residence Zone D. family development is allowed with Special Permit on parcels larger than 6,000 SF in the Residential-C zone in replacement of the 638 units, which are existing or approved as of March 1992. These multi-family units shall have a minimum floor area of five hundred (500) square feet per dwelling unit.
54 Figure 26: PARCEL SIZES
1/2-mile / 10-minute walk radius 1/4-mile /
East Avenue 5-minute walk radius
Strawberry Hill Ave.
Winfield St. (Rte. 136)
Van Zant St. (Rte. 136)
Gregory Boulevard
55 5.4 Property Ownership
Many of the parcels in the study area Figure 27 Legend are under private or institutional land ownership. Commuter parking parcels around the train station are Private Ownership either owned by the State or are privately owned with the dedicated arrangement for future commuter City of Norwalk parking managed by the City. There are multiple parcels along East Avenue that are owned by Vacant different religious institutions. The Third Taxing District owns multiple parcels which currently house Institutions utility infrastructure servicing the area as well as the East Norwalk Association Library, which serves Third Taxing District as the community’s only public library in East Norwalk. Additionally, Ludlow Commons Senior Housing is State of CT owned by the City’s Norwalk Housing Authority and managed by Human Services Council. Most of the other parcels within the Study area are privately owned with additional City and the State-owned parcels along the Norwalk River.
56 Figure 27: PROPERTY OWNERSHIP
1/2-mile / 10-minute walk radius 1/4-mile /
East Avenue 5-minute walk radius
Strawberry Hill Ave.
Winfield St. (Rte. 136)
Van Zant St. (Rte. 136)
Gregory Boulevard
57 5.5 Circulation and Access
Vehicular Circulation Figure 28: COMMUTER PARKING While readily accessible by car to Interstate 95 (I-95), the East Norwalk neighborhood has a local residential neighborhood character in land use and street design. East Avenue, the primary arterial roadway in East Norwalk, is one of the neighborhoods busiest streets and is said to experience both local traffic as well as traffic bound for destinations outside of the neighborhood including South Norwalk, Westport and the parts of Norwalk north of I-95. The following discussion of vehicular circulation focuses on the existing conditions of the primary roadways in East Norwalk as encompassed in the study area, as well as issues and concerns observed in the field or discussed in prior reports. Figure 29 summarizes the existing condition Commuter Parking Map by NV5. issues and concerns in the study area. East Avenue Avenue is considered a principal travel in both the north and south Within the study area, East Avenue urban arterial within the majority of directions, with one to two lanes is the primary roadway in the East the Study Area with the exception in each direction. Parking is not Norwalk neighborhood, providing of the segment between Cemetery permitted between I-95 and East vehicle access in the north-south Street and Seaview Avenue (which Avenue Rail Bridge due to the width directions and connecting the is designated as a local road). Based of the roadway (40 ft. curb to curb) Interstate 95 entrance and exit ramps on CTDOT Annual Average Daily and number of active roadway lanes (exit 16) to the north to the Metro- Traffic (AADT) data, East Avenue (3-4 lanes). Sidewalks of varying North Rail Road (MNR) East Norwalk experienced an AADT of 15,600 widths are present on both sides Station to the south. According to vehicles per day between I-95 and of the street within the study area; the Connecticut Department of Winfield St. in 2017. however, a sidewalk is only present Transportation (CTDOT) Functional on the west side of East Avenue Roadway Classification Map, East East Avenue supports vehicular
58 Figure 29: EXISTING TRAFFIC CONDITIONS
East Avenue serves as a primary route connecting highway I-95 to the north to the beaches to the south. Graphic by NV5. 59 when the roadway traverses below the East Avenue Rail Bridge. Figure 30: CEMETERY CIRCLE South of the I-95 interchange, southbound East Avenue has two through lanes until the roadway reaches Fitch Street, in which a left turn only lane at Fitch Street and right turn only lane at Fort Point Street effectively create a lane drop and weaving section from the right lane to the left lane in the southbound direction. Currently, there is only one lane in each direction below the East Avenue Rail Bridge, thus potentially creating a traffic bottleneck at this location. Based on the traffic analysis included in the 230 East Avenue Transportation Impact Study (TIS), favorable Level of Service (LOS) is shown for the north and south movements along East Avenue during the weekday morning, afternoon and Saturday midday peak East Avenue United Methodist Church on the hours in the 2017 existing conditions, left and East Norwalk Historic Cemetery on while minor streets experience the Right. Photo taken on 3/12/2020. less favorable to congested LOS in the same peak hours. This would stop-controlled). As the crosswalk is I-95 interchange ramps and the lack suggest delays experienced at utilized by commuters to cross East of restriction of southbound left the minor approaches along East Avenue, these factors result in unsafe turns and westbound left turns at Avenue at signalized intersections conditions including ambiguous this unsignalized intersection. This (Winfield Street, Fitch Street) are timing and limited gaps for crossing intersection has potential to cause caused by high north-southbound pedestrians against major and delays due to westbound left turns vehicular demand on East Avenue. minor street traffic, ambiguous blocking the northbound lanes to Similarly, the unsignalized right-of-way for minor street vehicles find a gap in southbound traffic flow eastbound approach at Fort Point turning into East Avenue, as well as during congested peak periods. Street experienced unfavorable LOS poor sight lines from minor streets. in all analyzed peak hours as drivers Cut-Through Streets These issues point to a problematic struggle to find gaps to turn onto intersection located adjacent to the Based on the congestion observed East Avenue. East Norwalk Station. at intersections along East Avenue, At the intersection of East Avenue, public input and the abundance of Although traffic volumes along Fort Point Street and the east parking drivers utilizing GPS navigation, it is the residential dead-end street of lot driveway for the Metro-North likely that local residential streets Olmstead Place are likely low, the East Norwalk Station, the minor in the study area intended for local intersection of Olmstead Place and street approaches are offset as well traffic are experiencing additional East Avenue appears to be particularly as unsignalized (minor streets are cut-through traffic to avoid delays problematic in its proximity to the
60 on East Avenue and I-95. Roadways vehicular speeds. Effectively, these without a parking lane. This excessive providing alternative north-south interventions eliminate potential roadway width contributes to poor vehicular mobility between the eastbound cut-through traffic flow, pedestrian mobility and safety in this Washington Street Bridge (leading to while deterring westbound cut- area, as wide roadways contribute South Norwalk) and I-95 other than through traffic to use other routes. to longer crossing times in an area East Avenue include the following On Myrtle Street, southbound left with limited east west pedestrian streets: Fort Point Street, Osbourne turns from East Avenue and through facilities and connectivity. Avenue, Saint John Street, Selleck trucks are not permitted. Myrtle Van Zant Street (SR 136) Street, and Hendricks Avenue. In Street does have three installed addition to increased traffic volumes, speed bumps, similar to Raymond Van Zant Street (SR 136) is an east- it is likely that cut-through traffic Terrace and supports traffic in both west principal urban arterial with could be travelling at higher speeds east and west directions. Thus, one traffic lane in each direction as they do not have a destination these traffic calming interventions and parking permitted along the in the neighborhood, contributing on Myrtle Street would reduce truck south curb. Although Van Zant Street to unsafe conditions on these local traffic and vehicular speeds along is just over a 1/3 of a mile long, roads for residents. These roadways the roadway. this roadway provides the primary typically exhibit the following vehicular connection between the Cemetery Circle (East Avenue, characteristics: narrow curb to curb southern end of East Avenue to Fort Gregory Blvd., Cemetery Street) and sidewalk widths, two-way traffic Point St/Washington Street to the flow, limited pedestrian crossing South of the East Norwalk Station South Norwalk neighborhood. Van pavement markings, parking on one along East Avenue, the East Norwalk Zant Street is a fairly narrow roadway or both sides of the street, and serve Historical Cemetery is located on (32 feet curb to curb) with narrow primarily low-density residential a two block long triangular parcel sidewalks on both sides of the street. uses. Thus, these local streets were which is bound by East Avenue to the Winfield Street (SR 136) not designed to accommodate west, Cemetery Street to the south alternative commuting routes and and Gregory Blvd. to the east. These Winfield Street (SR 136) is an east- influxes of traffic originally intended three roadways form a counter- west minor urban arterial with one to be served on the neighborhoods clockwise one-way traffic loop, traffic lane in each direction with primary arterial, East Avenue. experiencing an AADT of 9,500, 7,700 generally no parking permitted on and 18,800 vehicles per day (2017) either side of the road within the Raymond Terrace and Myrtle on the segments of East Avenue, study area. The roadway of Winfield Street have also been flagged as Cemetery Street and Gregory Blvd., Street is typically 34 feet wide (curbs potential alternative east-west respectively. South of Winfield not always present), and experiences routes that experience cut-through Street, East Avenue is approximately an AADT of 7,200 vehicles per day traffic. Currently, these streets 38 feet wide curb to curb. Gregory (2017). have some traffic calming and cut- Blvd. varies in width between through traffic deterring features Winfield Street generally serves as Cemetery Street and Winfield Street, already implemented. On Raymond the primary local road connection but reaches a minimum width of Terrace, the road operates one-way between the Metro-North Saugatuck approximately 36 feet curb to curb. westbound with no through trucks Station, I-95 entrance and exit ramps Cemetery Street is approximately 38 permitted and includes a diverter at exit 17 and the East Norwalk feet wide curb to curb. These three at the eastbound receiving leg of neighborhood. As such, Winfield roadway segments, or the ‘Cemetery its intersection with East Avenue. In Street can become an alternative Circle’ appear to be overbuilt in addition, no southbound left turns east-west route to I-95 at times when terms of width, as the roadways are permitted at this intersection, traffic is diverted from the severe typically support two vehicular lanes and four speed bumps were installed congestion and back-ups frequently and sometimes with and sometimes along the roadway to reduce experienced on the interstate.
61 Strawberry Hill Avenue to allow larger trucks through. of traffic congestion could also Additional improvements will be return to the existing levels on East Strawberry Hill Avenue is a north- made north of the Fort Point Street Avenue and thus return residential south minor urban arterial with intersection, which include new cut-through traffic back to existing one traffic lane and one bicycle pavement markings to eliminate the levels. Lastly, the signalization and lane in each direction, with parking lane drop and weaving of through- realignment planned at East Avenue, permitted on the west curb within traffic between Finch Street and Fort Fort Point Street, and the East the study area. Strawberry Hill Point. Both lanes at the southbound Norwalk Station parking lot driveway Avenue is typically 40 feet curb to approaches will be shared through would provide a significant benefit curb and experiences an AADT of and turning lanes. Additionally, the to traffic and pedestrian safety, as 9,300 vehicles per day (2017) within East Norwalk Station parking lot well as improve transit accessibility the study area. Within the study driveway will be realigned with Fort from the street network to the East area, Strawberry Hill Avenue serves Point Street to create a typical four- Norwalk Station and parking lots. the low-density residential uses way approach intersection with along it, and connects the East Increasing investments in alternative updated signalization. Norwalk neighborhood to greater transportation modes such as bus Norwalk north of I-95 and northeast In addition, the rail bridge above service, infrastructure for bicycles, of the study area. This roadway can Fort Point Street is planned to be and pedestrian infrastructure to also serve as an alternative north- shifted so that the roadway aligns encourage drivers to shift away from south connection to East Avenue, with South Smith Street to the west, private automobile modes in the connecting Post Road (US 1) to East creating a typical “T” intersection future could reduce the number of and South Norwalk. and eliminating the northbound “S” automobile trips in the neighborhood turn required for northbound traffic and reduce the degree of congestion Future Roadway Improvements on Fort Point continuing north on on busier streets. The Walk Bridge project, a large- South Smith Street. scale bridge replacement project, is The SoNo Collection Retail While the East Avenue improvements planned by CTDOT to replace three Development would not be considered a traffic Metro-North Bridges that cross The SoNo Collection is a newly calming project, the project would above East Avenue, Osbourne Street, opened mall including 730,000 gross have benefits by improving traffic and Fort Point Street. The project will leasable area of retail and hotel space flow south of Finch Street by also include roadway improvements that was completed in late 2019. The reducing weaving movements and below and adjacent to those bridge mall is located along West Avenue eliminating the bottleneck caused underpasses. in SoNo, just south of I-95, and was by the lane drop in the existing expected to generate a total of On East Avenue, the plan includes a condition. By improving the roadway 1,933 and 2,700 vehicular trips in the widening of the roadway below the throughput and maintaining two weekday PM and Saturday peak hour, bridge providing two travel lanes southbound lanes of traffic from I-95 respectively, per the Supplemental in each direction, a southbound in the north to Van Zant Street to the Traffic Impact Assessment prepared bicycle lane as well as sidewalks south, it is possible that in the short by Langan Engineering (2016). on both sides of East Avenue. The term the volume of cut-through Although the majority of vehicular roadway construction will also traffic on residential streets may trips to and from the development include lowering the roadway to experience a reduction. However, site were anticipated to originate provide additional vertical clearance it should be noted that induced from or depart to the I-95 entrance to support larger vehicles such traffic, or additional traffic attracted and exit ramps along West Avenue as trucks. Some residents have to the area due to the improved or Reed Street when I-95 is operating expressed concerns about the traffic conditions has the potential with acceptable levels of service, traffic impacts of lowering the road to increase in the long term. Levels there is a concern among some
62 residents of East Norwalk that periods of congestion and back-ups Figure 31: on I-95 may result in mall-generated PEDESTRIANS ON EAST AVENUE trips diverting to local roads as an alternative means of reaching the mall. As the Washington St Bridge could serve as an alternative means of getting to the neighborhood of SoNo and the mall, there is a possibility that during these congested periods on I-95, diverted mall-generated trips may pass through the East Norwalk neighborhood. This could potentially exacerbate existing conditions of congestion on East Avenue as well as increasing cut-through traffic on local residential streets.
Pedestrian and Bicycle Circulation Pedestrian Activity and Conditions The primary area of pedestrian activity within the study area occurs around East Norwalk Station. The two primary commuter parking areas are located on the northeast and southwest sides of the station, with East Avenue and the railroad tracks separating them. Therefore, commuters must cross under the railroad overpass and cross East Avenue either in the morning or evening. There is also a Park and Ride facility on Hendricks Avenue, west of East Avenue, approximately 1/2 mile from the station. This parking facility is free at all times, and therefore Pedestrians crossing the street on East Avenue approach a narrow section of sidewalk. Photo taken on 3/12/2020.
63 generates pedestrian traffic along improvements for pedestrians, as crosswalks across Hendricks the west side of East Avenue. including: Avenue are missing . The most significant gap in Gregory Blvd. and Roger Square East Ave and Route 136 (details above) the pedestrian network, at the ▶ Crosswalks and pedestrian Route 136 and Strawberry Hill Road intersection of East Avenue and ramps are missing. (details above) Winfield Street (Route 136), will be addressed as part of the East Avenue ▶ Painted geometric changes do Figure 34 summarizes the pedestrian Bridge Replacement and Roadway not adequately shorten the existing conditions and concerns Improvements project. On East crossing distance. detailed above. Avenue from the railroad overpass Gregory Blvd. and Emerson Street Bicycle Activity and Conditions to the intersection of Route 136, there is a narrow sidewalk that is ▶ This intersection is excessively In terms of bicycle activity, substandard in condition and width wide due to the convergence observations made during weekday and does not lead to pedestrian of Emerson Street and Roger am and pm peak periods indicated ramps or crosswalks at the Square, creating an expansive, only a few cyclists traveling through intersection. There is currently no unmarked space for pedestrians the study area, primarily utilizing pedestrian connection to the south to navigate. East Avenue to reach the East Norwalk Station. Of the 15 bicycle side of Route 136, and no sidewalk ▶ No crosswalks or pedestrian parking spaces available (at racks along the south side of Route 136 ramps are present. until approximately 500 ft. east of adjacent to the westbound station the intersection. After that, 500 ft. Gregory Blvd. and Cemetery Street building), seven were occupied. stretch of missing sidewalk along ▶ Crossing Gregory Blvd. to access However, bicycle activity increases the south side of Route 136, there is the west side of the cemetery on weekends, as observations a sidewalk present. Once completed, area from the east side of indicated a significant number of the East Avenue Bridge Replacement Gregory Blvd. is unmarked. cyclists utilizing Fort Point Street and Roadway Improvements project and Gregory Blvd. to reach Veterans will create a pedestrian connection ▶ A landscaped triangle creates an Park and Calf Pasture Beach. from north of the railroad overpass obstructed view of pedestrians for motorists. The existing bicycle network to that existing sidewalk on the south provides some connectivity to the side of Route 136. ▶ A pedestrian cut-through is northeast section of the study area On the west side of East Avenue, present on the southern tip of but does not provide a continuous north of the I-95 overpass, there is the landscaped triangle in this network of bicycle routes. The a missing pedestrian connection at location, but no crosswalk is bicycle facilities that are provided Hendricks Avenue. This intersection present. include striped bicycle lanes, bicycle includes an entrance ramp to I-95. East Avenue and Cemetery Street logos with directional arrows, and The highway entrance ramp has “Bike Lane” signs. crosswalks marked to align with ▶ Crossing Gregory Blvd. to access the east side of the cemetery Two-way dedicated bicycle lanes can existing sections of sidewalk, but be found on Fitch Street, as well as from the northwest corner to the area from the west side of East Avenue is unmarked. Strawberry Hill Avenue from Fitch southwest of Hendricks Avenue Street north, extending out of the there is no crosswalk. East Avenue and Hendrix Avenue study area. Shared lane markings While the general condition of the ▶ Some existing crosswalks are found on the block of Strawberry pedestrian network elsewhere provide a walking route across Hill Avenue between Fitch Street and is adequate, there are some key the highway entrance ramps, Stanley Avenue. Seaview Avenue locations that require intersection but pedestrian ramps as well has a dedicated bicycle lane in the
64 Figure 32: RAILROAD BRIDGE OVER EAST AVENUE
Photo taken on 3/12/2020. eastbound direction only, along Transit serve East Norwalk compared to 19 Veterans Memorial Park, terminating trains that serve South Norwalk. The at East Avenue. The designated route Rail average frequency of peak trains of the East Coast Greenway follows Metro-North’s New Haven Line at the station is 20 minutes, while Route 136 (Van Zant Street and provides commuter rail service to the frequency of off-peak trains Winfield Avenue, with a one-block the study area via the East Norwalk is generally 60 minutes. Weekend connection on East Avenue along the Station, which is located at 230 East service, which is hourly, is again west side of the cemetery), but no Avenue (see Figure 32). The average more limited than South Norwalk. bicycle route signs or markings are travel time to/from Grand Central is 68 Metro-North has no immediate plans present. minutes though this varies depending to increase service at East Norwalk Station. Figure 34 summarizes the existing on run and time of day. Service is conditions and concerns detailed more limited at East Norwalk Station above. compared to South Norwalk Station. For example, during the am peak, 11 New York bound trains serve East Norwalk compared to 21 trains that serve South Norwalk while in the pm peak, 11 New Haven bound trains
65 Figure 33: PLANNED TRANSPORTATION PROJECTS
Map of all current and planned transportation projects in East Norwalk. Graphic by NV5. 66 Figure 34: EXISTING PEDESTRIAN AND BICYCLE CONDITIONS
Map identifying links and gaps in pedestrian and bicycle infrastructure networks. Graphic by NV5. 67 Figure 35 below indicates ridership parking lot near the New York Bound at East Norwalk Station. Given the platform side of the station, houses more limited service at the station, a concession and restrooms, which it is not surprising that the number are open during am peak hours. of weekday rides is significantly Both the New York and New Haven lower than South Norwalk, which bound platforms at the station can averages about 6,000 weekday accommodate only four cars. As rides. East Norwalk is comparable to part of the Walk Bridge Program, other stations along the New Haven the station is being upgraded which Line with limited service such as will include the platforms being Southport (800), Rowayton (1,000), increased to accommodate ten train Green’s Farms (1,400), Riverside cars in both directions, increased (1,500), and Cos Cob (1,600). commuter parking (including Amenities at the station include handicap parking on both sides of bike racks, a bus-type shelter, the tracks), and new ADA elevators. waste receptacles and benches, There are three commuter permit and a TVM. A small building, in the parking lots at the East Norwalk Station which include a 50 space lot on the westbound side adjacent Figure 35: RIDERSHIP AT EAST NORWALK STATION to the station building, a 100 space lot near the intersection of Rowan Street and Osborne Avenue, and a 26 space temporary lot on the corner of Fort Point Road and East Avenue 2017 New Haven Line Inbound Outbound Total (see Figure 28). Each of the permit lots is open to daily parkers on Weekday Boardings 550 162 712 weekends. In addition, the Norwalk Parking Authority, which manages Weekday Alightings 162 550 712 all parking at the station, entered into an agreement with CTDOT at the end of last year, which provides Total Weekday Rides 712 712 1,424 117 spaces alongside the southside tracks and adjacent buildings off of Saturday Boardings 209 76 285 East Avenue on a temporary basis for daily parkers only. This parking Saturday Alightings 76 209 285 will be available until the CTDOT needs them for the East Avenue Total Saturday Rides 285 285 570 Bridge Replacement and Roadway Improvements project. Permit parking utilization is at 93% during Sunday Boardings 178 46 224 weekdays according to the Western 46 178 224 Connecticut 2018 Commuter Parking Sunday Alightings Survey (prepared for WestCOG by HART). Total Sunday Rides 224 224 448 In addition to the commuter lots, as Data from Metro-North 2017 Weekday Boardings mentioned earlier, there is a park and 2017 Weekend Station Boardings. Alightings based on boarding count.
68 and ride lot at Hendricks Avenue and I-95 that is utilized by commuters. Figure 36: EAST AVENUE RAILROAD BRIDGE The monthly fee for permits is $70 while daily parking costs $8. The Parking Authority issued 202 permits in 2017 for East Norwalk Station and there is a waiting list of approximately 136 people. A recent survey conducted for the Parking Authority indicated that 55% of the people traveling to the station during the morning commute carpooled, followed by 23% who drove alone, and 22% who walked. Only 3% used public transit to reach the station. In terms of where people parked, 36% parked in the temporary lot, followed by 21% who parked in the monthly southbound lot, as well as 21% who parked in the Rowan lot. The majority of commuters came from two zip codes, 06855 (55%) which includes East Norwalk south of I-95, and 06851 (35%) which includes East Norwalk north of I-95 as well as the neighborhoods north of East Norwalk and east of the Norwalk River (all the way to the border with the Town of Wilton). Bus The study area is served by two fixed Norwalk Transit District (NTD) routes; routes 7 and 11 (see Figure 37). Route 7 provides hourly service (from 6:20am to 7:11pm) on weekdays only, running between the Hub, Calf Pasture Beach, and Norden Park. Route 11 provides service every 40 minutes on both weekdays (from A bus passes below the East Avenue Rail Road 5:40am to 8:35pm) and Saturdays Bridge next to a narrow sidewalk. Photo (from 6:17am to 7:35pm), running taken on 3/12/2020. from the Hub to Norwalk Community College. On Routes 7 and 11, passengers may board anywhere along the route.
69 The average monthly ridership on Friday, and Saturday from 5:00pm Route 7 is 3,825 which accounts for 4% to 12:00am, and on Sundays from of the total monthly system ridership 12:00pm to 9:00pm. (88,003), while the average monthly As the pilot program period closes, ridership on Route 11 is 9,656 which WHEELS2U is proposing a permanent, accounts for 11% of the total monthly expanded service with an affordable system ridership (88,003). In terms $2.00 fare. In this next phase, service of boardings within the study area, hours would increase, adding a for Route 7, 5% (199) of the average Saturday noon to midnight shift. monthly boardings on the route take The area of service would also be place within the study area, while for expanded and a fourth shuttle would Route 11, 14% (1,645) of the average be added to the fleet, resulting in monthly boardings on the route take reduced wait times. This proposal place within the study area. is currently undergoing a public In addition to the two fixed routes, comment period and is not finalized. a large part of the study area (see Figure 37) is served by the new on- demand WHEELS2U shuttle service, which is the first microtransit service in Connecticut. The service which is a six month pilot program (started in September 2018 by the Norwalk Transit District) allows for the flexible routing and scheduling of shuttle buses. The objective of the WHEELS2U service is to improve connections between South Norwalk, the Maritime Aquarium, the SoNo Collection, the Wall Street area, and other attractions. By using an app, riders can request a pick up and drop off location anywhere within the WHEELS2U service area. Shuttle drivers also have an app in each vehicle to provide navigation, live traffic conditions, and real time pick up and drop off information. The service currently operates Thursday,
70 Figure 37: EXISTING TRANSIT SERVICE
Map showing Metro-North Railroad, and the #11 and #7 bus lines offering transit options in East Norwalk. Graphic by NV5. 71 5.6 Sanitation, Stormwater, Flooding, and Utilities
Utility Infrastructure may be more reliable than private Sanitary Infrastructure suppliers. The power supply companies As shown on Figure 38, the study area serving Norwalk are South Norwalk Fiber optic and high speed data is served by the City of Norwalk’s Electric and Water (SNEW,) which is connections are slowly working their sanitary sewer system, which is an independently owned and operated way into Norwalk’s infrastructure. Of enterprise fund, administered by the by the Second Taxing District, East the 22 internet service providers that Water Pollution Control Authority Norwalk Electric (Third Taxing cover Norwalk, 3 provide fiber optic (WPCA). In addition, as indicated District) and The Connecticut Light service. Optimum by Altice operates in the 2018 City of Norwalk Plan of and Power Company (CL&P.) SNEW in 4 zip codes in Norwalk covering Conservation and Development is the predominant supplier serving 26.8% of the City1, providing fiber (POCD), the Wastewater Treatment the TOD Study Area. SNEW provides optic cable service to residential Plant (WWTP) currently has an electricity to 6,500 customers and customers. Crown Castle Fiber average plant flow of 13 million water to over 9,5000 customers. and Altice Business both serve gallons per day (MGD) and is rated In addition to East Norwalk, businesses with fiber optic internet to treat an average daily flow of 18 SNEW serves customers in South service. MGD. It can treat 30 MGD through full Norwalk, West Norwalk, Rowayton, As of January 2020, small cell phone treatment and over 95 MGD through Silvermine, and Wilton. Established towers broadcasting 5G service are preliminary treatment. It recently in 1913, SNEW is governed by a board being mounted to street lights and completed a project to replace/ made up of seven elected Water and telephone poles. upgrade preliminary and combined Electric commissioners. This board sewer treatment equipment and has oversees all related affairs similar 1 https://broadbandnow.com/ an ongoing program to rehabilitate to the role of selectemen in towns. Connecticut/Norwalk the collection system and upgrade SNEW is responsible for maintaining pumps when needed. Finally, parks and other public spaces in the the POCD indicated that the City South Norwalk community. has adequate sewer capacity to accommodate new development. In addition to the local suppliers, CT has an open power market. The two major private suppliers are Eversource and United Illuminated (also known as Avangrid). Both of these raised rates by 19-24% starting in January 2020. Other private power suppliers serving Norwalk include Constellation, Clearview Energy, Public Power, Direct Energy, and Verde Energy. Local power supply
72 Figure 38: SANITARY INFRASTRUCTURE
Sanitary Infrastructure map showing locations of manholes and main lines by NV5.
73 Capacity For planning purposes, the 2009 Stormwater Infrastructure facility plan for the Norwalk Water The Norwalk Wastewater Treatment Pollution Control Facility assumed As shown on Figure 40, the study area Plant has a permit limit of 18 Million 2.51 persons per household with a is served by the City of Norwalk’s Gallons per Day (MGD). If the average typical per capita wastewater flow stormwater management system, flow over a 180 day rolling average of 100 gallons per day per person for which is designed to intentionally exceeds 16.2 MGD, the City must residents in the City of Norwalk. This capture, place, move, and treat develop and submit a plan for future equates to 251 gallons per day per stormwater runoff in order to WWTP capacity expansion to the unit. minimize pollution and/or flooding. Connecticut Department of Energy In addition, as indicated in the 2018 and Environmental Protection’s Newer development projects (i.e City of Norwalk Plan of Conservation Commissioner. As of April 1, 2020, Iron Works, SONO Pearl) have floor and Development, the City is the peak 180 day rolling average flow plans consisting of studios, and working towards compliance with within the last 12 months is 14.5 MGD 1 or 2 bedroom units and overall CT DEEP’s General Permit for the providing a current available flow occupancy per unit is less than 2.51 Discharges of Stormwater from Small capacity of approximately 1.7 MGD – persons/unit (2009 facility plan). Municipal Separate Storm Sewer it’s important to note that the rolling Assuming 2 persons/unit and a Systems (MS4) to protect waters of average flow is high due to extreme wastewater flow of 100 gallons per the state from contaminated urban wet weather during 2018 (double the day per person, a flow of 200 gallons stormwater runoff. The City also annual rainfall totals). per day per unit (gpd/unit) can be updated its Drainage Manual in 2017 to incorporate green infrastructure A look at some recent developments derived. Therefore, for every 500 and Low Impact Development yielded the information displayed new units, approximately 100,000 principles but will need to use more in Figure 39 on annual gallons of gallons per day of wastewater will be green infrastructure for stormwater effluent. discharged. management to comply with the MS4 permit and the Drainage Manual.
Figure 39: ANNUAL GALLONS OF EFFLUENT FROM RECENT DEVELOPMENTS
Name Units Location 2019 2018 2017
20 or 1 North 108 4,820,240 3,954,400 3,845,490 Iron Works Water Street 101 Washington 66 1,994,390 1,890,020 1,617,060 The SONO Pearl Street
74 Figure 40: STORMWATER INFRASTRUCTURE
Stormwater Infrastructure map showing locations of outfalls, endwalls, catch basins, manholes, and culverts by NV5.
75 Stormwater Management The 2017 Drainage Manual and Flood Zones Department of Public Works (DPW) Stormwater management practices do not allow any extra runoff or Based on current data within the are implemented in order to reduce volume to be discharged into the CSO project study area, the properties stormwater flow into the sewer system, based on the 25-year storm. most prone to flooding are the system and thus reduce peak storm Therefore, all new redevelopment parcels surrounding Mill Pond and flows into the Wastewater Treatment sites will have to provide detention Veteran’s Memorial Park as well as Plant. of the extra stormwater on site Route 136 where it crosses the river. The site of the wastewater treatment East Norwalk utilizes a combined and contain any additional water plant is also prone to flooding in the sewer system (CSO), meaning quality features that are required case of a storm event. These flood that both sanitary discharge and for underground detentions systems zones are subject to change given the stormwater use the same system. (eg. oil-water separators). uncertain sea level rise and climate For this reason, rain water can affect change projections. the waste water treatment capacity. Figure 42 indicates that portions of the study area are located within Figure 41: INUNDATION AT VETERAN’S MEMORIAL PARK the AE Flood zone, which as defined by FEMA are coastal areas with a 1% or greater chance of flooding, and additional hazard associated with storm waves. These areas also have a 26% chance of flooding over the life of a 30-year mortgage. In addition, participants at the first public workshop stated that flooding regularly occurs along Seaview Avenue and South Smith Street, and at Mill Pond and its surrounding properties.
Inundation at the marshy edges of Veteran’s Memorial Park. Photo Taken 3/12/2020.
76 Figure 42: FEMA FLOOD ZONES
FEMA Flood Zones Map.
77 5.7 Sea Level Rise
Norwalk Harbor is one of East Wastewater Treatment Infrastructure, Figure 43 Legend Norwalk’s greatest Assets, but in & Policy, which will likely be a the face of climate change and critical resource for any future rising sea levels, it is also one of the development in East Norwalk. The Road will flood at least greatest threats. Like many coastal State also offers The Connecticut every 30 days* communities, East Norwalk can Climate Change Preparedness expect more frequent and severe Plan: Adaptation Strategies for storms, increased daily flooding, Agriculture, Infrastructure, Natural Road will flood between and the migration or loss of critical Resources and Public Health Climate every 90 days and 10 marsh and island habitats. Change Vulnerabilities. The 2019- years* 2029 Citywide Plan emphasizes Both the City and the State are well the vulnerability of the Wastewater aware of the risks associated with Treatment Plant, located at Road will flood between rising seas and are implementing Liberty Point in East Norwalk. The every 10 and 100 years* important measures to mitigate Connecticut Department of Energy and adapt to current and future and Environmental Protection challenges. The City of Norwalk has (DEEP) and The Connecticut Daily Inundation with 0” invested in the following projects Institute for Resilience and Climate Sea Level Rise impacting East Norwalk: Adaptation (CIRCA) identified the ▶ Upgrade the Wastewater 20” sea level rise by the year 2050 Treatment Plant and pump projection as the one that should Daily Inundation with stations; enhance enforcement be used state-wide for planning 24” Sea Level Rise of sanitary sewer system purposes. This projection shows connection permits: $41m water inundating the edges of the Wastewater Treatment Plant on a Daily Inundation with ▶ Resolve chronic drainage 48” Sea Level Rise problems and implement daily basis and flooding the entire stormwater best management facility in the event of a severe storm. practices (such as those Figure 43 shows the daily inundation Daily Inundation with recommended in this plan): if 2ft, 4ft, or 6ft of sea level rise occur 72” Sea Level Rise $3.5m and highlights the roadways that ▶ Improve and repair Calf Pasture would be frequently inundated in Beach and Veteran’s Memorial as little as 30 years with 20in of sea Coastal Area level rise. This plan recommends Park: $3.2m Management Zone green infrastructure and low-impact At the state level, a new report is development (LID) strategies to help being compiled titled, Municipal reduce the negative effects of sea *Projected flood frequency Resilience Planning Assistance for level rise. assuming 20” sea level rise Sea Level Rise, Coastal Flooding, by 2050.
78 Figure 43: IMPACTS OF SEA LEVEL RISE
1/2-mile / 10-minute walk radius 1/4-mile /
East Avenue 5-minute walk radius
Strawberry Hill Ave.
Winfield St. (Rte. 136)
Van Zant St. (Rte. 136)
Gregory Boulevard
Road flood frequency based on Marshes Model (SLAMM) to Connecticut’s Rise data source: The National Oceanic and approximately 20” sea level rise by the year Shoreline (Connecticut Department of Energy Atmospheric Administration Office of Coastal 2050. Data source: 2016 Sea Level Affecting and Environmental Protection). Sea Level Management; last modified 3/2/2020. 79 Application Review by the any official of the state when making Norwalk Harbor Management regulatory decisions or undertaking Commission (NHMC) or sponsoring development affecting the Harbor Management Area, unless Pursuant to the CT General Statutes such official shows cause why a and Norwalk Code, the NHMC different action should be taken. reviews, for consistency with the Norwalk Harbor Management Plan, development proposals affecting the Pursuant to Sec. 22a-113p of the real property on, in, or contiguous Connecticut General Statutes, to the Harbor Management Area the Norwalk Harbor Management received by the Planning and Zoning Commission (NHMC) has reviewed the commissions and other City agencies, [add when complete] draft of the East including applications for coastal site Norwalk Transit Oriented Development plan review and proposals for new or (TOD) Plan prepared by Harriman amended City plans, regulations, or with support from RKG Associates, ordinances. and NV5. In accordance with Sec. 22a-113p of Insofar as the proposed East Norwalk the General Statutes and Sec. 69-21 TOD Plan may affect property on, in, of the Norwalk Code, a 2/3 vote of or contiguous to Norwalk Harbor, the referring City agency (including it is subject to review by the NHMC the Planning Commission and Zoning to determine its consistency with Commission), is required to approve the Norwalk Harbor Management a proposal that has not received a Plan prior to any action by the favorable recommendation from the Redevelopment Agency to approve NHMC. the East Norwalk TOD Plan. The In addition, the NHMC reviews requirements of this review are applications for projects subject to specified in Sec. 22a-113p of the state and federal coastal regulatory General Statutes, Chapter 69 of the programs, including structures, Code of the City of Norwalk, and the dredging, and fill proposals requiring Harbor Management Plan. approval from DEEP. Pursuant to Sec. 22a-113n of the General Statutes, a recommendation of the NHMC that is consistent with and adequately supported by the Harbor Management Plan with respect to a proposed project shall be binding on
80 Figure 44: COASTAL AREA MANAGEMENT (CAM) ZONE
1/2-mile / 10-minute walk radius 1/4-mile /
East Avenue 5-minute walk radius
Strawberry Hill Ave.
Winfield St. (Rte. 136)
Van Zant St. (Rte. 136)
Gregory Boulevard
More than half of the East Norwalk TOD Study Area falls within the Coastal Area Management Zone.
81 5.8 Market Analysis
Introduction for housing and amenities in since 2010, projections show the last decade. Norwalk is Norwalk’s job count stabilizing, This market analysis studied rapidly becoming more diverse; instead shifting workers into existing demographic and economic a declining number of white higher-earning jobs. The City’s conditions for Norwalk and East residents has been offset by growing knowledge economy Norwalk, and the market conditions growing Black, Asian, and will play an expanded role as the for a variety of uses in the study especially Hispanic/Latino New York City region continues area (within a half-mile radius of populations. While Norwalk’s its shift towards technology, the East Norwalk train station). The population is growing older, like information services, and life report includes an analysis of broad most suburban areas across sciences, and away from legacy demographic and economic trends, the country, the City has fared manufacturing. While the a review of real estate development better than most at attracting forthcoming SoNo Collection trends in Norwalk, and summaries of 20- to 34-year-olds since 2010. will provide an immediate the market potential for residential, Attracting these residents can boost to retail hiring, longer- commercial, and light industrial uses help protect the local economy term employment in the in the study area. against risks that come with an sector is projected to decline The following lists the key findings aging population. as nationwide consumer preferences continue to shift. that resulted from the market ▶ Local incomes and wages have analysis. To view the full report, see grown steadily, a trend not seen ▶ Norwalk’s residential Appendix A. in most parts of the state. Median development has taken on income growth of 12 percent different forms since 2008, with and average wage growth of an increase in location-focused Key Findings 14 percent since 2010 indicate mixed-use structures that ▶ Norwalk and Fairfield County that Norwalk’s residents and include multi-family housing. are some of Connecticut’s only workers have benefited from a The average density, or floor- communities experiencing strong national and New York area-ratio , of residential economic and population City metro economy. Norwalk’s buildings built since 2008 has growth. Between 2010 and 2017, median household income of been nearly four times that of Norwalk’s population grew by nearly $82,000, while not as high Norwalk’s pre-2008 structures. 4.6 percent to 88,537. Four of as the Fairfield County’s median, Hundreds of new residential the state’s eight counties lost makes it one of the state’s units in walkable, mixed-use population over that period. highest-income communities. areas like South Norwalk have played a key role in attracting 20- Fairfield County is the only ▶ Retail, Healthcare, and to 34-year-olds and subsequent Connecticut county projected to Professional, Scientific, and retail and restaurant amenities. experience population growth Technical Services remained between now and 2023. Norwalk’s largest employment ▶ The City’s overall housing market ▶ Shifting demographics have sectors in 2017. Despite five is reported to be strong, with changed Norwalk’s market percent employment growth housing prices and asking rents
82 on the rise. Despite a diverse developers. 15-minute drive may make housing stock, Norwalk is a high- attracting new retail to the area ▶ The study area’s market for cost market in a region with other a challenge. new retail and restaurant even higher-cost communities development is limited due to ▶ The 25 Van Zant Street like Greenwich. In 2018, the City’s its relatively medium density, office/commercial building median home sale price reached segregated land uses, and refurbishment and the $409,000, 13 percent higher lower income profile versus Spinnaker mixed-use project, than in 2013 (Fairfield County’s surrounding communities. East both near the train station, have median price saw no growth Norwalk’s population is not the potential to create a catalyst over that period). Median rents large enough to support most for a new “village center.” While grew to around $2,440/month. types of retail businesses on its community concerns over ▶ Demand for office space across own, and a rise in lower-income parking and traffic linger, the Fairfield County has slowed, residents means the study area two projects can help provide although refurbishment and use has less purchasing power than the population and worker conversions of existing spaces some neighboring communities. density needed to support some have provided new options for Opportunities may exist for additional amenities that the prospective firms. The Norwalk small footprint, unique retailers community desires. area’s 2018 average asking rent to succeed in the study area, but of $32.19/sf/yr was virtually equal small market demand and the to the county average. Negative presence of highly competitive absorption across the region in retail environments within a 2018 made any significant new office construction unlikely in the near term. Figure 45: ▶ Despite a strong overall market, STATION HOUSE RESTAURANT the East Norwalk study area’s small lots and historic character mean it has few suitable parcels for transformative development. Concerns over car traffic and parking may play less of a role in curtailing development activity than the study area’s layout and existing land uses. The vast majority of East Norwalk parcels are too small to accommodate new construction of a scale that Station House Restaurant on East Avenue. would attract most for-profit Photo Taken 3/12/2020.
83 Susceptibility to Change Analysis
The planning team examined the incompatible with the parcels within the study area for the surrounding predominant uses. Figure 46 Legend likelihood that the use or density Many of the current land uses, would change in the future. This like automotive, gas stations, is known as a Susceptibility to storage and contractor’s yards, Highly Likely to Change Change analysis and helps define are conforming based on the which parcels may be a catalyst current zoning, but may be for transit-oriented developments incompatible with future zoning Likely to Change and where more efficient use of changes based on their location land can be achieved. The parcels and desired uses within the that were deemed highly likely or neighborhood Potential to Change likely to change were the ones the ▶ Size, proportion, and enhanced planning team used to develop test value of the parcel if assembled fit scenarios (Figure 47, Figure 48, with two or three adjacent Figure 49, and Figure 50). The team parcels used these scenarios to understand the impact of the recommendations Based on the above factors, the on the physical character of East parcels most susceptible to change Avenue and certain connecting side based on the factors identified above streets. are illustrated in Figure 46. The following factors were considered while establishing parcels susceptible to change in the future: ▶ Current land use and/or vacancy ▶ Level of under-utilization of the parcels (e.g., a parcel with an auto-oriented use, a single- story structure, and/or a large parking area surrounded by higher density developments and efficient parking) ▶ Proximity to the train station (within a 5-minute walk of the East Norwalk Train Station) ▶ Current uses that are
84 6
Figure 46: PARCELS SUSCEPTIBLE TO CHANGE
1/2-mile / 10-minute walk radius 1/4-mile /
East Avenue 5-minute walk radius
Strawberry Hill Ave.
Winfield St. (Rte. 136)
Van Zant St. (Rte. 136)
Gregory Boulevard
This map illustrates the likelihood of a parcel to be redeveloped in the near future based on current conditions and projected trends.
85 East Norwalk TOD Plan Recommendations
7.1 Economic expert analysis. the area. Even if no change/(re-) development occurs, the East Development These recommendations were Norwalk community deserves 7.2 Land Use and developed through a integrated access to public infrastructure Urban Design approach which looked at the and a physical environment which intersections of results from the 7.3 Multi-modal Connectivity enhances their quality of life. These community engagement process and Access base recommendations should be described in Section 4, the analysis implemented regardless of other 7.4 Parking of existing conditions including RKG’s changes to improve the well-being market analysis and NV5’s traffic and 7.5 Open Space and of existing residents and business circulation study discussed in Section Recreation owners. 5, as well as an analysis of parcel 7.6 Utilities and Infrastructure susceptibility to change explained in Focus on Redevelopment Section 6. Other factors addressed 7.7 Implementation Redevelopment recommendations throughout this process include were developed around analysis of density and development capacity, parcels that are most susceptible sustainability, connectivity/mobility/ Background to Recommendations to change based on the research circulation and access, parking, undertaken and the criteria In order to determine the most open space, economic development developed during the study process. appropriate recommendations trends, and implementation. for transit-oriented development The criteria include the following: When looked at together, these around the East Norwalk Station, an ▶ Parcels lacking a highest and aspects of the planning process extensive analysis and community best use (a use which does not paint a robust picture of the engagement process was taken on maximize the potential of the challenges and opportunities facing to develop a holistic understanding land based on its location, or a East Norwalk, which are addressed of life in East Norwalk. The process use with a structure that does in the recommendations for transit- looked at the study area from both not maximize the potential of the oriented development surrounding a quantitative/analytical approach site allowed by zoning). as well as a qualitative/experiential East Norwalk Station elaborated on approach. Many different sources in this section. ▶ Parcels that have high potential to impact the neighborhood in a of data and feedback informed the Base Recommendations recommendations made in this plan. manner consistent with the plan The planning team sought to achieve A key aspect of this process goals. was to develop public realm the right balance of community- Developers and private investors recommendations that are driven aspirations tested against target under-used parcels as independent of any change in
86 7
Figure 47: CONCEPT FOR WINFIELD STREET REDEVELOPMENT
East Norwalk Train Station
Enhanced Street Trees and Plantings
2.5 Stories 3.5 Stories
Widened East Avenue (Walk-Bridge Program)
Widened Sidewalk with Cafe Seating
Improved Pedestrian Connectivity
*FOR ILLUSTRATIVE PURPOSES ONLY. NOT AN ACTUAL PROPOSAL.
87 redevelopment opportunities that various scenarios for redevelopment feasibility. The numbers (residential maximize potential based on current on the parcels most likely to change. units, retail/office space, parking or future zoning to generate profits These “fit studies” are a 3D analysis spaces, FAR, etc.) were studied for them and their institutional which develops building massing to against community demographics, investors. meet zoning and regulations, such market and real estate projections, as setbacks and height restrictions, and infrastructural capacity to ▶ New desired amenities while maximizing building and site understand the potential impacts of are feasible when they are efficiency. Various configurations of the proposed developments on the incorporated as a part of the retail, residential, office, and mixed community. redevelopment. use were tested on several sites. These redevelopment scenarios ▶ New amenities may not be These tests explored the capacity for were used to develop zoning financially feasible according to redevelopment on those sites and recommendations and design market analysis. the potential impact on the context. guidelines that balance community The existing market conditions, ▶ A planning change is much more preferences with opportunities for type of development, parking, and feasible when planned around property owners. currently under-used parcels. construction feasibility were all closely considered in determining A vital component to the successful the most feasible options. redevelopment of the study area is an explicit implementation plan. These development fit studies It is critical to set up rules so that were refined based on community the desired results are feasible on feedback to balance community the most susceptible parcels. The preferences with development susceptibility analysis looked at feasibility. 3D Visuals were developed land use, zoning, market conditions, to express the intended character and ownership to determine the of the proposed development likelihood of each parcel to be opportunities for the community redeveloped in the near future based to respond to. These studies were on current conditions and projected developed both in respect to trends. The planning team studied form and architectural identity, as well as numbers and market
88 Figure 48: CONCEPT FOR WINFIELD STREET REDEVELOPMENT: WINFIELD STREET
*FOR ILLUSTRATIVE PURPOSES ONLY. NOT AN ACTUAL PROPOSAL.
89 Figure 49: VIEW FROM LAWN OF ST. THOMAS THE APOSTLE TO CONCEPT FOR EAST AVENUE
*FOR ILLUSTRATIVE PURPOSES ONLY. NOT AN ACTUAL PROPOSAL.
90 Figure 50: CONCEPT FOR WINFIELD STREET REDEVELOPMENT: EAST AVENUE
*FOR ILLUSTRATIVE PURPOSES ONLY. NOT AN ACTUAL PROPOSAL.
91 7.1 Economic Development
There are many existing businesses of precision equipment, such as reduction of these vacant in the East Norwalk TOD Study Hanes Precision, to small businesses spaces, as well as understand the Area which are viewed favorably located in the Old Hat Factory needs of potential tenants. Such by members of the community, Building. These businesses foster assistance could be in the form particularly those along Fort Point a diverse array of jobs near the of expedited building permits Street, Fitch Street, and Van Zant train station. The thriving small for tenant improvements and Street. This plan promotes and create businesses are generally supportive assistance with any additional incentives for new development of the conversion of low rent yielding requirements that the tenants and redevelopment, while also industrial space into slightly higher have under the purview of the protecting existing businesses which rent yielding small business space. City. are thriving and contributing to the The growth of small businesses will ▶ Promote the formation of local economy. mean a higher volume of employees an East Norwalk Business to potentially patronize new This Plan recommends the following Improvement District – The City amenities near the train station. strategies to attract new high-quality should promote the formation small businesses while preserving ▶ Develop a regular of the Business Improvement existing fiscally-sound businesses: communication channel with District to work collaboratively area businesses – Multiple with the City departments, large-scale construction area businesses, and other projects are slated for the future stakeholders. Currently, the East 1. Support existing in East Norwalk. These projects Norwalk Business Association economic development may have the potential to disrupt performs this role by organizing activity along Fort Point existing businesses. The City events like Taste of East Norwalk. Street, Fitch Street, and should engage these businesses These relationships could be and develop an ongoing formalized to develop a Business Van Zant Street. communication channel with Improvement District. A Business them to convey City programs Improvement District could work and future infrastructure with the City to collaborate on improvements. The City should cleanliness, safety, community a. Support existing non- also work with the future engagement, marketing, polluting businesses that improvement planners to placemaking, beautification, generate high value jobs. develop a proactive solution to outreach, and advocacy. maintain the viability of these There is nearly 1.5 Million SF of ▶ Improve pedestrian businesses during construction. industrial space in the vicinity of connectivity – Improving the train station. Many businesses ▶ Market East Norwalk – East sidewalks and pedestrian have found this to be an affordable Norwalk has vacant industrial connectivity is of critical opportunity to start up their spaces. The City should importance. Enhancing the operations. The mix of business collaborate with owners pedestrian realm serves to varies from small manufacturers and brokers to promote the promote transit use among
92 and understand where parking Figure 51: MIXED USES ON VAN ZANT STREET is available within a walking distance. A formal system of sharing excess parking on one site for a potential land use on another site within walking distance will allow for the efficient use of parking resources. The proponent will have to show that the proponent is planning to lease the parking space for long-term. If for any reason the parking is lost, the proponent will have to find another parking space or cease the operation of the use. ▶ Designated truck routes for small businesses – Small businesses contribute to the coastal village character of East Norwalk. These small businesses also need to be accessible by trucks for them A 3-story mixed-use node on Van Zant Street. to conduct their businesses Photo taken 3/12/2020. efficiently. The neighborhood local employees and ensures available public parking has concerns with trucks on the that employees, visitors, and resources within the area neighborhood streets creating residents can safely walk from and the small lots that are safety challenges. The City and the station to their destinations. available for short-term and the businesses should work If connectivity is not improved, long-term leases – As the study together with the neighborhood ridership will continue to drop area redevelops, it will be crucial to designate specific truck routes and it will be increasingly difficult to maintain a supply of both to avoid conflicts between to advocate for increasing rail long and short-term parking to residents and businesses. The service to improve accessibility support the growing needs of truck routes should avoid the and convenience in East local businesses. An inventory neighborhood streets and these Norwalk. of the available parking spaces routes should be enforced. can help businesses navigate ▶ Promote an inventory of their parking requirements
93 ▶ Use City programs and proper sidewalks on the commercial fiber connectivity in the area for initiatives such as the Main property side. Additionally, the both new and existing buildings Streets program, the façade head-in parking configuration and leveraging the Third Taxing improvement program, small extends the road asphalt surface District’s existing high-quality power business loans, and other from the business property without resources presents an opportunity programs to rejuvenate any clear definition delineating the to target IT and tech-related existing building spaces to road, sidewalks or property lines. businesses. – Many of these businesses don’t even attract new businesses As part of this effort, the City may Commercial operations in East provide any vegetated screening to also consider implementing a Tax Norwalk typically yield rents visually enhance this condition. This Increment Financing (TIF) District in the $20-25 per square foot kind of environment suppresses the around particular areas targeted for per year range. These rents are quality of life for residents who use redevelopment as a way to divert not high enough to support the streets on a daily basis. tax revenues for the sake of public reinvestment in properties. infrastructure improvements. To attract new tenants, some reinvestment may be required. c. Promote these areas The City should use its business to attract future small support initiatives like the Main d. Consider creating Street Program, the Façade businesses through the City’s incentives for desired uses Improvement program, and economic development (i.e. light industrial, maker others to assist property owners activities. economy,) by allowing with improvements to their East Norwalk’s existing inventory of property owners to develop properties. This reinvestment commercial and industrial spaces assistance will allow property additional FAR, reducing offers an opportunity to create a parking requirements, owners to attract tenants with mixed-use village center around the attractive rates which will lead to train station. The commercial and allowing additional ground the improvement of properties industrial spaces in East Norwalk are coverage, etc. and the overall enhancement of most conducive to small to medium- The current industrial and office the physical realm. sized businesses. The City can market conditions do not support market these spaces to future small any reinvestment in these property businesses who are looking to locate types without a zoning change b. Assist in enhancing in Norwalk. The commercial spaces given existing vacancies and low the curb appeal of local available around East Norwalk allow rents. To ensure that the existing businesses to improve the the City an opportunity to offer industrial and commercial spaces pedestrian environment future businesses a range of options are preserved in East Norwalk from small commercial space close (“good neighbor” policy). from completely transforming to to the East Norwalk village center residential uses, it will be critical to The City should work with businesses to larger office space in other areas create financial incentives for these to improve the pedestrian of Norwalk such as the Merritt 7 property owners to maintain and environment around their properties parkway. grow their businesses. Allowing for the benefit of neighbors. To ensure that the spaces are ready upper floor residential, artist live/ Strategies to improve the pedestrian to attract future high value small work, maker spaces, and restaurants environment are presented in the businesses, the City will have to will allow these properties to Design Guidelines (Appendix E.) work with landowners and utility generate additional revenue to The transitions where residences face companies to ensure that the spaces support their existing industrial uses. commercial or industrial uses lack have fiber connectivity. Improving
94 e. Maintain existing commercial land uses along Figure 52: 230 EAST AVENUE PROJECT Reynolds Street. The City has expressed a need for land to remain in industrial use to promote jobs and the tax base. The existing industrial land bound by Fort Point Street, Reynolds Street, and South Smith Street is not suitable for future residential uses because of its proximity to the City of Norwalk Waste Water Treatment Plant. In addition, these parcels are not near any other residential areas. Reynolds Street itself is flanked by industrial uses on both sides of the street, limiting the possible visual impact of the industrial properties on adjacent residential parcels. For this reason, this plan recommends maintaining the existing industrial land uses along this stretch of parcels. A train passes behind the transit-oriented mixed use development underway at 230 East Avenue. Photo taken 3/12/2020.
95 7.2 Land Use and Urban Design
Throughout the public engagement maintained, primarily owner- process, East Norwalk residents occupied homes. The City of Norwalk Figure 53: RESIDENTIAL strongly advocated for the overall has a homeownership STREET maintenance and enhancement of percentage of up to 60%. Through the small coastal New England village the community engagement ambiance that makes the community process, several constituents so attractive. The feedback received expressed concern that many of expressed a strong consensus the properties in the north-west toward ensuring that any new quadrant of the study area are non- changes or development should compliant, housing more occupants be in keeping with East Norwalk’s than what is allowed per zoning. In traditional marine character and addition, some of these properties village identity. This resulted are owned by landlords who live out- in recommendations to target of-town and have shown a lack of development around key nodes investment and maintenance in their within the study area, preserving the East Norwalk properties. In order to intact residential neighborhoods, preserve, strengthen, and enhance and improving connectivity between the existing fabric, it is critical that those neighborhoods and the the City encourages responsible development nodes. Nodes are ownership and stewardship within A typical residential street in East Norwalk. defined as significant connection reasonable property standards. The Photo taken 3/12/2020. points within an area. most effective way for the City to achieve this will be through a multi- pronged approach that increases b. Infill developments on code enforcement capacity, engages lots that undergo change absentee landlords in a positive that are appropriate to the 1. Preserve and enhance way, and develops effective tools physical context. and methods for dealing with non- existing residential East Norwalk’s existing residential compliant properties. neighborhoods. areas are defined by a scale of 2 Additional Readings: to 2.5 stories, with a maximum The Center for Community Progress height of 35 feet. The density ranges from 1 to 6 dwelling units a. Code enforcement of non- has provided helpful resources with the Building American Cities depending on the existing zoning. compliant properties and Toolkit addressing the issue of non- To best preserve and enhance these land uses. compliant properties and land uses: existing neighborhoods, any new development should either be a The East Norwalk TOD Study Area https://www.communityprogress. rehabilitation of an existing building, intersects with several strong net/problem-property-owners- preserving the exterior architectural existing neighborhoods. These pages-201.php character, or new construction neighborhoods contain well-
96 Tax Incentive Funds (TIFs) and Business Improvement Districts (BIDs) are great tools for encouraging favorable development. These could be used to create incentives for an innovative use like an incubator space in East Norwalk to support and attract small businesses and contribute to economic growth.
respectful of the density and activity which does not disrupt character of other properties in the 2. Concentrate active the existing fabric of the well- surrounding context. land uses on side streets established residential areas. In this and important nodes to scenario, East Avenue would serve as generate focused areas of a central spine connecting the side street villages and nodes of activity. c. Support sidewalk activity; establish side- improvements with public street villages along Van subsidies. Zant and Winfield Streets. b. Promote amenities Current regulations dictate that and services on both sides individual property owners are a. Encourage a critical of the street to foster a responsible for the construction mass of amenities and and repair of sidewalks adjacent to concentration of activities. neighborhood services their parcels. To help mitigate this In establishing these selected burden, The City replaces sidewalks along select side streets Side-Street Villages, it is important wherever they do major roadway and nodes to foster an that development happens along improvements. The upcoming East active pedestrian-oriented both sides of the street. Studies Avenue roadway project will replace environment. have shown two-sided pedestrian- long stretches of deteriorating oriented retail and mixed-use streets sidewalk on East Avenue. While The small sizes of neighborhoods thrive, while streets with businesses this will address the conditions on within East Norwalk produce on only one side of the street East Avenue, it does not address relatively low demand for amenities. struggle to remain viable. Parking the poor condition of sidewalks Amenities could include various requirements and guidelines will throughout the Study Area. Placing goods and services with a public need to be carefully considered so the primary responsibility of benefit, parks and open spaces, that access to business is convenient sidewalk maintenance on individual or pedestrian infrastructure. The for patrons, but not at the cost of the property owners has resulted in heavy traffic on East Avenue, pedestrian realm. These Side Streets many of the sidewalks falling into which bisects the TOD Study Area, should feel distinctly different from various states of disrepair and is discourages pedestrian activity. East Avenue, with parking at the rear a detriment to walkability and While vehicular accessibility can be of buildings, and a well-landscaped, accessibility. Walkability has been an an economic driver for businesses, vibrant, and safe environment for important component of community a lack of pedestrian accessibility pedestrians. Given the concentration discussions. Connected, continuous, can be equally detrimental to of these nodes within the study area, safe, and walkable sidewalks would economic growth. The analysis it would be feasible to park in one address the concerns raised during and public feedback suggests a village, and walk to all of them. this planning process. preferred approach is to focus and promote new development around The City should look into programs critical nodes and along quieter side and funding sources that could better streets branching off East Avenue to c. Promote active and support sidewalk improvements. establish a network of concentrated continuous street frontages
97 to encourage walkability and two stories in East Norwalk is likely to occur within the existing vitality. highly unlikely to be profitable. The neighborhoods. Such development compromise is a maximum height of should be in keeping with the scale In addition to concealing parking 3.5 stories – this height is not much and character of its context and behind buildings, developers can taller than the existing buildings, the City should discourage parcel improve the pedestrian realm by but, based on fit studies, would assembly in these areas to maintain considering the transparency of their provide enough building square the lower density of the existing storefronts, signage, shade (awnings feet to attract developers and spur neighborhood fabric. and street trees), planting, and street economic growth for the community. furniture. By stepping buildings back slightly to create sidewalks wider d. Limit building heights than the City’s standard 7’ and b. Promote a moderate and diversify rooflines and even small plazas where feasible, increase in height and businesses can promote a diverse density within the proposed features to enhance the range of activities and attractions in EVTZ. Maintain existing traditional New England front of their stores. Such guidelines zoning for established character. should not homogenize new residential areas. In addition to limiting the heights of development, but create cohesion buildings, the architectural character and vibrancy for the neighborhood. This Plan suggests an approach which is respectful of the context of the buildings themselves should and character of what is there, but enhance East Norwalk’s coastal New allows just enough added density to England identity. While there should 3. For future foster viable economic growth and be certain guidelines to set limits developments, encourage added public amenities to capture a and constraints, these should not be a neighborhood-scaled better quality of life for all who visit, so rigid that the built environment live, or work in East Norwalk. This becomes monotonous. Part of what built form, while still gives East Norwalk its classic New providing some added recommendation does not affect the well-established existing residential England character is the variety height and density closer neighborhoods, but instead and diversity of its architectural to the train station and recmmends a zoning change for vocabulary. Varying the rooflines and important nodes. East Avenue and certain connecting adding features such as dormers can streets (the proposed EVTZ District) help create the desired aesthetic. to encourage redevelopment a. Allow a maximum of 3.5 within that new district that is Stories from the average linked to increased walkability and e. Encourage developers to grade of adjacent streets. appropriate economic development. provide public amenities by offering incentives such as One of the architectural allowing additional floors or characteristics that gives East c. Encourage infill Norwalk its identity as a small increased FAR. development in residential coastal New England village is the The public engagement process low height of the buildings. This areas that is appropriate to revealed a menu of amenities feature is cherished by residents the existing context. which the community would like who desire to maintain this identity While the focus on development to see added in East Norwalk such and quaint atmosphere. However, for this plan is near the train as pocket parks, plazas, and open the market analysis indicates that station and other identified nodes, space. By creating a trade-off where any new development lower than some residential development is a developer can add floors or units,
98 and therefore increase profits, by providing such a public amenity, Figure 54: the City can foster fruitful public- SAINT THOMAS ROMAN CATHOLIC CHURCH private relationships that will go a long way in enhancing the physical environment and quality of life for East Norwalk community members. Amenities may include: ▶ Atrium ▶ Fountain/Water Feature ▶ Green Infrastructure ▶ Pedestrian Plaza ▶ Public Art ▶ Public Parking Facilities
4. Provide flexibility for Saint Thomas Roman Catholic Church on the future development East Avenue. Photo taken 3/12/2020. of the Saint Thomas the Apostle Parish Family b. Create flexible Center on the west side of zoning to encourage the East Avenue. redevelopment of the Saint Thomas Family Center property as mixed-use. a. Encourage reinvestment Zoning and guidelines should be structured in such a way that would in the Saint Thomas Church allow for the flexible redevelopment properties. of this property into mixed-use down The analysis conducted as part of the road. As one of the larger parcels this study does not suggest that in East Norwalk, this property the properties owned by Saint holds the greatest potential for Thomas the Apostle Roman Catholic viable redevelopment. The parcel Church on East Avenue are likely to is flanked by primarily commercial change in the near future. The City uses, meaning that redevelopment should consider other means to of these parcels would not disrupt or encourage and provide incentives heavily impact the existing fabric of for reinvestment in these properties the established adjacent residential to ensure their continued vibrancy neighborhoods. and contribution to the community until the conditions become more suitable for redevelopment.
99 7.3 Multi-modal Connectivity and Access
In East Norwalk, Transit Oriented particularly at intersections, would Development means more than Figure 55: SIDEWALK also encourage more people to walk simply encouraging development ON VAN ZANT STREET or bike rather than drive. Additional near the train station. Part of this contributions to the public realm study focused heavily on all aspects include shade-giving street trees, of transit, traffic, and parking in plantings, comfortable street East Norwalk. Many community furniture, and better signage – both members who participated in public for safety and wayfinding. workshops or online surveys stated that all aspects of multi-modal travel present challenges in the study area b. Promote mid-block and expressed concerns that any new pedestrian crossings to development or added density would only amplify these issues. In order improve connectivity. to make sound recommendations To better support existing and future for successful implementation businesses within the proposed Side- of transit-oriented development, Street Villages, mid-block pedestrian this study addressed traffic and Deteriorating sidewalk conditions on Van crossings should be implemented infrastructure and carefully Zant Street. Photo taken 3/12/2020. wherever it is safe and desirable to considered ways to implement do so. Future developments and improvements for bicyclists and Because commuter parking is a roadway improvements should pedestrians to promote healthier major challenge around the East consider the design of effective mid- and safer neighborhoods for all. Norwalk Train Station, an enhanced block crossings, especially where pedestrian realm will encourage they will improve the connectivity residents and employees to walk between areas of activity, to create between the station and their a convenient and safe experience for 1. Improve pedestrian destinations and alleviate the those patronizing local businesses on connectivity to the train competition for parking spaces. foot. Where possible, parking should station, amenities, and This enhancement also adds to be located behind buildings rather services. the quality of life and well-being than on street and neck-downs/ for those able to walk or bike – bump-outs should be implemented healthy activities with innumerable at crossings to improve pedestrian a. Improve the sidewalks physical and mental health benefits. visibility and safety. and pedestrian environment Safety issues currently discourage community members from walking along priority pedestrian or biking in East Norwalk. Repairing edges to encourage walking sidewalks, reconfiguring traffic to the train station and other patterns, and improving bike nodes of activity. lanes and pedestrian crossings,
100 c. Promote wider sidewalks gather community feedback in the the City can address this concern where possible to categories of housing, commercial and encourage more bicycle usage and mixed-use development, to help relieve traffic and congestion incorporate street trees and connectivity and access, and public problems. Storage solutions such landscaping. space. Within the connectivity and as public bicycle lockers should Where feasible, new developments access category, improved signage be provided at the train station should provide a wider sidewalk was one of the most preferred tools and other areas of activity in East (wider than the standard 5’) out of the sixteen images shown. Norwalk, such as Veteran’s Memorial to allow room for the desired Adding signs such as “share the Park. increased pedestrian traffic, the road” serve to remind drivers of the implementation of street trees and laws as they may change road-to- plantings for shade and stormwater road. Drivers visiting from out-of- d. Support City efforts to filtration, and areas for street town may not otherwise be familiar implement a micromobility furniture such as outdoor tables with share-the-road policies. program in the future. and seating in front of cafés and restaurants, or benches where Since 2018, the City of Norwalk has appropriate. The combination of b. Extend bicycle lanes along been planning on piloting a bike planting and furniture will make the key routes. share program in the urban core pedestrian realm a vibrant and active during 2019 and expanding the experience elevating the attraction As recommended by the 2012 program to other parts in the City of East Norwalk as a destination to Bike and Pedestrian Plan, the City during 2020. The program priority live, work, and visit. This will further recently painted new bike lanes on was to focus on first and last mile entice future development and Strawberry Hill Avenue and Gregory mobility as well as to offer visitor help Norwalk to grow and diversify Blvd.. The City should continue to type of services. The City contracted economically, making it a more use the recommendations in this with a bike share company at no financially, socially, and ecologically report to connect the broken links in cost to implement these programs. resilient community. the bicycle infrastructure network. Before the pilot was set to launch, the company decided to go in another direction and focus their business 2. Improve bicycle rider c. Provide safe bicycle elsewhere. At the same time, the comfort and safety. storage at the train station focus on safety and liability for the and other significant bike and scooter share industries changed worldwide. It was decided a. Improve driver awareness locations. that these type of programs would through enhanced signage. A lack of safe storage options be on hold until such time as it make discourages some people from using At the second public workshop, sense to implement safely in the City bicycles to travel from home to work. the planning team distributed a of Norwalk. The priority has shifted Bicycle theft is particularly common visual preference survey (which to a Vision Zero safety platform around train stations. By providing was also made available online) to focusing on pedestrian safety and appropriate bicycle storage options, expanding bike routes and sharrows
101 Citywide as the preferred alternative With the increased use of GPS, more The State Department of mobility options. visitors and tourists can find cut- Transportation recently issued through streets that were previously 90% design drawings for road only known to locals. To avoid the improvements along East Avenue 3. Improve traffic East Avenue traffic, many drivers intended to improve traffic congestion and road divert their routes to cut through the configurations, signals, utilities, safety conditions. quieter residential areas, disrupting sidewalks, and drainage. the quality of life for community These efforts are in alignment members. In order to deter this cut- with the analyses conducted as a. Reduce speeds on local through traffic, the City should study part of this study and should the impacts of implementing the streets to deter cut-through largely address many of the traffic following traffic-calming measures traffic. challenges currently hindering the on appropriate streets: One of the greatest challenges for East Norwalk community if paired East Norwalk is the amount of traffic ▶ Reconfigure traffic patterns with other recommendations in this that cuts through the neighborhood and signals (CTDOT is currently report to reduce car-dependence by from I-95 to the north to Calf Pasture working on designs for improving multi-modal connectivity Beach to the south. Participants at reconfiguring East Avenue; see options. the first public workshop identified recommendation 3-b.) several factors contributing to this ▶ Implement small rotaries at problem: intersections. c. Support pedestrian and traffic improvements for ▶ East Avenue to Gregory Blvd. ▶ Enforce the 25mph speed limits from Exit 16 is the most direct on Gregory Blvd. and Strawberry Gregory Blvd. and accessible route to the Hill Avenue. Potential improvements to increase beach. safety and walkability on Gregory ▶ Increase police presence to Blvd. include the following: ▶ The presence of four gas stations better enforce traffic laws. near the train station attracts ▶ Bump-outs excessive truck traffic. ▶ Improve signage to increase driver awareness of laws and ▶ Crosswalks ▶ An over-abundance of traffic applicable fines. lights disrupts traffic flow. ▶ Lane shifting/realignment ▶ The configuration of turning lanes is confusing and leads to b. Support planned dangerous situations. City and CTDOT ▶ The reduction of lanes under projects/ infrastructure the railroad bridge creates a improvements. bottleneck affect. The City is currently investing ▶ Once traffic opens up again past $3,600,000 in upgrading traffic signals the cemetery, cars are more to develop intelligent transportation prone to speeding along Gregory system tools to mitigate the impacts Blvd.. of traffic diverting off I-95 onto Norwalk Streets.
102 Figure 56: EAST NORWALK RAILROAD BRIDGE
The East Norwalk Railroad Bridge will be replaced as part of the CTDOT Walk Bridge Program. East Avenue will be lowered and widened in an effort to relieve traffic congestion. Photo taken 3/12/2020.
103 7.4 Parking
some areas, on-street parking is needs of all users of parking. 1. Reduce parking the only viable solution. On-street conflicts for residents and parking is also often the most businesses. convenient solution for business patrons with quick errands. For this 2. Manage parking supply. reason, it is recommended that the a. Implement a residential/ City mandate short-term (half-hour, business parking permit one-hour, or two-hour) parking a. Promote shared parking program. limits for on-street parking to among property owners. One way for the City to better facilitate frequent turnover, ensuring Another approach for addressing enforce parking and fair access is availability of the most accessible the high demand and low supply to implement a permit program spaces. Larger parking lots behind of parking is to establish shared- requiring residents and businesses the buildings could accommodate parking agreements among property (owners and employees) to display a more long-term parking (three- owners. Often adjacent uses have permit to park in designated zones. hours +). different peak hours, which allows The needs of businesses, residents, for businesses to share a parking and commuters create a high lot so long as their peak demand demand for parking spaces in East c. Improve enforcement hours do not overlap. For example, Norwalk and conflicts consistently to increase turn-over and/ a church may have a high demand arise. Parking regulations are or reduce spill-over onto for parking on the weekend, but unclear and not always enforced. residential neighborhood the lot sits vacant the remainder The City should provide clear of the week. Restaurants are guidelines, communicated through streets. most active in the evenings, while well-designed signage, and an easy- Commuter parking on residential coffee shops are more active in the to understand process for obtaining streets due to a lack of spaces at the mornings. Concerns around liability a permit and enforcing who has station is a challenge for residents and enforcement may prevent permission to park where. of East Norwalk. As noted above, such arrangements. By creating residents have expressed frustration formalized agreements, the City can at the lack of clarity and enforcement alleviate these concerns and foster b. Provide striped and surrounding parking regulations. collaborative relationships among managed on-street parking Implementing new strategies and property and business owners policies must be teamed with that benefit businesses owners, where feasible to support increased enforcement to ensure employees and customers. short-term parking needs appropriate implementation of of current and future the new policies. Enforcement also businesses. builds trust between the community and the City as the community The small size of parcels in East expects the City to implement and Norwalk limits on-site parking. In enforce fair policies to meet the
104 b. Implement wayfinding research what technologies are being increasingly more convenient and and signage to manage used in neighboring communities more pleasant than driving. and which are most popular/ existing supply efficiently. common; separate apps for adjacent Concerns about parking may be cities can be frustrating for drivers. b. Consider charging for on- related to the actual number of The City will need an alternative street parking near the train spaces or to a perception that there for those without smartphones or is a lack of spaces. Raising the who are not comfortable with such station to increase turnover visibility of the existing parking is technology to ensure access for all. of the most convenient an appropriate strategy and well- spaces. designed wayfinding signage can The East Norwalk community alter this perception and create a currently benefits from free parking. better user experience. Such signage 3. Reduce parking While that is an asset in most areas, should clearly identify where public attracting customers who may parking is available, time limits, demand. otherwise be deterred by parking and costs. Signage that shows costs, it can also be detrimental walk and bike distances and times to access around the station and between parking areas and popular a. Unbundle parking spaces contribute to conflicts related to destinations can help people plan from future mixed-use parking. By charging a small fee for their trips to reduce the use of cars and developments near the train some of the most desirable spaces thus the accompanying congestion. station. close to the station, and ensuring Better parking arrangements with enforcement, the City can increase clear signage encourages users to Separating dwelling units or the turnover of these spaces which park once and walk or bike to their business spaces from dedicated are typically occupied by commuter various destinations. parking spaces increases flexibility. vehicles who take the train to work Developers can require tenants to and leave their cars for the entire rent parking spaces separate from day. c. Implement parking their units. This ensures that only payment technologies that tenants who need a parking space get one, increasing the availability. increase convenience for This also encourages residents to Figure 57: ENW STATION users. think more critically about their PARKING SIGN New technology has made a variety transportation options and walk or of creative parking solutions much bike if feasible, helping to lower the easier to implement. Many apps overall demand on parking. This is aid drivers in finding and paying for a particularly attractive option near parking ahead of time. These apps train stations, such as the case in East can also help implement shared Norwalk, as public transportation parking agreements. The City should and micro-mobility options become
Permit Parking Only sign at East Norwalk Train Station. Photo taken 3/12/2020
105 7.5 Open Space and Recreation
developers should be encouraged Accessible open space can come in 1. Encourage active to vary their setback from their many forms and benefit all who visit, pedestrian spaces in neighbors when possible. Creating a live, or work near it. the form of enhanced large setback or opening up a corner sidewalks, pocket parks, will create space for public plazas, pocket parks, and open space. plazas, and publicly d. Reconsider bike While density is encouraged around lane configurations on accessible open spaces. the train station and along key side streets, this should be balanced with Strawberry Hill Avenue and a. Promote building the implementation of new parks Fitch Avenue. setbacks along street- and open spaces, even if on a small The City should consider adding an frontage that encourage scale. A well-connected series of additional southbound bicycle lane small parks, plazas, and open spaces a variety of pedestrian or reconfiguring the lanes along has more impact than one large Strawberry Hill Avenue and Fitch activities. isolated park/plaza/open space. Avenue so that both bike lanes are By encouraging developers to adjacent to the curb which would set their buildings back to allow improve bicycle accessibility and for a wider sidewalk, a range of c. Create incentives for safety as well as have a traffic pedestrian-oriented activities can developers to provide calming affect by narrowing the be implemented which add to the amenities and usable public perceived travel way. vibrancy of the streetscape and enhance the connectivity of parks, open spaces such as plazas open spaces, and other recreational and pocket parks. amenities. Depending on the depth of One of the most effective ways to 2. Enhance neighborhood the setback, expanding the sidewalk achieve the implementation of new could provide room for plantings, open space is through fostering access to water. street trees, street furniture, and mutually beneficial public-private more users to share the sidewalk. relationships. By allowing developers to add more units or increase the a. Provide signage and FAR of their project in exchange for wayfinding that guides b. Promote variation in some form of public amenity, the residents to water. developer can increase their profits building forms at the street One of East Norwalk’s greatest level to allow for the creation while contributing to the creation of an attractive public realm. This assets is its proximity to the Harbor of plazas and publicly further benefits the value of their and the 35-acre Veteran’s Memorial accessible open spaces building/s and makes any new Park that welcomes the public to project more palatable to existing the waterfront. Veteran’s Memorial In addition to setting buildings Park features basketball courts, back to allow for wider sidewalks, residents and business owners who may otherwise oppose the change. a lacrosse field, a soccer field,
106 Figure 58: NRVT TRAIL MAP
volleyball courts, a playground, Norwalk public boat launch ramps, boat rentals, picnic areas, and a pavilion. As one of the few points of public MERRITT PARKWAY NRVT LEGEND access to the waterfront in East Perry Ave Norwalk, the City should promote Off Road Completed
West Rocks Rd
Off Road Under Construction and enhance accessibility and use
Off Road Planned of this park. One way to achieve Newtown Ave
Broad St On Road Completed this goal is to provide signage and
Main St NRVT North to Merritt wayfinding to guide residents and Aquarium to Union Park visitors to the water from some of the 1.4 miles active interior nodes recommended • Off road, 10’ wide firm-surface trail • 1.8 mi. completed; next 1-mile under 123 New Canaan Ave construction (2019 completion) in this Plan. Indicating walk and • Follow NRVT markers from Aquarium Westport Avenue bike distances and guiding people 7 down the best pedestrian-oriented RIVERSIDE CEMETERY 1 Riverside Ave routes to the water will serve to help THE GREEN Cross St connect the interior parts of the neighborhood with the water and Mill Hill Historic Park
Belden Ave stand as a continuous reminder of Wall St Harbor Loop Trail (HLT) 3.0 miles total loop this asset which is so integral to the •LIBRARY Union Park •CITY HALL • Travels east bank of river quality of life in Norwalk. (opposite Aquarium) • 1.7 mi. of boardwalk and paved West Ave trail (partially completed), gaps connected via on-street routing • Begin at the bridge south of Children’s Museum Aquarium, follow HLT signs 1 •MATHEWS PARK • Connects to NRVT in downtown b. Prioritize the Lockwood Mansion East Ave Norwalk and returns to Aquarium • Not recommended for bikes or improvement of sidewalks East Norwalk strollers at this time RR Station 136 Completed OYSTER Planned SHELL PARK and pedestrian crossings on
Fort Point St Smith St Connecticut Avenue routes that lead to the water.
MARITIME AQUARIUM Van Sant St East Norwalk South Norwalk In order to encourage a concentration Seaview Ave of pedestrian activity along key 1st St Gregory Blvd Washington St VETERANS routes that lead to the waterfront PARK Cove Ave and Veteran’s Memorial Park, the
5th St
S Main St St Water City should prioritize these routes for NRVT SOUTH improving sidewalks and crosswalks. Aquarium to Calf Pasture Beach South Norwalk RR Station 2.4 miles to Calf Pasture Beach •TAYLOR These routes can establish a cohesive Dr. Martin Luther King Dr PARK • On-road in bike lanes or “sharrows” and sidewalks network of active, pedestrian and • Follow the NRVT markers beginning at bridge south of bicycle-friendly streets that ensure Aquarium the public always feels connected 136 •CALF PASTURE to the water, even when it is out of BEACH sight. NORWALK RIVER VALLEY TRAIL
The Norwalk River Valley Trail System Map. Image source: Norwalk River Valley Trail. (2020, 03 04). Maps and Trails: Norwalk. Retrieved from Norwalk River Valley Trail: http://nrvt-trail.com/maps/norwalk/ 107 c. Complete the Norwalk toward the water. The waterfront and a vibrant corridor connecting River Valley Trail System. is a key feature providing East East Norwalk to the retail and Norwalk’s identity as a coastal amenities on the other side of the The Norwalk River Valley Trail (NRVT) New England village. In addition river. is a non-profit organization with the to improving accessibility of the There is a wide stretch of under- goal of connecting 30 miles of trails waterfront, maintaining as many utilized grassy area between from Calf Pasture Beach in Norwalk visual connections to the water as the road and a stonewall with a up to Rogers Park in Danbury through possible will help to reinforce that narrow sidewalk down the middle, Wilton, Ridgefield, and Redding. identity and ensure that the unique leaving ample room for expansion This will be a 10’-wide handicap- character of East Norwalk remains of the sidewalk into a wide multi- accessible multimodal trail for all intact. users. Parts of the trail have already modal path with added amenities been completed and funds are such as benches and additional currently being raised to complete planting. Treating Seaview Avenue the project. As part of this effort, as a promenade would also open some on-road improvements have 3. Consider creating up opportunities to incorporate already been completed through a special pedestrian areas for exercise, pop-up activities, East Norwalk between Oyster Shell vendor carts, and places to promenade along congregate, creating an active and Park in the northern portion of the Seaview Avenue as an TOD study area, to Taylor Park to vibrant streetscape. the south along Seaview Avenue, amenity for the entire Cove Avenue, Fifth Street, part of City of Norwalk. Gregory Blvd., and the loop through b. Incorporate resilient Veteran’s Memorial Park. Part of landscaping. the NRVT system includes the a. Integrate a safe, multi- Given the current flooding issues Harbor Loop Trail (HLT) – 3 miles of use path for pedestrians along Seaview Avenue, this would off-road trail along the water. An and bicyclists along Seaview be an ideal location to implement isolated segment of this loop has Avenue into the Norwalk a bioswale or other type of green been completed past the Water infrastructure to help manage Treatment Facility and is referred River Valley Trail Network. stormwater in a way that also to as the Norwalk River Esplanade. In addition to supporting and contributes to the aesthetics This TOD Plan supports the promoting the completion of the of the avenue as a promenade. completion of this effort to connect planned NRVT system, the City Bioswales are a series of connected the Esplanade to other segments should consider incorporating rain gardens which serve to slowly of the trail including Veteran’s Seaview Avenue as a particularly filter stormwater runoff as it Memorial Park and Edgewater Park. important segment of the trail. The enters the groundwater supply. City should prioritize this project as existing configuration of Seaview An overabundance of paving part of the larger vision for creating Avenue acts as a threshold between causes water to quickly run off a multimodal network of connected East Norwalk and the Harbor, as well impervious surfaces, overcharging open spaces. as connecting East Norwalk to the the groundwater supply with rest of the City. Veteran’s Memorial contaminated water. By selecting Park is a popular destination for appropriate inundation-tolerant walkers, joggers, bikers, boaters, d. Preserve views toward plants with the capacity to and athletes who all come to use the the water. extract toxins through their roots, park’s many recreational resources. contamination and flooding during Where possible, the City should All users would benefit from the storm events can be drastically make efforts to preserve open space enhancement of Seaview Avenue as reduced. and streetscapes that create views a welcoming threshold into the park
108 Figure 59: SEAVIEW AVENUE EXISTING CONDITIONS
Figure 60: SEAVIEW AVENUE CONCEPTUAL SKETCH
Opportunities Gathering Areas for vendors and pop-up activities Multi-Modal
Bioswales
Improved pedestrian connectivity and accessibility
A conceptual sketch showing Seaview Avenue as a pedestrian-oriented promenade.
109 economy through a series of farmers d. Implement community 4. Promote community markets, or the establishment of a gardens where feasible. gardens. grocery store co-op as an alternative to a bigger box store. The following locations, averaging 3,500 sf, should be studied as a. Activate passive and potential community gardens: unused open spaces with c. Promote community ▶ Roger’s Square community gardens. engagement, skill-building, ▶ Ludlow Commons Elderly One of the public amenities that and education for youth the community expressed a strong Housing desire for through the engagement populations. ▶ The East Norwalk Library process was the implementation Community Garden programs can ▶ Saint Thomas Church of community gardens. The City come with a broad range of benefits, should evaluate existing open particularly for youth involvement. ▶ Large Private Parcels Susceptible spaces and designate those that are Getting children and teens involved to Redevelopment in growing their own food teaches either underutilized or unused for ▶ The Vacant Lot Near Exit 16, Next important life-skills and instills the community garden space. to Rite Aid significance of reframing agricultural practices around ecologically ethical b. Provide the community methods. Community gardens with access to fresh produce. also foster place attachment and a sense of land stewardship. By The public engagement process teaching these values to the younger also revealed a strong desire for community members, the City a small, affordable grocery store. can foster the next generation of Unfortunately, the current market community advocates to ensure the analysis indicates that a grocery continued resilience of East Norwalk store is not a viable additional use in as a vibrant place to live, work, and East Norwalk given current demand visit. and the proximity of existing grocery stores. Community gardens are one way to creatively address this gap. Another method is farmer’s markets which are becoming increasingly popular as a social activity as the slow food movement grows. Providing community gardens could give access to fresh produce and could help stimulate the local
110 Figure 61: POTENTIAL COMMUNITY GARDEN LOCATIONS
Saint Thomas Church 1/2-mile / 10-minute walk radius 1/4-mile /
East Avenue 5-minute walk radius
Strawberry Hill Ave. Vacant Lot
Rogers Square
Library Winfield St. (Rte. 136)
Ludlow Commons
Van Zant St. (Rte. 136)
Gregory Boulevard
Map depicting potential locations for community gardens in East Norwalk.
111 7.6 Utilities and Infrastructure
The infrastructure analysis one another. The primary solution and maintenance, education conducted by NV5 revealed that the is to reduce impervious surfaces and performance monitoring, City’s current sanitary sewer system (buildings and paving) as much as and innovative or exemplary is adequate to support the level of possible. Section 1.4.2 of the City’s performance. The City should set a development suggested by the test Drainage manual (updated 2017) goal to achieve SITES requirements fits completed for this plan. discusses LID site planning and for all new major developments, design strategies and goes into detail even if the project does not pursue The City updated its Drainage on the protection of riparian buffers certification. manual in 2017 to incorporate green by enforcing setbacks from wetlands infrastructure and Low Impact For more information about SITES and other critical ecosystems. Development principles. Further visit www.sustainablesites.org. Strategies such as ground floor efforts should be taken to implement parking (as opposed to surface green infrastructure for stormwater parking), building site selection and management to comply with the massing, topographic grading for the c. Enhance green City manual as well as CT DEEP’s desired movement of water across infrastructure networks. General Permit for the Discharges the site, and the implementation of of Stormwater from Small Municipal Green infrastructure offers a green infrastructure such as green Separate Storm Sewer Systems (MS4) broad range of “soft engineering” roofs and rain gardens are some of in order to protect state waters from approaches to address conflicts the tools that developers can use to contaminated urban stormwater between the built environment minimize the environmental impact runoff. and ecological systems. Green of their building/s. infrastructure brings ecology back into human and urban systems, resulting in a wide range of benefits b. Encourage developers to for community members as well as 1. Implement innovative seek SITES qualifications for the environment. The City should strategies for resilient projects. consider developing programs to stormwater management implement the following green Just as LEED offers a sustainability infrastructure: and a healthier rating for buildings, SITES does environment. the same for landscapes. It is a ▶ Rain Gardens – Rain gardens comprehensive assessment of a help to filter toxins out of project’s impacts on the health of stormwater runoff from roads, a. Promote low impact local and regional ecosystems. The buildings, and other impervious development principles. SITES assessment addresses the surfaces. The roots draw categories of context, pre-design contaminants out of the water There are practices that can reduce assessment and planning, water, while the layers of soil and gravel negative environmental impacts and soils and vegetation, materials serve to slow down the water help human and natural systems selection, human health and well- as it enters the groundwater to better coexist in harmony with being, construction, operations supply. Rain gardens therefore
112 act two-fold to clean and slow community gardens, the City options for capturing energy water, as would naturally occur, should consider establishing a from the sun. This could be so as not to overburden the program to educate and promote solar fields in vacant lots, solar groundwater supply and prevent residents to grow pollinator structures doubling as shade severe flooding issues. habitat on their properties. canopies over parking areas, Creating networks of habitat solar panels on rooftops, or even ▶ Bioswales – Bioswales are will ensure the health and artful solar power-collecting art essentially a series of rain viability of community farming installations. gardens and check dams (to efforts and support local natural further slow water runoff) often ecosystems. implemented along the side 2. Provide reliable power of a road. Bioswales are highly ▶ Green Roofs – Roads and and fiber availability. effective at capturing and parking lots are often seen as the treating a large quantity of water primary source of stormwater in a storm event. runoff, but buildings take a close a. Encourage energy and second, particularly in denser ▶ Artful Rainwater Design – Rain Internet providers to provide areas such as East Norwalk. Gardens, Bioswales, and other By implementing green roofs, economical, reliable, stormwater management tactics developers can increase the renewable energy, and can be designed in a way that appeal of their building while provide adequate coverage contribute to aesthetic and also capturing and filtering social public amenities. for neighborhood residents stormwater at its source. The and businesses. ▶ Urban Forest Canopy – City should establish a program Fostering a connected, diverse to create incentives for the ▶ Service providers should urban street canopy promotes implementation of green roofs, be encouraged to provide clean air, provides critical habitat especially those that are publicly reliable, high speed service to for many species, and increases accessible. neighborhood residents and the aesthetic appeal and value of businesses in an economical ▶ – While less common the surrounding environment. Blue Roofs fashion. The City should consider than green roofs, blue roofs are providing incentives to providers ▶ Permaculture – Open Space and designed with a similar intention to improve reliability and access Recreation Recommendation to capture, store, and slow to service that is consistent with #4 is to promote community down the release of stormwater the East Norwalk Neighborhood gardens in East Norwalk. The that comes into contact with goals, as well as the overall goals City should do so with the building rooftops. Building for the entire City of Norwalk. principles of permaculture rooftops are one of the largest in mind to foster sustainable groups of impervious surfaces agricultural practices that contributing to stormwater benefit the health and well-being management challenges and of the community while avoiding should be considered with as any detrimental impacts on the much weight as parking areas natural environment and local when addressing stormwater ecosystems. management on site. ▶ Pollinator Habitat – In ▶ Solar Power – Solar technology conjunction with permaculture is constantly evolving to offer programming around a variety of state-of-the-art
113 7.7 Implementation
Figure 62: TIMELINE AND RESPONSIBILITIES FOR RECOMMENDATIONS
RESPONSIBLE RECOMMENDATION TIMELINE PARTY 7.1 Economic Development Support existing economic development activity along Fort Point Street, Fitch 1 Street, and Van Zant Street Support existing non-polluting businesses that Ongoing City + Chamber a generate high value jobs. of Commerce Assist in enhancing the curb appeal of b local businesses to improve the pedestrian Ongoing Private environment (“good neighbor” policy). Promote these areas to attract future small City + ENNA + c businesses through the city’s economic 0-3 years ENBA + Chamber development activities. of Commerce Consider creating incentives for desired uses Planning (i.E. Light industrial, maker economy,) by Commission d allowing property owners to develop additional 0-3 years + Zoning far, reducing parking requirements, allowing Commission additional ground coverage, etc. Maintain existing commercial land uses along Ongoing City e Reynolds Street. 7.2 Land Use and Urban Design
1 Preserve and enhance existing residential neighborhoods
Code enforcement of non-compliant properties Ongoing City a and land uses. Infill developments on lots that undergo change 3-5 years City (Regulatory), b that are appropriate to the physical context. Private Support sidewalk improvements with public 0-3 years City c subsidies.
114 RESPONSIBLE RECOMMENDATION TIMELINE PARTY Concentrate active land uses on side streets and important nodes to generate 2 focused areas of activity; establish side-street villages along Van Zant and Winfield Streets Encourage a critical mass of amenities and neighborhood services along select side streets 0-3 years City + Private a and nodes to foster an active pedestrian- oriented environment. Promote amenities and services on both sides of 0-3 years City + Private b the street to foster a concentration of activities. Promote active and continuous street frontages 0-3 years City + Private c to encourage walkability and vitality. For Future developments, encourage a neighborhood-scaled built form, while still 3 providing some added height and density closer to the train station and important nodes. Allow a maximum of 3.5 stories from the average Ongoing City a grade of adjacent streets. Promote a moderate increase in height and b density within the proposed EVTZ. Maintain Ongoing City existing zoning for established residential areas. Encourage infill development in residential 5+ years City c areas that is appropriate to the existing context. Limit building heights and diversify rooflines d and features to enhance the traditional New Ongoing City + Private England character. Encourage developers to provide public e amenities by offering incentives such as allowing Ongoing City additional floors or increased FAR.
115 RESPONSIBLE RECOMMENDATION TIMELINE PARTY
4 Provide flexibility for the future development of Church properties as mixed use.
Encourage reinvestment in Saint Thomas Church 5+ years City a properties. Create flexible zoning to encourage the City + Zoning b redevelopment of the church properties as 3-5 years Commission mixed-use. 7.3 Multi-modal Connectivity and Access
1 Improve pedestrian connectivity to the train station, amenities, and services. Improve the sidewalks and pedestrian environment along priority pedestrian edges to 0-3 years City + Private a encourage walking to the train station and other nodes of activity. Promote mid-block pedestrian crossings to 0-3 years City + Private b improve connectivity. Promote wider sidewalks where possible to 0-3 years City + Private c incorporate street trees and landscaping. 2 Improve bicycle rider comfort and safety.
Improve driver awareness through enhanced 0-3 years City a signage. b Extend bicycle lanes along key routes. 0-3 years City
Provide safe bicycle storage at the train station 0-3 years City d and other significant locations. Support city efforts to roll out a bike share 0-3 years City e program in East Norwalk this spring. 3 Improve traffic congestion and road safety conditions.
Reduce speeds on local streets to deter cut- 0-3 years City a through traffic. Support planned City and CTDOT projects/ Ongoing City b infrastructure improvements.
116 RESPONSIBLE RECOMMENDATION TIMELINE PARTY 7.4 Parking
1 Reduce parking conflicts for residents and businesses.
Implement a residential/business parking 0-3 years City a permit program. Provide striped and managed on-street parking b where feasible to support short-term parking Ongoing City + Private needs of current and future businesses. Improve enforcement to increase turn-over c and/or reduce spill-over onto residential Ongoing City + Private neighborhood streets. 2 Manage parking supply.
Promote shared parking among property 0-3 years City + Private a owners. Implement wayfinding and signage to manage 0-3 years City + Private b existing supply efficiently. Implement parking payment technologies that 0-3 years City + Private c increase convenience for users. 3 Reduce parking demand.
Unbundle parking spaces from future mixed-use 0-3 years City a developments near the train station. Consider charging for on-street parking near the b train station to increase turnover of the most 3-5 years City convenient spaces.
117 RESPONSIBLE RECOMMENDATION TIMELINE PARTY 7.5 Open Space and Recreation Encourage active pedestrian spaces in the form of enhanced sidewalks, pocket 1 parks, plazas, and publicly accessible open spaces. Planning Commission a Promote building setbacks along street-frontage Ongoing + Zoning that encourage a variety of pedestrian activities. Commission + Private Planning Promote variation in building forms at the street Commission b level to allow for the creation of plazas and Ongoing + Zoning publicly accessible open spaces. Commission + Private Create incentives for developers to provide City + Zoning c amenities and usable public open spaces such as Ongoing Commission plazas and pocket parks. City + NRVT d Reconsider bike lane configurations on 0-3 years + Bike/Walk Strawberry Hill Avenue and Fitch Avenue. Commission 2 Enhance neighborhood access to water.
Provide signage and wayfinding that guides 3-5 years City + Private a residents to water. Prioritize the improvement of sidewalks and City + Bike/Walk b pedestrian crossings on routes that lead to the 0-3 years Commission water. c Complete the Norwalk River Valley Trail System. 5+ years NRVT + City City + Planning Commission + d Preserve views toward the water. Ongoing Private + Zoning Commission Create a special pedestrian promenade along Seaview Avenue as an amenity for the 3 entire City of Norwalk.
118 RESPONSIBLE RECOMMENDATION TIMELINE PARTY Integrate a safe, multi-use path for pedestrians a and bicyclists along Seaview Avenue into the 5+ years City Norwalk River Valley Trail Network. Provide the community with access to fresh 0-3 years City + ENNA + b produce. Private Promote community engagement, skill-building, Ongoing City c and education for youth populations. d Implement community gardens where feasible. 0-3 years City + ENNA 7.6 Utilities and Infrastructure Implement innovative strategies for resilient stormwater management and a 1 healthier environment. a Promote low impact development principles. Ongoing City + Private
Encourage developers to seek SITES Ongoing City b qualifications for projects. c Enhance green infrastructure networks. Ongoing City + Private
2 Provide reliable power and fiber availability. Encourage energy and Internet providers to provide economical, reliable, renewable Ongoing City a energy, and provide adequate coverage for neighborhood residents and businesses.
119 Report Card Figure 63: EXAMPLE IMPLEMENTATION REPORT CARD A helpful tool to follow up and ensure successful implementation of this plan is a “report card” TOD IMPLEMENTATION REPORT CARD like the example shown in Figure 63. The entities identified in the Task ID# Overarching Recommendation implementation table would be Prioritize the Improvement of Sidewalks and Pedestrian Crossings on responsible for developing their own 2B Routes that Lead to the Water report cards with relevant metrics appropriate to their scope and should self-evaluate progress toward plan goals annually. For example, Sub-task Date Metrics Next Steps The City is responsible for prioritizing Identify routes leading to ie. 4 Routes, 6,000 linear Inventory Sidewalk 2020 the improvement of sidewalks and water feet, lead to water Conditions pedestrian crossings on routes that ie. 2,000 linear feet of lead to water. In the first year the Inventory sidewalk sidewalk need to be Begin to repair and city might start by identifying these conditions on those 2020 repaired, 500 feet need to replace sidewalks routes and taking an inventory of routes sidewalk conditions along them. As be fully replaced Begin to repair and sidewalks are repaired and replaced, ie. 25% of degraded replace sidewalks on 2021 Continue repairs the city should record the linear sidewalks have been fixed feet of sidewalk that are fixed and those routes compare that to the total linear feet Continue repair and ie. 50% of degraded of sidewalk identified and use this replacement of sidewalks 2022 Complete repairs sidewalks have been fixed to calculate annual progress as a on select routes percentage of work completed. Monitor conditions; All sidewalks leading to ie. 100% of degraded maintain a safe and water have been repaired 2023 sidewalks have been fixed accessible pedestrian or replaced. environment.
120 East Norwalk Neighborhood TOD Plan Prepared for the City of Norwalk Prepared by Harriman | NV5 | RKG Draft Report: March 2020 Last Updated: 06.16.2020
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