Chapter 6

Homes And Smart Growth

Introduction

Across multiple iterations of its Comprehensive Plan, in other documents and as a part of several planning efforts, the Town of Williston has recognized the need for housing. Previous Comprehensive Plans include objectives aimed at encouraging a wider range of housing types in Williston as well as policies for increasing the number of units considered affordable by households with incomes at or below the regional median income. The need for new development in Williston to further its housing goals was reiterated as part of the 2020-2022 Taft Corners Form-Based Code project. In its work on the project, the Planning Commission recognized that additional tools and policies should be explored to ensure housing goals are met. In 2023 Williston completed a Housing Needs Assessment to better understand and quantify the trends of increasing housing scarcity and unaffordability. This assessment identified key findings about housing in Williston and policy and programmatic responses the town may choose to take. Since the assessment was done, the Town has adopted several bylaw amendments that support the creation of more homes, and particularly affordable homes. Notable among these is the adoption in 2023 of Inclusionary Zoning as an alternate path to the Town's growth management system. Inclusionary Zoning requires any proposed development of five or more homes to include a minimum percentage of affordable homes, or else go through growth management and pay in lieu. This chapter discusses recent trends and the current state of housing in Williston, actions the town is taking now in the context of regional and statewide housing shortage and unaffordability crisis, and proposed policies and programs for the Town to implement to address housing needs during the life of this Plan and beyond.

Goals: In 2050, Williston is...

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Livable

...because the town supports the growth of housing stock with clear regulations and high standards for subdivision and site design. Most new residential development is situated in the Taft Corners Form Based Code District, which is a thriving center of commerce including markets, restaurants, and local businesses, and has beautiful green spaces/parks for people to relax and recreate. Abundant and diverse housing opportunities make Williston more livable, affordable and welcoming to people who wish to live here, including some of Williston's workforce. As a result, those workers who live in Williston have substantially reduced their commuting distance, which allows time for other activities. Some workers commute to their jobs by walking or biking, which improves their health, as well as reducing traffic impacts and carbon emissions. The benefits of more housing opportunities make it easier for local employers to hire and retain workers.

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Resilient

...because a greater diversity of homes makes the town more resilient and adaptable to future changes. When we have a diverse housing stock, it makes it possible for people to stay in Williston if their life circumstances change. Establishing a dedicated funding source for the Housing Trust Fund will make the fund more sustainable and more usable in furthering a variety of housing goals.

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Equitable

...because a diversity of people, including people of different races, genders, sexual orientations, gender identities, ages, marital statuses, family sizes, religious creeds, colors, national origins, economic statuses and physical/mental abilities, can find homes in Williston that are affordable, safe, healthy and energy efficient. All new residential developments integrate at least 10-15% of affordable homes, with some developments integrating many more affordable homes.

Three Things to Know

1

WILLISTON HAS A HOUSING SHORTAGE, ESPECIALLY OF AFFORDABLE HOMES.

Demand exceeds the supply of new homes, driving prices upward. Home sale prices and rents are increasing at a faster pace than incomes, resulting in decreased affordability.

2

THE SHORTAGE OF AFFORDABLE HOMES HAS MULTIPLE SOCIETAL IMPACTS.

Many jobs in Williston rely on low wage workers, and many people who work in Williston struggle to find affordable housing and are forced to commute long distances. This makes it difficult for employers to hire and retain workers.

3

THE STATEWIDE HOUSING CRISIS REQUIRES A COORDINATED RESPONSE

Recently adopted Vermont statutes (Act 47 and Act 181) overhaul Vermont's planning framework for coordinating state, regional, and municipal land use, and establish housing targets that all towns must strive to achieve.

Three Things Public Engagement Told Us

1

WILLISTON IS A DESIRABLE PLACE TO LIVE

When asked what they value most about Williston's homes and people, respondents said they most appreciate the small-town identity and rural nature of Williston while still being close to shopping centers, restaurants and places like Burlington. People view Williston as a safe and beautiful place to live. Williston is centrally located, with convenient access to Burlington and proximity to "everything you need," while also close to lots of recreation options, conserved land and open space.

2

THE LACK OF AFFORDABLE HOUSING IS THE GREATEST CHALLENGE FACING WILLISTON

Over 50% of responses to queries about the town's challenges agreed that affordable housing is the number one priority for Williston. There are not enough housing options for workers and for those earning less than the median income. Additionally, respondents expressed concern about the lack of housing diversity and the mismatch between size of housing and household size. Participants voiced that the town has an obligation to address these challenges by increasing the supply of affordable homes, increasing density through infill and smaller lot sizes, supporting a better mix of housing for older and younger people, and by providing a diversity of housing options, including smaller individual homes. People want new housing in Taft Corners.

3

WILLISTON'S PEOPLE WANT ADDITIONAL HOUSING OPPORTUNITIES FOR A DIVERSIFYING POPULATION

The biggest challenge facing Williston's economy is the limited housing options that inhibit people from living and working in town. Local businesses, schools and the town administration face challenges in finding and retaining workers. The town should encourage mixed use development where housing and businesses are built in the same vicinity. There is a need for more affordable housing and a transit-oriented development pattern.

Housing Tenure

Figure 1: Housing stock by tenure, Williston and Chittenden County, 2023.

As of 2023, Williston has 4,725 dwellings.1
Existing housing units. Chittenden County Regional Planning Commission. Chittenden County Housing Dashboard. [Accessed](https://www.town.williston.vt.us/vertical/sites/%7BF506B13C-605B-4878-8062-87E5927E49F0%7D/uploads/Williston_Housing_Needs_Assessment_Final_Report_4-18-2023.pdf) 4/2/2025
Figure 1 shows how Williston's homes are classified by tenure, as compared to Chittenden County overall. Vacant homes include vacant units for sale or rent and units that have been sold or rented but are not yet occupied. Seasonal homes are homes used or intended for use only in certain seasons or for occasional use throughout the year. 69% of homes in Williston are owner-occupied, as compared to 60% in Chittenden County.2
Housing stock by tenure, Williston and Chittenden County, 2023. U.S. Census Bureau: American Community Survey 5-year estimates (Table B25003, B25004). Accessed 4/2/2025 [from](https://www.housingdata.org/profile/housing-stock/housing-units) Housing stock | HousingData.org - Directory of affordable rental housing.

Housing Is Becoming Less Affordable

Figure 2: Median Williston Home Sale Price: 1990-2024

Beginning in the 1960s, the number of new dwellings in Williston grew steadily each decade, increasing from 400 in 1960 to over 4,400 in 2020. Table 1 below shows that the annual rate of housing growth was highest during the 1960's at 12.7%, dropped during the 1970's, 80's and 90's, and declined even further, to roughly 2%, during the 2000's and 2010's.

Figure 3: Average Annual Rate of Increase in Housing Costs and Income

While demand for housing has increased, supply has not kept pace. This puts pressure on the housing market and drives prices upward. With home sale prices and rents increasing faster than incomes, housing in Williston has become less affordable. The average sale price of a median home in 2023 was $500,000.4
Median home sale price, Williston, Vermont: 1990 – 2024. Vermont Department of Taxes, Property Transfer Tax (PTT) records, 1990-2024. Accessed 4/2/2025 at https://www.housingdata.org/profile/homeownership-costs/primary-home-sales.
5
Town of Williston Planning Department, Chittenden County Regional Planning Commission (CCRPC), and Vermont Housing Finance Agency, 2023. Housing Needs in Williston, Vermont. P [12](https://www.town.williston.vt.us/vertical/sites/%7BF506B13C-605B-4878-8062-87E5927E49F0%7D/uploads/Williston_Housing_Needs_Assessment_Final_Report_4-18-2023.pdf) https://www.town.williston.vt.us/vertical/sites/%7BF506B13C-605B-4878-8062-87E5927E49F0%7D/uploads/Williston_Housing_Needs_Assessment_Final_Report_4-18-2023.pdf.
Table 1: Housing Units in Williston, Chittenden County and Vermont
1960
1970
1980
1990
2000
2010
2020
Town of Williston
400
908
1,284
1,874
3,036
3,652
4,484
annual change
-
12.70%
4.10%
4.60%
6.20%
2%
2.28%
share of county housing
1.80%
3%
3.10%
3.60%
5.20%
5.50%
6.14%
share of county growth
-
6.20%
3.50%
5.50%
17.20%
9%
11%
Chittenden County
22,467
30,668
41,339
52,095
58,864
65,722
73,085
annual change
-
3.70%
3.50%
2.60%
1.30%
1.20%
11.20%
State of Vermont
136,307
165,068
223,199
271,214
294,382
322,539
334,318
annual change
-
2.10%
3.50%
2.20%
0.90%
1%
3.65%

The Shortage of Affordable Homes Has Multiple Societal Impacts

For the family living paycheck-to-paycheck, or those at risk in their current living situation, access to affordable housing is pivotal to their safety and long-term stability. Sen. Alex Padilla Vermont Statute defines "affordable" housing is either 1) owner-occupied housing that costs 30 percent or less of the annual income of a household earning 120% of the County median income, or 2) rental housing that costs 30 percent or less of annual household income at 80% of the County median income.6
Vermont Planning and Development Statutes Online. Title 24: Municipal and County Government, Chapter 117: Municipal and Regional Planning and Development. Subchapter 001: General Provisions; Definitions. (24 V.S.A. § 4303). Accessed 7/9/2024 at https://legislature.vermont.gov/statutes/section/24/117/04303#:~:text=context%20otherwise%20requires%3A-(1)%20%E2%80%9CAffordable%20housing%E2%80%9D%20means%20either%20of%20the%20following%3A,defin.
Households spending more than that are considered to be "cost burdened." Housing cost burdens are borne disproportionally by renters. Because of rising housing costs and stagnant wages, two-thirds of all renting families in Williston spend more than 30 percent of their income on housing costs, and at least one in three spends more than 50 percent.7
Housing Needs in Williston, Vermont. Town of Williston Planning Department, Chittenden County Regional Planning Commission (CCRPC), and Vermont Housing Finance Agency. April 18, 2023. Accessed 6/11/2024 at https://www.town.williston.vt.us/vertical/sites/%7BF506B13C-605B-4878-8062-87E5927E49F0%7D/uploads/Williston_Housing_Needs_Assessment_Final_Report_4-18-2023.pdf.
In fact, according to Melissa Needham, Healthy Communities Specialist at the Vermont Department of Health, 'A lack of affordable housing can place undue financial strain on cost-burdened families. Low-income families struggling to afford housing costs must make difficult trade-offs, often forced to choose between paying rent, mortgage, and utility bills or prescription medications, food, transportation, heating, and other basic needs. Less disposable income also restricts the amount of money available to save for retirement or higher education expenses, further limiting wealth generation and social capital among vulnerable populations. Low-income individuals are more likely to postpone medical treatment, instead incurring excessive medical bills through emergency room treatment. Children and adolescents are especially vulnerable to the effects of unaffordable housing and residential instability. Namely, children experiencing housing insecurity are at increased risk of poorer overall health, more behavioral problems, and lower academic performance than their peers who do not experience housing insecurity.8
Housing and Health. Exploring the Social Determinants of Health: Issue Brief #7. Robert Wood Johnson Foundation, 2011. Accessed 4/2/2025 at https://www.rwjf.org/content/dam/farm/reports/issue_briefs/2011/rwjf70451.
Williston's economy is generally reliant on middle- and low-income workers who typically cannot afford to live in town, thus making it difficult to find and retain workers. Workers who live outside Williston and in many cases, outside of Chittenden County, are forced to commute long distances to work. As of 2022 10,758 people9
U.S. Census Bureau, Census on the Map. Accessed 4/2/2025 at https://onthemap.ces.census.gov/.
commute to Williston from other towns for work every day! That increases traffic congestion in Taft Corners and also results in significant carbon emissions. Creating more homes in Williston, especially in Taft Corners, can reduce these emissions significantly and advance the Town's energy goals. It would bring health benefits by enabling some to walk or bike to work. It would benefit Williston's economy: being able to house more workers near their jobs would make it easier for local businesses, schools and the town to hire and retain workers.

The Mismatch Between the Abundance of Larger Homes and Demand for Smaller Homes

Williston has an abundance of three-to-four-bedroom homes in its various neighborhoods, built at a time when there was demand for that style of dwelling. But today, the greatest need is for smaller dwellings, based on average household size. Average household size is expected to decrease from 2.45 in 2020 to 2.12 in 2050. Nearly 61% of Williston households have only one or two people. 66% of Williston homes have three or more bedrooms, while 34% of Williston's homes have one or two bedrooms. This combination of a surplus of larger houses and an abundance of smaller households represents a mismatch between supply and demand that exacerbates housing unaffordability.10
Town of Williston Planning Department, Chittenden County Regional Planning Commission (CCRPC), and Vermont Housing Finance Agency, 2023. Housing Needs in Williston, Vermont. https://www.town.williston.vt.us/vertical/sites/%7BF506B13C-605B-4878-8062-87E5927E49F0%7D/uploads/Williston_Housing_Needs_Assessment_Final_Report_4-18-2023.pdf Accessed February 27, 2024.

Figure 4: Percentage of Households by Size Compared to Percentage of Dwellings by Bedroom Count

Figure 5: New Housing Construction 1990-2023.

Furthermore, because of the current realities of price and availability, people who live in the larger homes that are now too big for their needs--older couples, for example, whose kids have now grown up and left--can't afford to sell and buy a smaller home, because they would have to take on a mortgage to do so, in spite of the equity they have accumulated in the dwelling they currently occupy. This 'paralysis' has long-term impact. But there is hope. The town has been making efforts to meet the demand for smaller, more affordable homes, largely through the construction of multi-unit dwellings in Taft Corners. As shown in the figures below, since 2010, the majority of new homes in Williston have been multiunit structures and the vast majority of those are located in Taft Corners.

Coordinated Response to the Statewide Housing Crisis

In 2016, Champlain Housing Trust, Evernorth and the Chittenden County Regional Planning Commission launched the Building Homes Together campaign to address the region's severe housing shortage by committing to the goal of creating 3,500 new dwelling units within the county, 700 of which would be affordable to lower-income households. In the first five years, 3,600 homes were successfully built. A second five-year campaign — Building Homes Together 2.0 — was launched in 2021 and set a goal of 5,000 homes by 2025 for people of all incomes, including at least 1,250 affordable homes.¹¹ Statewide progress has been made on housing policy recently. The Vermont Housing Opportunities Made for Everyone (HOME) Act, Act 47, enacted on June 5, 2023, amended the Planning & Development statute, Act 250 and other laws to enable new opportunities for housing development within state, regional and local planning and development regulations. One of the primary ways the law creates new opportunities is by requiring municipalities to allow higher density development in areas served by water and sewer.¹² In 2024, Williston amended its bylaw to comply with Act 47. Additional legislation, Act 181 (BEHOME Act) was passed in June 2024 making further changes to the Planning and Development Statute, Act 250, regional planning processes, and the state planning designation program to further support creation of housing and affordable housing. Act 47 requires the state to set regional housing targets, which are then disaggregated by the Chittenden County Regional Planning Commission into municipal housing targets, which must be included in municipal plans along with policies that support meeting those targets. As of March 31, 2025, the draft municipal housing targets have been released. The targets represent the number of dwellings that a municipality must try to get built by 2050. For Williston, the targets are:
2050 Housing Target Ranges¹³
2050 Housing Target Ranges¹³
2050 Housing Target Ranges¹³
2025- 2050 Annual #s
2025- 2050 Annual #s
2025- 2050 Annual #s
Low #
Mid #
High #
Low
Mid
High
1,402
2,807
4,212
58
112
168
If housing construction trends of the past decade continued (2020 notwithstanding), Williston could easily meet or exceed the low target; however, the mid and high targets are more challenging to achieve. While Williston's zoning regulations have made great strides in supporting home construction and affordable housing, the provision of infrastructure (namely streets) continues to be a challenge for developers and wastewater treatment capacity will eventually limit what can be built if the town does not plan and prioritize carefully.

Smart Growth

The Objectives, Strategies and Actions are aimed at boosting Williston's creation of new homes to meet these targets, implementing measures to increase home affordability, and supporting the buildout of new homes in Taft Corners. Chittenden County has a regional goal to ensure 80% of new development occurs in planned growth areas. In Williston, this includes the Taft Corners Growth Center and Designated Village Center. This is what "Smart Growth" means, and the benefits are:
- Preserving rural and natural landscapes by focusing development in urban and village areas. - Reducing commute times by locating work, school, and amenities near where people live. - Reducing individual transportation costs and the costs of water, sewer, and other public services when shared among more customers. - Reducing carbon emissions (48% of emissions in Chittenden County come from transportation). Since the establishment of the Town's Growth Center in 2006, a steadily increasing number of dwellings have been built there. From 2017-2022, 76% of all dwelling units were built in the Growth Center. From 2026-2030, 607 (77%) out of 783 total dwelling units are projected to be built in the Growth Center.¹⁴ The adoption of the Taft Corners Form Based Code (TCFBC) District in 2023 allows for building forms that require a more efficient use of land and will provide more opportunities for the creation of affordable housing in Williston's Growth Center. Most if not all the need for additional housing can be met within the Growth Center, through new development on vacant or underutilized lots, or through redevelopment of existing commercial sites. The current bylaws and Form Based Code can be enhanced by additional work: on the programmatic side by investing in housing supportive infrastructure (streets, stormwater, public parks and green spaces, bicycle and pedestrian facilities), building better partnerships and developing the town's Affordable Housing Trust Fund and policies, and by maintaining Inclusionary Zoning and other housing supportive policies.

Objectives, Strategies and Actions

Objectives

6.A

The Town provides ample public facilities and services to meet the demands of projected commercial and residential growth.

6.B

New residential development is largely focused in the Growth Center and patterned in a compact and efficient manner rather than sprawl, so that it can be served in the most efficient manner that doesn't strain the town's resources.

6.C

Williston has expansive housing opportunities. There is a diversity of housing types, including dwellings that are affordable for a wide range of Williston residents and its workforce. Affordable rental housing is abundant and opportunities for home ownership have broadened.

6.D

Housing opportunities in Williston are equitable – everyone lives in a home that is affordable, safe, healthy and energy efficient, and opportunities to purchase a home are expansive.

6.E

Existing naturally affordable housing is preserved. People are enabled to age in place if they wish to, by adding an accessory dwelling unit, converting their large home into a duplex, or sharing their home in exchange for assistance with daily living. Homeowners who wish to can use a portion of their home as a rental or home business that does not unduly impact the surrounding neighborhood.

6.F

Williston provides its fair share of housing in the Chittenden County region, and strives to meet or exceed the state-mandated housing targets.

6.G

Municipal property taxes do not exceed the average municipal property taxes of Chittenden County towns.

Strategies

6.1

Encourage adaptive reuse of industrial and commercial buildings for affordable housing use.

6.1.1
Maintain an exemption to Growth Management for adaptive reuse projects.
6.1.2
Evaluate other possible ways to incentivize adaptive reuse.
6.1.3
Evaluate properties for their adaptive reuse potential and leverage funding and partnerships to advance suitable adaptive reuse projects.
6.2

Implement the Housing Trust Fund Ordinance.

6.2.1
Develop clear guiding policies for eligible use of funds, eligibility criteria, priorities and process for allocating funds. Focus on filling gaps that other funding sources cannot.
6.2.2
Maintain the program and create annual work plans and reports. Work plans and funding policies should use existing resources as models.
6.2.3
Evaluate possibilities for a dedicated funding source for the Housing Trust Fund not subject to annual budget adjustments so that it can grow steadily over time. In addition to payment in lieu for market rate projects, this may include a voter-approved tax rate, a dedicated portion of local options sales taxes, or other sources of funding.
6.3

Explore additional affordable housing programs and implement programs that are feasible and align with the town's goals.

6.3.1
Support non-profits like Champlain Housing Trust, Evernorth, and Green Mountain Habitat for Humanity, who are best positioned to provide "deep affordability" units (serving households with less than 80% of median income).
6.3.2
Develop plans to complete specific housing projects by identifying parcels for development, fostering partnerships with for-profit developers, and supporting their grant applications through direct letters and language in planning documents.
6.3.3
Support the Chittenden County Regional Planning Commission's Housing Navigator work to evaluate land in Williston for potential to support affordable housing.
6.3.4
Evaluate options to acquire / develop municipal land for housing.
6.3.5
Prioritize the Homes for All Toolkit by using ACCD training and outreach resources to host a symposium to introduce and orient builders/developers to the toolkit.
6.4

Leveraging outside funding sources, the town should invest in infrastructure such as building public streets (Trader Lane) and collective stormwater systems to kickstart development in Taft Corners Form Based Code district.

6.4.1
Develop an analysis of the use of Tax Increment Financing (TIF) District to fund the construction of streets and other needed infrastructure that will support housing goals.
6.4.2
Develop the recommendations of the TIF study (see 6.4.1).
6.4.3
Develop plan to leverage federal and state funding, local funding through transportation impact fees, to build streets and other needed infrastructure that will support housing goals.
6.5

Ensure that zoning outside the growth center area allows for maximum flexibility in housing types and options to support unsubsidized affordable housing (rentable accessory dwellings, farm worker housing, adaptive reuse, service- supported and home-sharing adaptations).

6.5.1
Evaluate ways to reduce barriers to building an accessory dwelling unit (ADU), such as:- Relax permitting requirements - Connect homeowners who wish to build an ADU to sources of funding and technical assistance - Publish an ADU toolkit with resources to assist homeowners through the planning and permitting process of developing an ADU - Hold periodic ADU workshops in collaboration with neighboring housing committees - Post information and resources on the town website
6.6

Continually monitor and evaluate Williston's production of housing and its land-use regulations to ensure they support the town's required housing targets. Pay particular attention to the system of growth management (with inclusionary zoning) to allocate dwelling units for exclusively market rate developments, to determine its continued relevance and effectiveness.

6.6.1
Maintain annual audit of the amount of affordable and market rate housing being permitted and built in Williston.
6.6.2
Evaluate an annual growth prediction report based on staff knowledge about permitted projects, typical permitting and buildout timelines, trends in household size, and constraints on development created by Williston's permitting timeframes, Growth Management rules, and Sewer Allocation system.
6.6.3
Evaluate housing production from 2023-2028 (5 years after adoption of Inclusionary Zoning) to analyze the degree to which the town's goals with respect to housing are being met with current regulations, looking at the number of homes being built, the diversity of housing types and sizes, and housing affordability. Use the results of this analysis to determine whether the current regulations need to be modified to better achieve intended results.
6.7

Evaluate the need for tenant protections and rental regulations.

6.7.1
Evaluate the need for "just cause" evictions protections to prevent renters from unfairly losing their housing.
6.7.2
Evaluate the need to establish rent control provisions.
6.7.3
Evaluate the need to establish a rental inspection program.
6.8

Promote homeownership opportunities for historically excluded populations.

6.8.1
Prioritize engagement with populations historically excluded from homeownership and support them in obtaining down payment assistance, either with direct funding through the town's Housing Trust Fund or by connecting them with VHFA's ASSIST Program or CHT's Shared Equity Homeownership Program.
6.8.2
Evaluate ways such as CHT's Shared Equity Program to integrate mixed income housing into established high-opportunity neighborhoods.
6.8.3
Evaluate homeownership purchasing trends through an annual audit. Respond as needed to minimize negative impacts of:- Short Term Rentals - Investors buying up properties and pushing up rental prices - Anything that decreases affordability
6.9

Invest in keeping people in their homes.

6.9.1
Develop outreach plan about the HomeShare Vermont Program, which matches people needing regular assistance to stay in their homes with people willing to provide assistance in exchange for low or no cost housing.
6.9.2
Fund assistance in housing retention efforts using the Housing Trust Fund.
6.9.3
Maintain referral of service organizations to people experiencing financial hardships.
6.10

Provide robust services for unhoused people in Williston.

6.10.1
Evaluate the feasibility of establishing services in Taft Corners – such as a day station and/or overnight shelter—in partnership with Chittenden County Homeless Alliance, the Howard Center and other service organizations
6.10.2
Support partner service organizations in their efforts in meeting the needs of the unhoused.
6.11

Invest in preserving the "natural affordability" of older existing homes to ensure preservation of affordability over time.

6.11.1
Fund rehabilitation or accessibility improvements to existing homes with the Housing Trust Fund, in combination with other funding sources as needed. Offer grants rather than loans in exchange for making those homes perpetually affordable.
6.11.2
Support Champlain Housing Trust in incentivizing property owners to contribute their existing homes to CHT's shared equity portfolio.
6.12

Mitigate the impacts of increasing property taxes to reduce burdens on property owners.

6.12.1
Develop outreach materials and distribute to property owners to make sure they are aware of existing taxation relief programs such as the Vermont Property Tax Credit and Use Value Appraisal (Current Use) Program.
6.12.2
Evaluate a property tax abatement program for affordable rental housing managed and operated by a housing nonprofit organization.