Category Archives: Town Hall

A View From My Porch: A Short History of the Halls Road Overlay District (HROD), Why it is ‘a Worthy Project’

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Tom Gotowka

Feb. 16, 2025—Prologue:
I read a fluorescent green flyer Sunday morning that was seeking signatures on an online petition; which I ignored.

The flyer disparaged the Halls Road Overlay District (HROD) and, of course, had no author or organization. It was anonymous; and began “BEWARE!” and then went on saying something about “A WOLF IN SHEEP’s CLOTHING!!” that may have been on the “tip of an iceberg.”

Then, Anonymous speciously claimed that the proposal included “dense housing” — i.e., “eighty bedrooms per acre;” which was false; but has unfortunately also appeared in other similar attacks. 

Anonymous continued with a recommended list of websites to visit and “scroll through for pertinent information;” and that may have been “the straw that broke the camel’s back.” Further, the Halls Road Improvements Committee (HRIC) noted last week in LymeLine that “there have been a wave of posts on social media and elsewhere making claims that misrepresent the actual content of the HROD proposal and distort its possible impact on our community. The true facts will not support these assertions, nor the emotional appeals based on horrifying and totally false claims.”

Nonetheless, that flyer and a few Letters to the Editor, comments, and essays in LymeLine inspired me to devote this “View” to the proposed HROD. 

I present the project’s key milestones in roughly chronological order in this “View — and rather than a detailed play-by-play on the activities of the HRIC team since its inception (see HRIC section below); I consider their vision, which is detailed in “The Master Plan.” 

Note that this essay reflects my observations, opinions, and interpretation of available HRIC documents and materials.

Halls Rd. is a unique thoroughfare within the “friendly confines” of Old Lyme. Located amongst four Interstate 95 entrances and exits and zoned commercial-only, it is Old Lyme’s principal retail and commercial district and has a 1950s and 60s strip mall look, with deep set-backs and large parking lots lining the roadway.

Within the past few decades, Halls Rd. assumed the appearance and function of an interstate service area. Traffic is dense and moves at a very fast pace from traffic light to traffic light on this “Halls Road Raceway.” There are no sidewalks or safe crosswalks. Bicycling is dangerous.

The Halls Road Improvements Committee (HRIC):

In 2015, Old Lyme’s Board of Selectmen (BOS) appointed a committee to address some developing community concerns regarding Halls Rd. The BOS’ charge became complex and has required interaction with several Connecticut agencies and cooperation with many Town commissions and departments. 

HRIC Milestones:

  • In collaboration with the Yale Urban Design Workshop, the HRIC conducted an objective evaluation of the existing conditions on Halls Rd. Several public meetings were held at which the community was encouraged to voice their concerns and wishes; and it was determined that residents wanted the Town’s commercial area to look more like Old Lyme — and specifically, have the “look and feel” of Lyme Street.
  • Working with the New England-based BSC Group for their expertise in civil and environmental engineering and strategic planning for communities like Old Lyme, the HRIC initiated development of a long-range plan for Halls Rd. 
  • “A formal ‘Master Plan’ is an important tool in seeking grants for work on Halls Rd., for encouraging investment, and for setting budgets” and “broad goals designed to insure the future of Old Lyme’s main shopping district.”
  • AI Engineers of Middletown, CT developed design and engineering materials for the new “Bow Bridge.” Designs were presented at workshops and residents voted their preference. 
  • Advance CT conducted an economic development study via surveys and workshops in 2020 on behalf of Old Lyme’s Economic Development Commission, and found that, “Over 80 percent of respondents supported additional development in the Halls Rd. area.”
  • Developed Halls Rd. Overlay District (HROD) Design Guidelines for new construction or updates to current properties. (also see below)
  • On June 17, 2024, provided a status update to the Old Lyme Board of Selectmen. 
  • On January 10, 2025, the Planning Commission voted unanimously that the proposed zoning overlay was consistent with Old Lyme’s Plan of Conservation and Development, which was adopted in February, 2021

Approvals:

  • Any work along a state motorway requires a DOT “encroachment permit.” In practice, such permits are usually sought in connection with applications for relevant grants administered by DOT.
  • Septic and groundwater approvals are regulated by Ledge Light Health District.

The ‘Halls Road Master Plan’ Vision:

Create a walkable, bike-able, mixed-use town center along Halls Rd. —  one that is an attractive place to live, work, browse, meet, and do business. The envisioned changes include:

  • Roadway and sidewalk improvements, including pedestrian lighting, to create safe pedestrian and bike routes along Halls Rd. from Lyme Street to Rte. 156 and the Baldwin Bridge — connecting Halls Rd. to the Arts, Historic and municipal center(s) on Lyme St.
  • Improvements to existing public green space that could include trails, a riverside park, and new town green.
  • A new “Bow Bridge” — reminiscent of Childe Hassam’s 1908 impressionist landscape, “Bridge at Old Lyme,” which features the original bridge, spanning the Lieutenant River at the old bridge abutment, connecting to trails through the green space. Note that this pedestrian- and biker-friendly bridge was consistently the single, most popular element suggested in town-wide surveys conducted at the beginning of the planning process.
  • Further, CT DEEP owns a triangle of property on the east bank of the Lieutenant River and is prepared to deed this property to the Town; but has requested that a fishing pier and 8 parking spots be included in the project. Note that Project design work for the bridge and trails was fully-funded with grants that covered concept design, surveys, permitting, and construction documents.
  • The Harbor Management Commission has requested that a floating dock be added to the pier. 
  • Residential alternatives for seniors considering a “downsize,” who might otherwise have limited options for remaining in Old Lyme — and/or young people looking to move into the community. 

These include small apartments above businesses with first floor retail; but could possibly include town houses. — but that is not a “given.” 

  • New commercial buildings in the HROD must include mixed use with retail/offices on the first floor and residential on the second. 
  • Current property owners can choose to stay put without modification; but if they want to take advantage of the HROD, must include mixed use.

The Jargon:

A mixed-use neighborhood includes both housing and commercial/retail spaces; and often provides housing options and services accessible to all income levels. 

It is not uncommon to find pharmacies, restaurants and cafes, delis, dry cleaners, and grocery and hardware stores within walking distance. 

Waxing poetic, mixed use neighborhoods offer a lifestyle option for those who do not have a desire to live in the suburbs or in places that are dedicated to residential uses only.

The vibrant nature of mixed use neighborhoods derives from the fact that these areas are more active for more hours of the day, rather than just a few hours in the morning and a few in the evening.

Design Guidelines:

New guidelines and supportive “Village District” zoning are designed to attract retail and residential investment that will serve the needs of Old Lyme and create a ‘look and feel’ on Halls Rd. that is in keeping with the rest of the town; but still require conformance with current zoning and established architectural standards.

The HROD includes a Design Review Committee as a first step for developers to ensure that the scale and design of any proposed construction is consistent with the aesthetics and character of Old Lyme prior to going before the Zoning Commission for project approval. 

Author’s Thoughts:

I was impressed with the depth and detail included in project documents supporting this thoughtful and well-planned initiative.

This is a worthy project and the end result will be important. Nevertheless, I discovered in my research that the discourse on HROD was surprisingly mean-spirited; and I wondered where that attitude was coming from. 

I used “the friendly confines,” phrase above to describe Old Lyme; Chicago Cubs fans will recognize that it was coined by Hall of Fame shortstop Ernie Banks as the nickname for Wrigley Field—”Win or lose, it’s always a good afternoon at the Friendly Confines.”

Editor’s Note: This is the opinion of Thomas D. Gotowka.

About the Author: Tom Gotowka is a resident of Old Lyme, whose entire adult career has been in healthcare. He will sit on the Navy side at the Army/Navy football game. He always sit on the crimson side at any Harvard/Yale contest. He enjoys reading historic speeches and considers himself a scholar of the period from FDR through JFK. A child of AM Radio, he probably knows the lyrics of every rock and roll or folk song published since 1960. He hopes these experiences give readers a sense of what he believes “qualify” him to write this column.

Sources— HROD:
BSC Group. “Halls Road Master Plan for the Town of Old Lyme, CT.” June, 2021
HRIC. “Frequently Asked Questions.” 
HRIC. “Halls Road Overlay Zone.: Perceptions and Realities.”
HRIC. “HROD Design Guidelines.“
HRIC. “Project Status Update from Halls Road Improvement Committee.” LymeLine.06/22/2024
Todd, J&R. “Op-Ed: Reject HROD— Don’t Compromise Old Lyme’s Identity: “Thoughtful, Transparent Planning” Needed.” LymeLine. 02/05/2025
Margules, H. “Op-Ed: Support HROD—Inevitable Halls Rd. Will Change, Optional Overlay Positions Old Lyme to Better Manage Its Future: Other Choice is Leave it to Chance.” LymeLine. 02/08/2025.
HRIC. “Statement from Old Lyme’s Halls Road Improvement Committee: “Setting the Record Straight on the Halls Road Overlay District (HROD).”LymeLine. 02/14/2025.

Statement from Old Lyme’s Halls Road Improvement Committee: “Setting the Record Straight on the Halls Road Overlay District (HROD)”

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Editor’s Note: The Halls Road Improvement Committee (HRIC) asked us to publish this open statement to the Old Lyme community on their behalf. It is the opinion of the HRIC.

There has been a wave of posts on social media and elsewhere making claims that misrepresent the actual content of the HROD proposal and distort its possible impact on our community. The true facts will not support these assertions, nor the emotional appeals based on horrifying (and totally false) claims.

We expect you will see communications from Old Lyme residents, who oppose HROD, citing these falsehoods in support of their stance. We urge you to take full account of the source and nature of these errors, and disregard objections that are based on false information. Below is a sample of the assertions of this campaign, compared to actual facts. 

First, the number of dwelling units allowed under HROD is wildly exaggerated, ‘supported’ by a misleading calculation that ignores the actual HROD regulations. It multiplies the HRIC estimate of “buildable acreage” in the district (~40 acres) by a maximum of 40 dwelling units per acre pulled out of context from HROD section 5.15.6.3.a., resulting in the claim that HROD would “add 1,600 residential units.” This ignores the fact that not every lot within the district can use HROD.

The regulations include a mix of constraints and requirements — lot coverage, parking requirements, limitations on size, scale, massing, etc.—affecting all projects under HROD. We have done the math to calculate maximum possible residential construction following two different methods. The results agree.

Our best estimate of the actual maximum number of dwelling units that could be built on all lots eligible today is closer to 400-450; and that number assumes there are NO restrictions from non-zoning regulations such as septic, environmental, etc. When those factors are taken into account, the number that could actually be built may be 200-225. 

Second, these posts typically ignore the HROD limitations on building massing, height, size, placement, appearance, materials, etc. Citing a few upper limits, they suggest building arrangements and densities that are not possible or are expressly disallowed in the actual HROD regulations. They often describe a “wall of buildings” in places where the HROD regulations themselves say no such massive and unvaried structures can be built.

In addition, the HROD includes a Design Review Committee to aid the Zoning Commission in ensuring that the scale and design of any proposed construction is consistent with the aesthetics and character of Old Lyme. HROD does not allow development beyond the scale and scope appropriate to the town center of a small rural town.

Third, issues about environmental concerns are also misguided. The Halls Road area is already fully developed. Much of that development is many decades old, some of it built before the advent of serious environmental protection legislation. Any new development under HROD must adhere to current standards and be more ecologically sensitive and less detrimental to the environment than the existing construction. This would actually be an improvement over existing conditions rather than the disaster portrayed by some of those opposing HROD. 

The Halls Road Improvements Committee strongly protests this effort to flood the public forum with error and misinformation. The scale and scope of development possible under HROD is a small fraction of what this opposition campaign claims. The likely and expected impact of HROD on Old Lyme bears no resemblance to the nightmare scenarios presented in social media. 

Doing nothing is also an action and, in the case of Halls Road, one with negative consequences for Old Lyme. Current C-30S zoning draws significant investor interest in serving the highway, and very little in any other commercial development. Without allowing a more profitable alternative, Halls Road will increasingly serve the highway, while businesses that serve town residents decline. 

The HROD proposal is good for Old Lyme. It is a key element of the Halls Road Master Plan.

Like that plan, HROD was developed with significant input from town residents, stakeholders, and key town committees including Planning, Zoning, Economic Development, and the Board of Selectmen in three administrations. It represents years of volunteer and professional work. We believe it is a well-crafted and sound set of regulations.

Together, HROD and the Master Plan address multiple critical needs of Old Lyme: alternatives to single-family homes, retention of retail that serves Old Lyme (not the highway), safe pedestrian and cyclist access to our shopping area, and allowing the creation of a walkable, mixed-use neighborhood and town center appropriate to the small Town that is Old Lyme. Without HROD, the multi-million-dollar sidewalks of the Master Plan will go to half-empty parking lots, and little more. 

Please do not be misled by false claims and mistaken assumptions. Get the facts at the Town’s web site: https://www.oldlyme-ct.gov/343/Halls-Road-Improvements-Committee.

Application Denied for Controversial Smith Neck Rd. House in 5-0 Vote at Monday’s Old Lyme Zoning Meeting

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OLD LYME—UPDATED 1/11 at 12:10 pm: The ‘Record of Votes’ related to Monday night’s meeting has now been published. Regarding the Special Permit Application to
replace and construct a new 5-bedroom residence with an attached 2 car garage at 43 Smith Neck Rd., RU-40 Zone, Jeffrey and Emily Merriam, applicants, the Record states, “A motion was made by D. Savageau, seconded by J. Marsh to DENY without prejudice the special permit. The Motion further stated that insufficient evidence had been submitted to allow the Commission to find the proposed activity would have or would be reasonably likely to have the effect of unreasonably polluting, impairing or destroying the public trust in the air, water, or other natural resources of the State of Connecticut.”

UPDATED 1/11 at 1am: The application for the proposed 11,000 sf house at 43 Smith Neck Rd.was denied without prejudice in a unanimous 5-0 vote at Monday night’s Old Lyme Zoning Commission meeting.

Around 50 people attended the meeting.

UPDATED 1/10 at 7pm with corrected number of days for Zoning Commission to deliberate. The proposed 11,000 sf house at 43 Smith Neck Rd. is back on the Old Lyme Zoning Commission’s agenda tonight. Their Regular Meeting starts at 6:30 p.m. in the Meeting Room at Old Lyme Town Hall.

Appearing as the first item under Old Business, the agenda item states, ” 43 Smith’s Neck Road, RU-40 Zone. Special Permit application to replace and construct a new 5-bedroom residence with an attached 2 car garage. Jeffrey and Emily Merriam, applicants.”

The Zoning Commission closed the Public Hearing at the end of the previous Jan 13 meeting. This means no further public comment can be heard on the matter and the Commission cannot ask any additional questions of the applicant.

The Commission must render a decision within 65 days of closing the Public Hearing. Members could vote on the proposed plans tonight but are not obliged to do so. They will, however, deliberate on the proposal this evening in a public setting but cannot entertain any comments from the public or ask any further questions of the applicant or their representatives.

At the Zoning Commission’s Regular Meeting on Jan. 13, some 17 residents offered opinions and concerns during the Public Hearing on the proposal. The comments made by members of the public all expressed a negative point of view towards the proposal.

Those commenting variously asked the Commission outright to deny the application for the 11,000 sq. ft. eight-bedroom, seven-bathroom house with two laundries, a swimming pool, and extensive gardens; or send it back to the Connecticut River Gateway Commission for further review; or to request answers to the numerous still unanswered questions by the applicant; or a number of other questions.

Related articles and letters published on LymeLine.com are as follows:

Letter to the Editor: Residents Urged to Attend ‘Crucial’ Zoning Meeting, Jan. 13 By Elizabeth Karter Published 1/4/2025

Letter to the Editor: Neighbors Question if Well Water Supply Sufficient for Proposed 7-Bathroom House on Smith Neck Rd., Old Lyme Zoning to Discuss at Monday Meeting By Claire and John Griffin Published 1/13/2025

Old Lyme Zoning Meeting Draws Over Capacity Crowd; Halls Rd. Overlay District Item Postponed to New Meeting, Wednesday By Admin Published 1/14/2025

Letter to the Editor: Support Old Lyme Zoning Commission in Enforcing Regulations for Smith Neck House Plan, Reminder That a Hill is Still a Hill By Elizabeth Karter Published 1/18/2025

Letter to the Editor: Smith Neck Rd. Proposed House Poses ‘Serious Threat’ to ‘Natural Beauty’ of CT River Valley By Susan and Thor Kayeum Published 1/20/2025

Op-Ed: Support HROD—Inevitable Halls Rd. Will Change, Optional Overlay Positions Old Lyme to Better Manage Its Future: Other Choice is Leave it to Chance

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Editor’s Note: This op-ed is a response by Howard Margules to the op-ed by Jill and Russell Todd, which we published Feb. 5, 2025 on LymeLine.com. Margules is an Old Lyme resident and member of the Halls Road Improvements Committee.

Thank you for your interest in the Halls Road Overlay District (HROD) zoning proposal—I would like to address your concerns:

Developers Overstepping

You indicated that developers will take advantage of the HROD. The opposite is true. The HROD was designed to incorporate strict guidelines that currently do not exist. Large parcels of Halls Road are up for sale and we are likely to see new construction, especially on the very dated Hideaway side of the road. Developers will have to comply with the current zoning regulations, but they will still have significant leeway, and they easily focus on the needs of the highway travelers rather than on the needs of our residents. Halls Road could wind up looking like the sprawl similar to the four corners of East Lyme. The HROD guards against this. Our goal is to ensure new construction will be consistent with the architecture of Lyme Street. The HROD provides strict guidelines and offers an additional layer of protection that currently is absent in our regulations.

Design Review Board

You indicated there is no guard rail for the Design Review Board. The Design Review Board actually is a guard rail. It will consist of professional architects, whose task is to ensure that new construction is consistent with the architecture on Lyme Street, and not some typical cookie-cutter project. Its sole purpose is to provide oversight, and it exists only when the HROD exists. But it only acts in an advisory role to the Zoning Commission. Zoning has the ultimate authority and is the ultimate guard rail.

Zoning Rubber Stamp

The Zoning Commission has been anything but a rubber stamp. The initial HROD application was rejected, and It has now been revised in order to address their multiple concerns. Zoning Commission members have taken their job very seriously and spent a tremendous amount of time and effort delving into the complexities of the HROD. All of the members of the commission are both very experienced and extremely knowledgeable about zoning issues. The HROD has also been scrutinized and approved by the Old Lyme (OL) Board of Selectmen and the OL Planning Commission (who also originally rejected it), as well as receiving the endorsement from the OL Economic Development Commission.

Septic Systems

You are correct that new septic systems might eventually have much greater capacity. But for the foreseeable future, redevelopment will be confined to the larger parcels. Most of the lots fronting Halls Road are only one or two acres and that makes them less attractive to develop. Keep in mind Halls Road is less than a mile in length.

Parking

Parking continues to be a significant restraint to over-development, and I would assert that parking is a major expense. So yes, the HROD does allow free-standing parking garages, provided they are built at least 120′ from the lot’s frontage. They are under the same size limitations as any other building: three (3) stories, 35 ft. max., 20,000 SF footprint max. They are also under the same Design Review Board scrutiny, and must be designed creatively to pass muster. The size is small for a parking garage. It might be profitable in a major city, but it is unlikely to be built in Old Lyme. The cost per space is very, very high at this small scale. Cost considerations can change over time (even car sizes, as some of us know), so garages are permitted, even if currently unlikely. 

Exaggerated Renderings

The renderings you saw at the Open House were used as the basis for creating the overlay zone. We provided Zoning with additional detailed drawings in order to assist them in picturing the actual dimensions. The longest buildings on both Lyme Street and Halls Road range from 147 ft. to 488 ft. Hence a 200-ft. building is in line with the proportions of existing buildings in town.

The Open House renderings were derived from scaled AutoCAD files and generated to envision what a town center could look like, not actual proposals. All new construction will have to conform to the HROD guidelines. The Architectural Review Board will make recommendations and Zoning will make the final decision. We realize there are renderings circulating that depict large “cookie-cutter” buildings. These are not what we are proposing.

Our Future

Halls Road is going to change since large parcels are up for sale. Our choice is to leave it to chance, allowing commercial developers to build projects that serve highway travelers or to provide incentives for future development that meet the commercial and cultural needs of our community, including alternative housing options especially for seniors looking to downsize and young people who cannot afford single family homes.

Introducing the optional overlay will position our town to better manage its future. The HROD proposal contains specific features that the residents told us they desire including: a vibrant, walkable and attractive town center, alternative housing options, a bike trail, safe streets, and a sustainable commercial center focused on the local community.

My guess is we both have the same goals in mind. But feel free to contact me if you still have any questions or concerns.

Old Lyme Town Nurse Office Hours Temporarily Reduced to Tuesday to Thursday

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OLD LYME—As of Feb. 3, Town Nurse office hours are temporarily restricted to three days per week while Nurse Denise Piersa is on a scheduled leave. A substitute nurse is available for blood pressure clinics and office hours Tuesday to Thursday from 11 a.m. to 1 p.m. at Christ the King Church in Old Lyme.

For residents, who are sick or convalescing at home, the substitute nurse is also available to make monthly house calls for health assessment and promotion. If skilled care is needed, she can coordinate that care through our partner agency, Yale New Haven Health at Homz Southeast. These skilled services do incur a fee, but the cost is usually covered by Medicare, Medicaid or private insurance.

As always, Town Nurse appointments are open to all residents free of charge. Walk-ins are welcome, but residents are encouraged to call ahead of time.

The Town Nurse’s phone number is 860-434-7808.