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Mixed Use Districts (NYS Route 250 and Manitou Lake)



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Purpose of Study

In accordance with recommendations within the Town of Penfield’s Comprehensive Plan, the town has initiated a Mixed Use zoning project for two areas located on Route 250 (south of Penfield Center Road/north of the Eastside YMCA) and Manitou Lake (former Dolomite Redman Sand Quarry on Old Penfield Road). The purpose of the project is to encourage mixed use, pedestrian-oriented development in specific locations within the town of Penfield with an emphasis on interaction within the built environment rather than permitted uses. The new districts are anticipated to be more sustainable in terms of reducing the development footprint, more effective use of costly infrastructure, reducing costs associated with energy use and transportation, and increasing access to amenities. A new land use pattern within the town such as the described mixed use district will provide our current and future residents options they presently do not have.

The Town is working with Jim Sipes of Sand County Studios and Steve Lovett of ELM to generate a mixed use development manual which is expected to be a central reference for all code requirements relating to mixed use development. The manual is proposed to include the following or similar components:Mixed-Use-Development--Mixed-use-map.jpg

  • design standards (written statements that identify the criteria, goals, or objectives of mixed use development)
  • design guidelines (specific examples of techniques and materials that can be used to achieve design standards for placemaking and scale of the public and private realm within a specific geographic area)
  • adoption ready Town of Penfield specific mixed use ordinance


Study Area

It is important to note that the project areas have been intentionally identified with a “bubble.” Exact project boundaries have not yet been determined, meaning it hasn’t been decided if one parcel will be in or out of the district. Ultimately, that will be a decision the Town Board makes after reviewing the Steering Committee’s recommendations.

The study area for the NYS Route 250 District is centered on NYS Route 250, also referred to as Fairport Nine Mile Point Road, extending from Penfield Center Road south to approximately the YMCA property north of Whalen Road. The study area includes the intersection of Atlantic Avenue (NYS Route 286)/Fairport Nine Mile Point Road and Sweets Corners Road/Fairport Nine Mile Point Road. The area is currently zoned Rural Agricultural (2 acres) and Limited Business. The district is bounded to the east and west by environmentally sensitive areas that include state wetlands, federal wetlands, water courses, floodplains, woodlots, and steep slopes. The project area loosely defined consists of about 400 acres of a mostly vacant palette. The Town has felt development pressure from property owners and developers and is motivated to act quickly on the adoption of this new district. Please see "Documents of Interest" below for maps of the study area.

The proposed study area for the Manitou Lake District was studied by the Manitou Lake Mixed Use District Steering Committee from 2012 to 2015.  In the July of 2015 the properties that make up the lands known as Manitou Lake were was sold by Dolomite Products Co. Inc. to a private family after the company had discontinued the mining operation business.  Town staff met with the new owners to review the work the committee had completed.  However, at the request of the new owners the study area was removed from the project as they do not wish to have the lands rezoned for mixed use development at this time.   

Background on Mixed Use

The general public emphasized the need for residential options beyond the single family residence that is widely available all over town throughout the 2010 Comprehensive Plan process. Mixed use was identified as having a variety of residential development blended with community uses and neighborhood commercial. A safe transportation system offering options that can accommodate a spectrum of all people is desirable.

Other key observations and viewpoints from the Town's planning processes that must be recognized as part of this project:

  • mixed-use-development-content_Colonel_Cohoe_Walkway_Smaller_.jpgMixed use developments have proven to be the most sustainable communities compared to typical suburban conventionally zoned single use districts. 
  • A district that will promote a coordinated approach to access management, traffic circulation, safe multi-modal elements, appropriate interconnections, lighting, landscaping, and community character is desired.
  • Well-designed, higher-density development is both more sustainable in terms of reducing the development footprint, and also more effectively uses costly infrastructure, reduces costs associated with energy use and transportation, and increases access to amenities.
  • There is an unmet need in the Town and region for alternatives to traditional suburban tract housing that enhances "quality of life," with walkability, safety, proximity to jobs, services, and entertainment, and higher standards for design and layout. 
  • The commercial component of a future mixed use district is expected to be neighborhood scale and not anticipated to serve regional markets. 
  • Mixed-use zoning must be sufficiently flexible to allow developers to respond to a variety of market conditions.


Key participants include the Town of Penfield, area businesses, neighborhood representatives, Monroe County Department of Parks, New York State Department of Transportation, and the Genesee Transportation Council. A Steering Committee of stakeholders was appointed by the Town Board to assist with the project.

The committee members met on an as needed basis in the Town Hall Auditorium as the project progressed.  See "Documents of Interest" for a list of committee members and meeting agendas.  All meetings will take place in the Town Hall Auditorium at 3100 Atlantic Avenue unless otherwise noted.

SEQRA Process

Following the completion of the Scoping Document, town staff and its consultants began preparing a Draft Generic Environmental Impact Statement (DGEIS).  On April 5, 2017 the Town Board passed resolution 17T-093, thereby making a determination of completeness of the DGEIS document and setting a public hearing for the DGEIS for the creation of a new Mixed Use Zoning District.  The public hearing meeting was scheduled by the board to be held at the Penfield Town Hall, 3100 Atlantic Avenue, Penfield NY, 14526, in the Auditorium Wednesday, May 3, 2017 at 7:00 PM. The associated documents have been made available below on this webpage.

A public comment period was opened by the Town Board on April 6, 2017 for public input on the DGEIS document and was set to close at 5:00 PM on Friday, May 26, 2017.  Comments may be submitted via mail, hand delivery, email, and fax to: Town of Penfield, Attn: Planning Department, 3100 Atlantic Avenue, Penfield, NY 14526; email:; fax: (585) 340-8754. 

At its meeting on Wednesday, June 7, 2017, the Town Board passed resolution 17T-126 to accept the Final Generic Environmental Impact Statement (GEIS) for the proposed creation of the new Mixed Use Zoning District.  A project Findings Statement will be prepared as one the final steps in the SEQRA process. 


Project Schedule

January 25, 2012 Authorization from the town board to proceed with the project
March 15, 2012 Received final confirmation of the $25,000 grant from GTC
April 3, 2012 Submit Scope of Work to GTC for approval
April 12, 2012 Present the Scope of Work to GTC Committee at meeting; Scope of Work approved
May 2012 The advisory committee (town staff and GTC representative) is established; Prepare the RFP
June 2012 Town board resolution to accept GTC grant; town board resolution to issue RFP
July 2012 Receive and review the submitted proposals
August 2012 Select a consultant; town board to appoint the steering committee
December 2012 Town board resolution to authorized selected consultant to commence work; town board to appoint the steering committee
January-July 2013 Steering committee meetings; consultant will generate the draft documents
June 2013 Public Information meeting
July 2013 50% draft Mixed Use Manual
November 2013 80% draft Mixed Use Manual
March 2015 95% draft Mixed Use Manual
September 2015 Final Draft Mixed Use Manual submitted to the Penfield Town Board
May 4, 2016 The Town Board held a public hearing meeting open to the public, on the Mixed Use Development Manual and proposed Mixed Use Zoning District. The Town Board will accept comments in written form until the public hearing is closed on a later date this month.
Date TBD Complete SEQRA process
Date TBD Implementation: Amending Official Zoning Ordinance and Zoning Map including the creation of a New Mixed Use District, and Acceptance of Mixed Use Development Manual


Frequently Asked Questions

Is there a committee working on this project?
In January of 2013, the Town Board appointed a vast cross section of residents to three committees to help guide the project. The first is the Manitou Lake Sub-committee made up of representatives within the project area. The second is the Route 250 Sub-committee made up of representatives within the project area. The third is the Core Committee which will attend both sub-committee meetings and serve as an umbrella over the process. The Core Committee consists of residents; business owners; design professionals; a retired real estate appraiser; a farmer; representatives from the NYS Department of Transportation, Monroe County Planning, and the Genesee Transportation Council; a Penfield Town Board member; and staff. We worked hard to make sure many stakeholders in the process have representation on the steering committees. All committee members bring unique skills to the project. A complete list of committee members is available below.

Sub-committees role is to provide recommendations to the Town Board for their review, consideration, and eventually approval.

Are there Steering Committee meeting minutes available for review?
No, official meeting minutes are not taken. Meetings are open to the public for observation only. Comments are welcomed to be submitted in writing to the Planning Department or As meetings are scheduled, they will be listed below. Meeting agendas are posted as well.

How is this being funded?
The Town was fortunate to receive a federal grant through the Genesee Transportation Council’s (GTC) Unified Planning Work Program (UPWP). The UPWP is intended to help integrate strongly-valued local priorities with regional transportation goals. You can access additional information on GTC’s website by clicking on the following link: The remaining project costs were budgeted within the Town’s 2012 and 2013 budgets.

How can I participate?
We welcome participation! Your opinion is important to the success of the new districts. At a minimum, there will be a public information meeting (date to be determined) and a public hearing (date to be determined, but likely towards the end of the year). Additionally, steering committee meetings are open to public observation. As meetings are scheduled, they are listed below with meeting agendas. The Planning Department welcomes you to submit your comments in writing or via e-mail to

The Planning Department has also established an e-mail distribution list. When the project webpage is updates, an e-mail will be sent to the distribution list notifying interested individuals that new information is available. If you would like to be added to the project distribution list, please send an e-mail to with “Subscribe to Mixed Use E-mail List” in the subject line.

Why Manitou and Route 250?
There is a lot of open land currently being marketed or available for development in both locations. This land is going to eventually be developed and in some cases, redeveloped. The Comprehensive Plan took this into consideration and recommended the Town to be pro-active versus reactive. Considering that development will eventually occur, we have the opportunity to create something truly special given the nearly blank slate. The question is what will it look like and how will it be laid out. Fact sheets with additional information on the each district are available below.

Will these properties automatically be rezoned?
This has not yet been decided. The Town Board is the only body with authority to rezone land. The Town Board will review the recommendations of the Steering Committees and Project Consultants. The Town Board may decide to rezone on a case by case decision when and if property owner(s) are interested in rezoning may be required to petition the Town Board with a rezoning application. The other option is for the Town Board to rezone the study areas at the conclusion of the mixed use project. New York State law requires the Town Board to have a public hearing prior to adopting a new zoning district or prior to rezoning any land.

What are the boundaries?
At this point in the process, the project areas have been intentionally identified with a “bubble”. This means that exact project boundaries have not yet been determined meaning it hasn’t been decided if one parcel will be in or out of the district. Ultimately, that will be a decision the Town Board makes after reviewing the Steering Committee’s recommendations.

Who are the project consultants?
After putting the project out to bid, the Town Board hired James Sipes of Sand County Studios and Stephen Lovett of ELM . Jim and Steve bring nearly forty years of experience in the field to Penfield and we are thrilled to have them as our project consultants.

Who do I contact for more information or if I have questions or concerns?
Contact the Planning Department. We would love to talk to you about the project. You can call 585-340-8640 or e-mail

If you have a question pertaining to the Town’s Mixed Use project that is not listed here, please e-mail it to the Planning Department at and we will happily provide you with an answer.

Documents of Interest

Mixed Use Development Documents and Resources
2017-08-09 Penfield MUD Findings Statement
Penfield Mixed Use Final GEIS
Penfield Mixed Use Final GEIS Appendices
3. Town Board Resolution 17T-126 - Accepting the Final GEIS
2017-03-20 Penfield Mixed Use DGEIS
Penfield Mixed Use DGEIS Appendices
2017-04-05 Town Board Resolution: 17T-093 Determination of Completeness of DGEIS
Resolution 16T-187: Acceptance of Final Outline of Proposed Mixed Use District
2016-07-20 Adopted Resolution 16T-164 Acceptance of Lead Agency Mixed Use Declaration
2016-07-20 Penfield Mixed Use Zoning District Pos Dec Form
2016-07-20 Penfield Mixed Use District Draft Scoping Document
2016-07-20 Penfield Mixed Use Zoning Distrcit Pos Dec Scoping ENB
2016-07-13 Final GTC Lead Agency Response Letter
2016-07-13 Lead Agency Letter - Penfield Mixed Use District
2016 The Proposed Mixed Use District Presentation
2016-05-04 Public Hearing Notice for Mixed Use District and Attachments
Proposed Mixed Use Zoning District Ordinance - DRAFT
2015-09-16 Penfield Mixed Use Manual Final Draft
2015-04-07 Agenda Mixed Use Committee Manitou Lake
2015-04-07 Agenda Mixed Use Committee Route 250
2014-05-13 Route 250 Mixed Use District Meeting Agenda
2014-05-13 Manitou Lake Mixed Use District Meeting Agenda
Manitou Lake Mixed Use District Mtg Agenda 11.19.13
Route 250 Mixed Use District Mtg Agenda 11.19.13
Manitou Lake Mixed Use District Mtg Agenda 08.13.13
Manitou Lake Mixed Use District Mtg Agenda 08.06.13
Route 250 Mixed Use District Mtg Agenda 08.06.13
Mixed Use District Public Info Mtg Agenda 06.17.13
Public Info Meeting on Mixed Use Districts Jun 17
The Penfield community is invited to attend a public information meeting on a project to define mixed use zoning districts on Monday, June 17 from 7:00 to 9:00 p.m. at the Town Hall, 3100 Atlantic Ave. The purpose of this meeting is to share information, answer questions, and receive public input; no action will be taken.
Opportunities and Constraints Diagram Route 250 03.19.13
Opportunities and Constraints Diagram Manitou Lake 03.19.13
Route 250 Mixed Use District Mtg Agenda 04.30.13
Manitou Lake Mixed Use District Mtg Agenda 04.30.13
Steering Commitee Input Route 250 03.19.13
Steering Committee Input Manitou Lake 03.19.13
Route 250 Mixed Use District Mtg Agenda 03.19.13
Manitou Lake Mixed Use District Mtg Agenda 03.19.13
Committee Member List
Mixed Use District Mtg Agenda 02.05.13

Committee and Town Meetings regarding
Mixed Use available on through 
Town Of Penfield TV


Town of Penfield
Planning Department
3100 Atlantic Avenue
Penfield, New York 14526
Phone: (585) 340-8640

Town of Penfield
3100 Atlantic Ave, Penfield, New York, 14526 - (585) 340-8600
© 2017 Town of Penfield