Bellefonte’s downtown has a problem: too many vacant storefronts and too much commercial space that no one is using. Empty buildings not only drag down the economy but also put Bellefonte’s historic character at risk.
To try to fix this, a zoning idea called the Victorian Storefront Overlay (VSO) was developed. The idea was simple—protect a few key blocks of storefronts downtown while letting other areas convert ground-floor space into housing. On paper, it sounded like a compromise.
I even wrote a report to explore the concept. But after review, the Planning Commission rejected it. And in hindsight, they were right to do so. In this post, I’ll walk through how the idea came about, why it seemed promising at first, and why it ultimately isn’t the right solution for Bellefonte.
How the Report Came to Be
The story of the Victorian Storefront Overlay starts with a simple but sobering fact: Bellefonte has way more commercial space than it needs. When you run the numbers, the borough has about five times more retail square footage than local demand can realistically support. That means a lot of empty storefronts, and when storefronts stay vacant for too long, the historic buildings that give Bellefonte its character start to suffer from neglect.
Seeing this problem, I decided to put together a retail demand report. It wasn’t based on guesswork—it used a demand model that factors in population, household income, and how much people typically spend on retail. The results confirmed what we already suspected: Bellefonte was heavily oversupplied with retail space. In the report, I outlined some options, ranging from making zoning more flexible to the borough itself stepping in to lease or manage empty spaces.
When the report went to Borough Council, they passed it along to the Planning Commission. The commissioners agreed that the oversupply was a problem but suggested a different kind of fix. They floated the idea of an overlay: keep first-floor commercial requirements only on the most historically important blocks downtown, while allowing residential use on the ground floor in other parts of the Central Business District and Waterfront District.
Following their suggestion, I drafted what became the Victorian Storefront Overlay proposal. The idea was to protect Bellefonte’s signature blocks—the places that define the town’s Victorian identity—while giving property owners outside those blocks more flexibility to convert empty retail into residential units.
But when the Planning Commission reviewed that draft, they ultimately rejected it. The feedback was that the overlay didn’t go far enough. It was seen as too narrow, too limited, and not enough to solve the deeper issues with Bellefonte’s zoning and oversupply of commercial space.
Reasons why the Victorian Storefront Overlay was a bad idea
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Legal Vulnerability
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Piecemeal or “Band-Aid” Solution
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Weak Economic Incentives
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Equity and Fairness Concerns
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Creates Uneven Development Pressure
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Adds Complexity Without Clarity
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Misalignment with Broader Trends
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No Link to Long-Term Strategy
Legal Vulnerability
Plain-language introduction
One of the biggest problems with the Victorian Storefront Overlay is that it exposes the borough to legal risk. By treating some blocks one way and others differently, the borough creates unnecessary complications.
Definition / Explanation
In planning, this situation is often called spot zoning. Spot zoning happens when specific properties or blocks are singled out for different rules than the surrounding area. Courts can view this as arbitrary or unfair, especially if property owners are restricted from putting their space to its highest and best use.
Why it matters (local impact)
For Bellefonte, this means property owners in the overlay could claim they are being unfairly limited compared to owners just a block away. Even if the borough could defend the policy, lawsuits take time and money. The result would be fewer resources for actual revitalization and more frustration for property owners.
Broader connection (zoom out)
Other communities have learned that zoning solutions must be applied consistently and tied to broader planning goals. If not, they risk years of litigation and uncertainty. Instead of stabilizing downtown, Bellefonte could find itself stuck in disputes that prevent the kind of reinvestment the borough needs.
Piecemeal or “Band-Aid” Solution
Plain-language introduction
Another concern is that the overlay is only a short-term patch. It moves the problem around instead of addressing what is really going on in Bellefonte.
Definition / Explanation
The borough currently has far more commercial space than its population and income levels can support. This is a structural oversupply issue. The overlay focuses only on a few blocks, trying to preserve them while letting other areas adapt. That does not solve the larger mismatch between supply and demand.
Why it matters (local impact)
In practice, this means the blocks inside the overlay could still face long-term vacancies. Protecting storefronts through zoning does not change the fact that there are too many storefronts for the market to fill. Meanwhile, historic buildings continue to sit empty and risk falling into disrepair.
Broader connection (zoom out)
Towns across the country that have successfully revitalized their cores did so by reevaluating the scale of their commercial zoning, often pairing changes with housing growth or new economic development strategies. Without that bigger picture approach, Bellefonte risks spending energy on a Band-Aid while the underlying wound remains untreated.
Weak Economic Incentives
Plain-language introduction
Another challenge with the Victorian Storefront Overlay is that it does nothing to actually attract tenants.
Definition / Explanation
Zoning can regulate what types of uses are permitted in a building, but it cannot generate demand on its own. Simply drawing lines on a map and saying certain storefronts must remain commercial does not create new businesses. Successful revitalization usually requires pairing zoning with tools like grants, tax abatements, or small business support programs.
Why it matters (local impact)
For Bellefonte, this means even the most beautiful Victorian storefronts could stay dark. If the underlying math does not work for a small business to open, the space will remain vacant no matter what the zoning says. Preserving buildings without a pathway to fill them risks locking in long-term vacancies.
Broader connection (zoom out)
Other towns that have turned around their downtowns combined zoning with active economic development strategies. Without incentives, Bellefonte risks repeating the mistakes of communities that thought regulation alone could solve vacancy. The overlay protects the façade but does not address the lack of tenants behind the glass.
Equity and Fairness Concerns
Plain-language introduction
The overlay also raises concerns about fairness between property owners.
Definition / Explanation
When some properties are subject to stricter rules than others, it creates unequal treatment. In this case, owners within the overlay would be prohibited from converting first floors to residential, while owners just outside could make that choice. From a zoning perspective, this uneven approach can feel arbitrary.
Why it matters (local impact)
In Bellefonte, this could lead to frustration and resentment from owners who feel they are being asked to shoulder a bigger burden for historic preservation. That resentment can turn into political pushback or even lawsuits, adding more strain on borough resources.
Broader connection (zoom out)
Planning works best when rules are applied consistently and fairly. Communities that treat property owners unevenly often end up with deep divides, less cooperation, and legal challenges. By creating winners and losers within the same downtown, the overlay risks undermining the very sense of community that Bellefonte is trying to preserve.
Uneven Development Pressure
Plain-language introduction
Another issue with the Victorian Storefront Overlay is that it could unintentionally create uneven development pressure downtown.
Definition / Explanation
By concentrating stricter commercial requirements in only a few blocks, the overlay risks isolating those areas. If there is not enough demand to fill the protected storefronts, those blocks could become hollowed out while nearby areas adapt more flexibly. In planning terms, this creates an imbalance where certain streets carry a heavier burden than others.
Why it matters (local impact)
For Bellefonte, this means that the most visible and historic blocks could be left with the highest vacancy rates. Instead of keeping downtown vibrant, the overlay could produce empty stretches right in the heart of High Street, undermining the sense of activity and discouraging investment.
Broader connection (zoom out)
Other towns have seen that forcing too much commercial activity into one concentrated core does not work when overall demand is weak. Successful revitalization spreads activity across a mix of uses—residential, commercial, and civic—so that no single block carries all the weight. Bellefonte risks learning this lesson the hard way if it doubles down on protecting storefronts without matching them to realistic demand.
Adds Complexity Without Clarity
Plain-language introduction
The overlay also makes Bellefonte’s zoning system more complicated without adding much clarity.
Definition / Explanation
Overlay zoning is a tool that places an additional layer of regulations on top of existing zoning rules. While it can be useful in some situations, it often creates confusion for property owners, staff, and developers. They now have to interpret not only the base zoning but also the extra overlay requirements.
Why it matters (local impact)
For a small borough like Bellefonte, additional layers of rules can slow down investment. Owners may feel uncertain about what they are allowed to do, or they may avoid projects altogether to escape the red tape. This kind of bureaucratic friction can discourage the very revitalization the overlay is supposed to encourage.
Broader connection (zoom out)
Communities that thrive usually streamline their zoning codes instead of making them more complex. Clear, simple rules give property owners confidence to reinvest. By adding another layer of regulation, Bellefonte risks creating more confusion than clarity, which could hold the borough back at a time when it needs forward momentum.
Misalignment with Broader Trends
Plain-language introduction
One of the most serious flaws with the Victorian Storefront Overlay is that it does not align with broader economic and social trends.
Definition / Explanation
Across the country, e-commerce has reduced the amount of retail space communities actually need. At the same time, remote work has shifted where and how people spend money, with fewer office workers supporting downtown businesses on a daily basis. These structural changes are reshaping small-town economies, and zoning rules that overprotect ground-floor retail risk being stuck in the past.
Why it matters (local impact)
For Bellefonte, this means the borough could end up preserving more storefronts than the market will ever realistically fill. Even if the overlay succeeds in holding on to a few blocks of retail, those spaces may sit vacant if consumer demand keeps shifting online or away from traditional shopping patterns. Instead of positioning Bellefonte for the future, the overlay ties it to an outdated model of downtown activity.
Broader connection (zoom out)
Other communities that have adapted successfully to these shifts did so by rethinking the balance of residential, retail, and cultural uses downtown. By integrating housing, flexible workspaces, and entertainment options, they created resilience in the face of declining retail demand. Bellefonte risks missing this opportunity if it clings too tightly to old assumptions about how much storefront retail a small borough can sustain.
No Link to Long-Term Strategy
Plain-language introduction
Another major weakness is that the overlay is not part of a larger plan. It stands alone without clear ties to Bellefonte’s long-term needs.
Definition / Explanation
Good planning connects zoning decisions to broader strategies like housing policy, tourism development, and regional economic goals. When a zoning change is introduced in isolation, without supporting programs or a vision for growth, it becomes a short-term patch rather than a lasting solution.
Why it matters (local impact)
In Bellefonte, this means the overlay might slightly reduce vacancies in certain blocks but will not solve the larger problems. The borough still faces an oversupply of commercial space, limited housing options, and a need to attract both residents and visitors. Without connecting the overlay to these larger objectives, the community risks spending energy on a measure that will not produce sustainable revitalization.
Broader connection (zoom out)
Successful small towns align zoning reforms with long-term strategies for economic development, housing, and regional collaboration. They use zoning as one tool within a broader toolkit. By leaving the overlay disconnected from a bigger plan, Bellefonte risks repeating cycles of vacancy and underinvestment instead of building a resilient downtown for the future.
What Bellefonte Needs Instead
Bellefonte does not need another temporary fix. The problems with downtown vacancies and oversupply of commercial space are too big for a quick overlay or small zoning tweak. What the borough needs is a broader strategy—one that looks at all commercial districts, connects zoning to housing demand, invests in economic development, and makes room for future trends. By taking a comprehensive approach, Bellefonte can protect its historic character while also building a downtown that works for today and tomorrow.
Comprehensive Review of Commercial Zoning
One of the first steps Bellefonte needs is a full review of all its commercial zoning districts, not just the downtown core. Right now, the borough has an oversupply of commercial space spread across multiple districts, from the Central Business District (CBD) to the Waterfront Business District (WBD) and the Village Commercial (VC) zones. The demand numbers show that Bellefonte has far more retail square footage than the community can realistically support, which is why vacancies remain stubbornly high.
A better approach is to rezone underutilized commercial areas to allow for a wider mix of uses. Instead of limiting large parts of the borough to retail and office, Bellefonte could open the door to residential development, as well as low-impact and no-impact industrial uses. This type of flexibility gives property owners more options and reduces the burden of carrying empty storefronts. It also creates room for new housing, small-scale workshops, or light production spaces that fit well in a historic small town.
The metric for success here is straightforward: borough-wide retail vacancy rates should fall into the normal range for healthy communities, typically between five and ten percent. If Bellefonte can move from its current oversupply to a more balanced level, the downtown will be easier to sustain, and historic buildings will be more likely to stay occupied and maintained.
Integration of Housing Strategy with Downtown Planning
Another step Bellefonte needs is to connect its zoning reform directly to housing strategy. Right now, there is a clear mismatch: the borough has too much commercial space that sits empty while demand for housing continues to grow. This imbalance leaves storefronts dark and puts pressure on families and workers looking for affordable places to live.
A better path forward is to allow more flexibility for first-floor residential uses, especially in non-core areas of the Central Business District and Waterfront Business District. By doing so, Bellefonte can fill underused commercial space with new homes while still protecting the most important blocks of High Street for retail and community activity.
Mixed-use development is also critical. Housing above or alongside commercial space creates a steady base of residents downtown, which in turn supports shops, restaurants, and services. This approach has worked in other small towns, where apartments over storefronts keep lights on downtown long after businesses close for the evening.
Outside the historic core, Bellefonte should also look at designating areas for high-growth residential towers—up to 10 floors. These could include owner-occupied condominiums and rental apartments, giving the borough a broader mix of housing options. Concentrating this type of growth outside the Victorian blocks allows Bellefonte to add density without compromising its historic character.
The metrics for success are easy to track. First, the number of new housing units should increase enough to keep pace with demand. Second, affordability should improve, measured by the percentage of income that residents spend on rent or mortgages compared to national, state, and regional averages. If Bellefonte can make progress on both, it will strengthen the local economy and create a healthier balance between housing and commercial space.
Clear Definition of Historic Preservation Priorities
Bellefonte’s history is one of its greatest assets, but right now the borough lacks a clear framework for deciding what should be preserved and what can adapt to new uses. Without this clarity, every project becomes a case-by-case debate, which slows investment and leaves too many buildings sitting vacant.
The solution is to establish a clear definition of what counts as historic. For Bellefonte, this would include the Victorian storefronts that give High Street its identity and landmark structures that define the borough’s character. Once these buildings are identified, preservation guidelines can be developed to ensure that their unique features are protected while still allowing property owners to make improvements.
At the same time, not every building needs to be locked into preservation rules. Non-historic or marginal properties should be eligible for adaptive reuse or redevelopment. This flexibility would allow Bellefonte to meet modern needs for housing, small-scale industry, or community uses without compromising the Victorian charm that attracts visitors.
The metrics for success are simple. The percentage of designated historic buildings that are maintained or reinvested in should increase, and the number of vacant or deteriorating historic structures should go down. If Bellefonte can achieve both, it will preserve its character while making room for growth and reinvestment.
Economic Development Tools to Fill Space
Zoning changes are important, but zoning alone cannot bring tenants into empty storefronts. Even with the right rules in place, Bellefonte needs stronger economic development tools to make downtown space attractive and viable for businesses.
One option is to implement business incubators and pop-up programs. These give entrepreneurs and small businesses a chance to test ideas in low-cost, short-term spaces. An incubator or pop-up shop can fill a vacant storefront quickly, bring new energy to the street, and help local businesses grow into long-term tenants.
Tourism is another key opportunity. Bellefonte already has the history, architecture, and small-town charm that draw visitors. With the right strategy, it could become a national destination. Investing in events, heritage tourism, and branding the borough’s Victorian identity would increase foot traffic and create more demand for shops, restaurants, and services.
Financial incentives also make a difference. Tools like tax abatements, façade grants, and revolving loan funds can help property owners improve buildings and reduce the upfront costs for small businesses. When paired with zoning reforms, these incentives give people real reasons to invest in Bellefonte instead of waiting on the sidelines.
The metrics for success are measurable. Business occupancy rates should rise, and commercial rents should stabilize in a healthy range. If rents are too high, it means small businesses are being pushed out. If rents are too low, it signals that there is still too much vacant space and not enough demand. The goal is balance: rents that show demand for space without shutting out local entrepreneurs.
Flexible Zoning for Future Trends
Bellefonte’s current zoning rules are built on the assumption that retail will continue to dominate downtown. But the reality is different. E-commerce has reduced the need for traditional storefronts, and remote work has shifted how and where people spend money. Planning for a retail-heavy future risks leaving Bellefonte stuck with more vacant space than the community can support.
The answer is flexible zoning that adapts to these new trends. Historic buildings should always be protected for their look and character, but the rules for how those buildings are used on the inside should be extremely flexible. If a Victorian storefront has to stay looking like a storefront from the outside, then the zoning should allow the inside to become anything from a café to a coworking space to an art studio. Flexibility is what will keep property owners investing in those buildings instead of letting them sit empty.
Another important step is reducing barriers to residential conversions in areas where retail demand is weak. Converting unused commercial space into apartments or condos not only keeps the building in use but also brings new residents downtown. Those residents, in turn, support the businesses that remain.
The metrics for success are straightforward. Long-term vacancies should go down, and downtown should have a wider mix of uses beyond just retail. If Bellefonte can create that balance—preserving the historic look while opening up the uses—it will build a downtown that is both authentic and adaptable to the future.
Conclusion
The Victorian Storefront Overlay started as a genuine effort to deal with Bellefonte’s vacancy problem. It was an attempt to protect key blocks while giving some flexibility elsewhere. But in the end, the overlay falls short. It is legally vulnerable, piecemeal, economically weak, unfair to some property owners, and out of step with the larger shifts shaping small-town economies today.
Bellefonte doesn’t need another quick fix. What it needs is a comprehensive, forward-looking strategy that takes a hard look at all commercial zoning, ties in housing demand, uses real economic development tools, and stays flexible enough to adapt to the future. With the right plan, Bellefonte can protect its historic character while building a downtown that is vibrant, resilient, and ready for the 21st century.
