That solution feels like it needs refinement...

- In a commercial / industrial district (taxpaying companies, but no residents), do those taxpayers decide?

- Is the "Residents...have to decide" voting weighed by how much each one is paying? It seems reasonable for Walmart to have a bigger say than any of the little stores & restaurants across the street from Walmart.

- Is there some "I don't need" opt-out? A farmer growing 640 acres of corn across the road from Walmart probably doesn't even need the road to exist - the dirt roads along the other 3 sides of his field are good enough for tractors.