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HomeMy WebLinkAboutMemorandum 12/15/1983RPPW Raymond, Parish, Pine & Weiner, Inc. 555 White P~ains Road, Tarrytown, NY 1 0691 914/63~-9003 212/365-2666 Memorandum December 15, 1983 TO: Town of Southold Planning Board FROM: RPPW, Inc. RE: Summary of Preliminary Master Plan/Land Use Proposals The following is a summary description of the proposed Master Plan update for the Town of Southold and should be considered a preliminary report subject to further refinements and input by the public, planning board and consultants. It is clearly intended as vehicle for public discussions. '~ This su~mary should be used in conjunction with the Preliminary Plan map. INTRODUCTION A comprehensive Master Plan is a statement of what the Town considers to be its long range goals and desirable types and patterns of development appropriate to achieve those goals. The plan is comprehensive in that it addresses all aspects of the. community -- residential development, economic development, natural environ/nent, community services and facilities, and transportation systems -- and sets forth the approach to achieving the desired ends. The community's Master Plan should never be considered as a static blueprint to be followed without regard to changing condi- tions, but rather should be viewed as a dynamic document to be reviewed periodically and revised as necessary. Moreover, since the plan is intended as a long range statement, the implementa- tion of the plan will take place over an extended period of time. PROPOSED GOALS The goals of the Town of Southold reflect the Town's interest in preserving and enhancing the natural and built environments' and providing-opportunities for a level of growth and expansion of the economic base that is compatible with the existing sensitive environment of the community and its historic heritage. The following are the goals upon which the Preliminary Plan is based: Overall Planning ~' .~ Provide a community of residential hamlets that are comprised of a variety of housing opportunities, commercial, service, and cultural activities, set in an 'open or rural atmosphere and supported by a diversified economic base .(including agriculture, marine commercial and seasonal recreatioK activities). Maximize the Town's natural assets, including its coastal location and agricultural base and achieve a compatibility between the natural environment and development. Achieve 'a land use pattern that will not contribute to degradation of the subsurface water quality. Housing/Residential Development Preserve the existing housing stock and provide the opportunity for the development of a variety of housing types to meet the needs of people at various stages of the life cycle, various income and age levels and household compositions. Economic Development Strengthen and diversify the Town's economic base as a means of stabilizing and expanding the tax base and year-round and season- al employment opportunities. Waterfront Protect environmentally sensitive coastal areas, maximize public access to the waterfront and achieve economic benefits from water-enhanced and water-dependent activities, particularly well conceived seasonal and commercial activities in appropriate locations. Agricultural Preservation Preserve Southold's p~ime farmland and encourage the continuation of agriculture as an important element in the life and economy of the Town. Environment Preserve. and enhance the Town's natural environment including waterways, wetlands, tidal marshes, woodlands, bluffs, dunes and beaches. 2 Maintain and protect Southold's agricultural heritage and pasto- ral and open qualities. Ensure that there is an adequate quantity of high quality ground water to serve Southold's present and projected year-round and seasonal populations. Promote a development pattern that is responsive to sensitive areas exhibiting prime agricultural soils, poor drainage, kigh water table, high erosion hazard, flood hazard, sensitive coastal features, great scenic quality and woodlands. Maintain.and improve surface water quality. Maintain and protect finfishing and shellfishing habitats. Cultural Environment Preserve .the historic, cultural, architectural and archaeological resources of the Town. Preserve and strengthen the hamlets as cultural, residential and commercial centers of activity in the Town; as a means of contributing to the preservation of historic buildings and areas and encouraging a "sense of place." Community Facilities/Utilities Ensure the provision of an adequate range of community facilities and services to accommodate existing and future Town needs in a convenient and cost effective manner. Maintain and improve existing utility systems and determine where it is appropriate to expand water supply, sanitary sewer, storm drainage and solid waste disposal systems in order to support the desired level of development and to maintain and protect a healthful living environment, a viable economic base and the natural environment. Provide an open space and recreation system adequate in size and location to accommodate a range of facilities to serve the total (seasonal and year-round) population. Transportation Insure efficient movement of people and goods within $outhold, as well as into and out of Town, in a manner that maximizes safety and maintains the scale and integrity of residential and agricultural areas. 3 LAND USE PROPOSALS In addition to reflecting Town goals, the land use recommenda- tions are influenced by numerous factors including the characteristics of existing development, characteristics of the land, past and anticipated tr'~nds, quality o-f subsurface water, and capacity of existing services and their potential for expansion. Moreover, while current patterns of use and density have influenced the Plan particularly in a number of residential areas, other areas, presently in vacant or agricultural use, are designated -as low density, based largely upon ground water considerations. AGRICULTURAL ANDRESIDENTIAL Major residential development is encouraged in and around existing hamlets in order to preserve ~nd enhance the historic and cultural centers, of the community, to support existing commercial centers, and to encourage efficient and effective provision of community facilities and services including recreation, water and sewer systems, where appropriate, and public safety' (fire and police). Generally lower densities are proposed along coastal areas adjacent to inland waterways and wetlands and where domestic water supply is uncertain or limited, and even lower densities are reflected in proposed agricultural preservation areas. Agricultural Preservation Sizable portions of land throughout the Town in Mattituck, Cutchogue, Peconic, Southold and Orient that are currently in agricultural use and/or possess prime soils for farming (Classes I and II) are designated for Agricultural Preservation. Within these areas, which total approximately 10,000 acres in what is essentially a critical mass of contiguous lands, non-far~ related residential development should be discouraged. The major purposes of this category are to retain farmland, contribute to the encouragement of farming and agricultural activities and to retain the agricultural quality of the Town. The establishment of an Agricultural Preservation category represents an important policy statement. In order to protect farmland, the basic residential density in this category is one dwelling unit per ten acres. This specific allowable density is one element of a package of techniques to be utilized to carry out the policy. A combination of transferring development rights to hamlet areas, County and Town acquisition of~ development rights, and special agricultural land use regulations and agricultural use land assessments will be necessary. The basis of such _a system will be to assign one development right or cradit for each two acres of agricultural land. Thus, those wishing to retain agricultural lands, may sell or transfer 4 development credits at the rate of one unit per two acres of usable farmland or woodland, whereas they would only be allowed to develop one unit per ten acres in the preservation area. The rights or credits will .be effectively transferred to areas planned for higher density development in and around the hamlet centers (these areas will be 6alled receiving areas) through a system whereby property owners in the receiving areas can purchase the credits to apply to their lands. The lower base density has.been established' for the preservation'areas so that where there.is no interest, in selling or.transferring rights, development-could only occur at the density of one unit per ten acres, thus helping to retain very low density in agricultural areas. Included within the Agricultural Preservation designation are properties totaling over 500 acres whose development rights have already been acquired as part of the S~ffolk County Farmland Preservation Program. This already assures that these lands will remain in agricultural or open space uses in perpetuity. In the near future, additional development rights will be purchased by the Town of Southold as part of the Town's new Agricultural Preservation Program. Low Density Low Density Residential development is recommended in coastal areas to protect the ground and surface waters and environ- mentally sensitive portions of the Town including wetlands, beaches, bluffs and dunes. Generally, the Low Density designation indicates one unit per two acres; however, in areas where public water can be provided, one acre zoning is recommended. In some cases, Low Density Residential is indicated within hamlets, particularly where large residential lots or vacant lots are located near water bodies, e.g. near the head of Mattituck Creek, or on the peripheries of the hamlets. This low density, combined with creative development techniques such as locating permitted residences on non-environmentally sensitive lands and keeping other lands open, can serve to achieve both residential and environmental planning goals. Medium Density Some of the areas designated for Medium Density reflect current conditions, but many of the areas will be considered receiving districts for the system of transferring rights. The base density for residential areas that are designated Medium Density is one unit per acre. In order to develop properties at a higher density, two conditions must be met: (1) provision of utility service and (2) purchase of development rights. Following Suffolk County Department of Health standards, in order to develop properties at a density greater than one per acre, a public water supply is required, and to develop lots in this area at a density greater than two units per acre, a sewage treatment facility or connection to a sewer system would be needed. Thus, if public water service were available, but sewage treatment were not available, the maximum density permitted-'~Would be two units per acre. If public water and sewage treatment were available, then parcels designated as Medium Density could be developed at densities up to four units per acre. To reach m~ximum indicated densities around the hamlet centers some purchase of development 'rights and'~ither some expansion of the Greenport water and/or sewage treatment systems may be required or the creation of new water supply and distribution systems and sewage treatment systems will be necessary. Thus, the maximum Medium Density development (four units per acre) would be permitted only where necessary development rights are acquired and necessary utilities are in place. Hamlet Density Hamlet Density Residential is indicated for portions of some hamlet areas of the Town in order to provide an incentive for the provision of lower cost housing. The maximum possible density in a designated Hamlet Density Residential area is six units per acre. As is the case with Medium Density areas, in order to go beyond a base density of one unit per acre, there must be (1) specific provision of utility service and (2) purchase of development rights. In addition, in Hamlet Density areas, parcels may be developed at six units per' acre if one of the six units is considered and specified as lower cost housing. The Hamlet Density category is also designed to support the establishment of innovative techniques for getting the optimum use out of existing housing. This could include approaches such as accessory apartments in homes where owners occupy the premises, utilities are available and sites are of sufficient size. Thus, the same formula for achieving higher densities would be applicable as was presented above under Hamlet Density Residential and under Medium Density Residential. Office/Residential The category Office/Residential has been designated in the hamlets of Mattituck and Southold. This designation has been used primarily for areas that are currently in mixed use along major roads but which are not appropriate for commercial or exclusively residential use. These areas serve as a transition between mo~e intensive and less intensive uses. The parcels are generally smaller than those in the office-industrial park 6 category. Residential use will be permitted at a base density of one unit per acre with the opportunity to go to six units per acre (see description of Medium Density Residential and Hamlet Density Residential) if conditions can be met,'that are reqRired to exceed the base density of one unit per acre. Nonresidential uses such'as business and Professional offices, insurance sales and real estate are accommodated in these areas. Residential Capacity Residential development in Southold is both year-round and' seasonal. Since so much of the seasonal housing can be utilized year-round and therefore has the potential to use water and other services as year-round units and may have the full impact of a year-round unit, for planning purposes, all housing is considered year-round~ The preliminary plan as it now stands has a capacity for nearly 12,000 additional dwelling units (year-round and seasonal) which includes approximately 2,500 existing infill lots and mapped unbuilt subdivisions. This would be added to the 7,500 existing year-round and nearly 3,000 seasonal units. This figure-is based, upon the assumption that all requirements for full development, including utilities, will be provided in appropriate areas. To the extent that this is not achieved, the total capacity is more limited. If the current household size stays at about 2.5 persons, then there would be approximately 30,000 additional residents. It is likely that about one-third' will be seasonal. Therefore, the probable additional year-round population would be about 20,000, above the current population of nearly 20,000. This is well within the capacity of the available water supply. COMMERCIAL Hamlet Commercial Retail commercial uses and commercial services are, in general, recommended only in hamlet centers. Expansion of "strip" retail commercial uses along the Town's major corridors, State Route 25 and County Route 48, will be discouraged since this type of development can weaken existing commercial centers which have capacity for limited expansion, result in increased traffic congestion, and conflict and undermine the visual and aesthetic appeal of the Town. Within the areas designated as Hamlet Commercial, retail uses predominate; however, there may also be some office, public, semi-publ.ic and residential uses that are part of the cultural and activity cores of the communities of Southold Town. Mattituck, Cutchogue, New Suffolk, Peconic, Southold, East Marion, Orient and Fishers Island all have areas indicated as Hamlet Commercial. General Commercial In several areas of the Town there are existing concentrations of commercial development within the hamlet area but outside the h~mlet center. These areas have been designated General Commercial. Several key locations are: west of Mattituck center; east of Cutchogue; a~d west of Southold. While some retail uses may be found currently in these portions, future commercial use would more appropriately include auto-oriented business, wholesale and distribution business, contractor yards and other heavy commercial activity. Since these activities would not be appropriate in the hamlet .,center business areas, these two types of commercial areas will complement each other and. tend to avoid dilution of the hamlet center commercial uses. There are numerous businesses scattered throughout the Town located in areas planned for non-commercial activity. While these uses would remain, the planninq f~or these areas reflects the broader policy of 'encouraging concentration of commercial activity and avoiding strip development. Marine Commercial Marine commercial water-related uses are encouraged at appro- priate locations on or near the coast along creeks and bays where they do not negatively impact on residentia% neighborhoods or the natural environment. Proposed sites for marinas or boatyards or expansion of areas currently utilized for boat mooring and marine commercial purposes have been indicated where there is adequate tidal flushing. Two major proposed areas for expansion are the Budds Pond vicinity and Mattituck Creek. The demand for expanded mooring and storage space is high and is likely to grow, but potential sites are limited. Given this limited availability of appropriate waterfront sites including creeks, alternate approaches such as on-land stacking of boats have to be considered. While the Preliminary Plan reflects one "Marine Commercial" category, when implementing regulations are drafted it may be appropriate to distinguish between strictly recreation oriented marine activity and more intensive commercial marine activity which could include commercial fishing, boat building, fish processing, etc. The Budd's Pond and Mattituck Creek areas would be appropriate for this designation. Marine commercial locations should provide increased facilities for commercial and recreational fishermen. Marine commercial areas generally include some water-enhanced (as opposed to strictly water-dependent) uses such as restaurants and marine oriented retail shops. Resort Commercial and Residential/Resort Commercial Resort Commercial development, an important element of the Tow//'s economy, is indicated for areas where seasonal resort development is now concentrated, e.g. motels, restaurants, campgrounds and where cottages are developed on a single lot. It is also indicated for areas~where such'~a future use would be appropriate. Those portions of the north shore of the Town in the vicinity of Arsha~omaq~e-Pond .and' north of Chapel Lane represents extensions of areas currently utilized for seasonal resort commercial businesses. .Areas north of Cutchogue, possibly served by an extension of Sound View Avenue, would include lands appropriately utilized for resort commercial purpose~. In addition, other coastal areas of the Town might be utilized for water-related resort commercial purposes. This t~pe.of use can be permitted if it does not have an adverse effect on current development or on water supply. In areas designated as Residential/Resort Commercial the emphasis will remain on residential development with resort development carefully planned and integrated into the residential enviror~ment. The density in these areas will be the same as low density residential densities, i.e. the equivalent of one residential unit per two acres without public water and one unit per acre with public water. It must be recognized that because these units could be utilized year-round, possible impacts of such development must .be considered on a year-round basis. Included in both categories would be uses such as conference facilities and specialized resorts (tennis, golf, health, etc.). LIGHT INDUSTRY/OFFICE The Light Industry/Office category is proposed for several accessible areas near the hamlet centers, e.g. west of Mattituck, north of $outhold hamlets, and west of Greenport which would be most appropriate for the establishment of an office park, research center or light industrial park. Some of these areas are already in such use. The uses in these areas should be of the type that will not negatively impact the ground water. The areas are of s~fficient size to permit adequate buffering to protect adjacent properties. P~ECREATION AND OPEN SPACE Areas indicated in the Recreation category include: (a) parks and beaches that are publicly owned by New York State, Suffolk County, Southold Town, or one'of the four Park Districts in the Town; (b) privately owned or group owned recreation facilities such as property owners' association beaches, golf clubs and yacht clubs; (c) proposed sites for new or expanded park facilities to create additional recreational opportunities, provide access to the waterfront and preserve sensitive environmental features. The major emphases of the Park and Recreation element are to assure access to a range of paesive and active recreation areas or facilities for persons in all areas of the Town and to expand acces~ to the water. Possible sites fo~ a major year-round swimming/recreation center to serve the entire Town include the area adjacent to Peconic Senior Youth Center and centrally located school sites. The Plan includes proposed expansion of~parkland near Peconic Dunes Camp and possible new parkland sites near Arshamomaque Pond, Dam Pond, in Bayview off Southold Bay and in the Pipes Cove and Gull Pond areas outside Greenport. The Plan incorporates a policy of setting aside localized neighborhood playground/park areas and beaches through the development process. Open Space The Open Space category is utilized to designate areas that are set aside for open space/preservation purposes, e.g. Nature Conservancy holdings, as well as to designate those lands containing sensitive environmental features such as dunes, bluffs, beaches, and wetlands that should be kept open and preserved. The category also includes cemeteries. The planning policy is to keep these areas open, but not necessarily public. In some cases it may be possible and desirable to cluster development in an area to avoid building in these environmentally fragile and/or erosion prone portions. In other cases it will be desirable to increase public access to coastal features, especially beaches. Access via easements that may be obtained as part of the development process should be pursued. It may also be desirable to acquire some larger parcels through donation or purchase. PUBLIC/SEMI-PUBLIC FACILITIES Public/Semi-Public uses in the Plan primarily include schools, governmental offices, churches, firehouses, police station, landfill, libraries, post offices and museams. 10 No major new sites or major expansion are anticipated. The life of the landfill site is limited, but more study of the alternatives for solid waste disposal is necessary. Second firehouse sites in Cutchogue and in Orient are proposed as part of the Plan but no specific sites have been incorporated into the Plan. In selecting sites better access to portions of the service area are the primary c~nsideration. ~ There are plans to relocate the post office in Southold. Every effort should be made to keep the facility near the hamlet center. TRANSPORTATION/UTILITIES In addition to roads, the Transportation/Utilities designation is used for train .stations, ferry docks, utility companies' properties and the existing airports in Mattituck and on Fishers Island. Alternative Airport Sites Two areas have been listed as alternative airport sites, both north of Cutchogue hamlet. A study underwritten by the Federal Aviation Authority is expected to establish the most desirable location in the Town for a new general aviation airport. Either of the above two sites would be appropriate and possible in terms of the very low density residential use in the surrounding area and compatibility with surrounding agricultural uses. It is anticipated that the existing Mattituck airport will be retained, primarily as an aircraft service facility. Sound View Avenue Extension The Plan includes a proposed new road in the northwestern portion of the Town which would be an extension of Sound View Avenue eastward from Mattituck to Bridge Lane north of Oregon Road in Cutchogue. This road will facilitate utilization of the Long Island Sound waterfront and provide opportunities for limited residential and/or resort commercial development without intrusion into areas designated for agricultural use. East Marion Northerly Road Another road has been proposed in the northern portion of East Marion to facilitate east-west traffic and improve circulation in this low density residential area, as well as to provide suitable access to the proposed park west of Dam Pond. Route 48 Widening The ~lan includes a proposal to widen Route 48 from the vicinity 11 of Kenney's Road north of Southold to Manhasset Avenue east of Greenport. Route 48 west of Kenney's Road has already been widened to four lanes; this improvement should be continued eastward to ease congestion on Route 25 by accommodating truck traffic and second home and seasonal traffic heading to or from the eastern portions of the T0~n. Aldrich Lane By-pass to Route 48 Several alternative approaches to relieving congestion in Mattituck have been explored. The preliminary plan reconfirms the Aldrich-Lane by-pass as the most appropriate 'approach. Signs should be improved on Route 25 in Laurel directing truck drivers and travelers to the eastern portions of the Town to utilize Route 48 as an alternative to Route 25. In a similar fashion, drivers travelin~ westward from Orient, East Marion and eastern Greenpor~ should be encouraged by well designed and placed signs to take Route 48 and Aldrich Lane rather than Route 25. NEXT STEPS This Preliminary Plan should be discussed throughout the community and a consensus developed on the policies and the plan itself. Once the plan is adopted by the Town, steps will be necessary to implement plan recommendations. These steps will include: creation of a transfer of development right (TDR) system to protect agricultural lands including establishment of a TDR fund or bank; the requirement of mandatory clustering to preserve sensitive environmental features listed as open space areas and aquifer areas; provisions of a series of measures to encourage and facilitate the development of lower cost housing particularly for younger and older segments of the Town's population; review of the zoning ordinance and adoption of changes to implement to land use proposals incorporated in the Plan; coordination of traffic improvement recommendations with the New York State Department of Transportation and the Suffolk County Highway/Public Works Department; and development of a capital expenditures program to outline and establish a means for providing necessary public improvements including water and sewer and recreation. The implementation phase will also include a review of existing and proposed regulations dealing with environmental protection and historic preservation. 12