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Task 12 Products Fishers Island Strategic Plan: 2007-2017 Town of Southold, New York October 2007 Fishers Island Strategic Plan: 2007- 2017 Prepared for: Fishers Island Town of Southold P. O. Box 1179 53095 State Road 25 Southold, NY 11971 (631) 765-1800 Written by: Valerie M. Scopaz, AICP VMS Planning Scxviccs P. O. Box 1655 Southold, NY 11971 631 765-5552 vms~iannim,~.ootonline.net OCT 30 2007 "';. September 2007 Southold To~ Cler~ Fishers Island Strategic Plan: 2007-2017 FISHF~RS ISLAND STRATEGIC PLAN 2007 - 2017 TABLE OFCONTENTS EXECUTIVE SUMMARY .................................................................................... i 1 3 4 5 INTRODUCTION Study Area ............................................................................ General Planning and Political Context ............................................. Project Propose ...................................................................... Plan Development and Public Participation ....................................... Acknowledgements ........................................................................ Reader's Guide ............................................................................. METHODOLOGY, ISSUES & ANALYSIS Methodology .......................................................................... ! Expirations ........................................................................... 2 Key Issues of Concern ............................................................... 2 Assessment of Island Strew, tbs .................................................... 4 Assessment of Potential Solutions and Strategies ............................... 4 Information Needs ................................................................... 4 Independent Observations & Analysis ........................................... 5 VISION, GOALS AND OBJECTIVES The Role of Vision, Goals and Objectives in Public Policy ................... 1 Vision Statement ..................................................................... 1 Goals and Objectives ................................................................ 2 IMPLEMENTATION STRATEGIES Strategies ............................................................................... I INVENTORY Introduction .......................................................................... 1 Planning Framework ................................................................ I I The Fishers Island Growth Plan ....................................... 1 2 Master Plan Update - Background Studies: 1984 ................. 3 3 Zoning Code end Zoning Map: 1989 ................................. 5 4 Water Supply/Watershed Study: 1994 .............................. 6 5 Local Waterfront Revitalization Program ............................... 7 6 Comprehensive Implementation Strategy: 2003 ................. 11 7 Hamlet Study: 2005 ................................................... 12 Table of Contents I Fishers Island Strategic Plan: 2007-2017 8 Island Institute: 2003-7 ................................................ 13 9 Planning Conclusions ................................................. 14 Natural Resources ............................................................... 15 I Harbor Management Committee ............................................ 16 Historical Context ............................................................... 16 I Founding Days .......................................................... 17 2 Post World War II ..................................................... 18 3 Structures & Sites of Historic Importance .......................... 19 a. Parade Grounds .......................................................... 19 Management Slruoture .......................................................... 20 1 Intergovernmental relations .......................................... 26 2 Alternative forms of government ..................................... 27 Development Patterns & Constmiats ......................................... 28 I West End ................................................................. 28 2 East End ................................................................. 29 Public Services & Facilities .................................................... 30 I Water Supply .......................................................... 30 2 Wastewater Facilities .................................................. 31 3 Electric ................................................................... 32 4 Telephone ............................................................... 33 5 Emergency Management ........................................................ 33 6 Other ..................................................................... 33 Zoning ............................................................................. 33 1. Zoning Patterns ....................................................................... 34 2. Uses permitted within business districts ................................ 36 Development Potential .......................................................... 40 Land Preservmion ............................................................... 41 Demographics .................................................................... 42 I Census Data & Analysis ............................................... 42 2 School Population ....................................................... 44 School Services .................................................................. 45 Social Services .................................................................... 45 I Existing Senior Services ............................................... 46 2 Proposed Senior Services .............................................. 46 3 Proposed Youth Bureau ................................................ 46 Housing ............................................................................ 46 I Affordable Housing Overview ........................................ 47 2 Housing ~rvices ........................................................ 49 a. Section 8 ...................................................................... 49 b. Horoe Improvement ..................................................... 49 c. Moderate Housing ...................................................... 50 d. Proposed. Services ........................................................... 50 3 Acc~sory apartm~ts ................................................... 51 4 Permanent affordable housing ......................................... 52 Coramunity Services ............................................................... 54 Transportation ....................................................................... 55 Table of Contents 2 Fishers Island Strategic Plan: 2007-2017 1 RoMs ........................................................................ 55 2 Ferry ....................................................................... 55 3 Airfield ..................................................................... 58 Economy ............................................................................. 58 Information & Communications .................................................. 60 1 Centralized Information Collection & Management .................. 60 2 Geographic Information System ........................................ 62 6 BIBLIOGRAPHY & SOURCES Bibliography ........................................................................... 1 Sources .................................................................................. 2 7 APPENDIX A. Minutes of Stakcholder Meetings ........................................................ 1 B. Questionnaires ..................................................................................... 7 C. Written Responses to Quesfionnsires 8 REFERENCE BINDER A4 B. C. D. E. F. G. H. I. L. M. N. O. P. q. Reach 10, Town of Southold Local Waterbont Revitalization Program Fishers Island Had>or Management Plan Town Code, Chapter 157 Harbor Management Emergency Management Plan U.S. Census Data: 2000 Utility Company's Letter to Public Service Commission Island Housing Inventory: 2007 Preliminary Housing Report to School Board, 2002 Town of Southold Affordable Housing Programs - Policies and Procedures, July 2006 North Fork Housing Alliance, Section 8 Application and Income Guidelines. Town of Southold Affordable Housing District Legislation Fitness Trail Fishers Island Ferry District Lca~s: 2006 State University of N~0v York Economic Development Brochure Island Inventory of Business~: 2007 Landmark Preservation Application Process: Parade Grounds Island AdminisWator Job Description (All maps are contained within this report except for Map 2-10 Sewer Network, which is located within the Reference BInder.) 1-1 Study Area 2-1 Zoning before 1989 2-2 Zoning in 1989 2-3 Zoning in 2006 Table of Contents 3 Fishers Island Strategic Plan: 2007-2017 2-4 Areas of Special Concern - LWRP 2-5 Wetlands 2-6 SPLIA Inventory 2-7 Proposed Boundary. Parade Grounds Historic District 2-8 Land Us~ 2-9 Water Supply 2-10 Sewer Network 2-11 Community Faeiliti~ 2-12 Buildabl¢ & Subdividabl¢ Land 2-13 Protected Lands 2-14 Community Pr~ervatiun Program Plan Map 2-15 Business-zoned properties and structures. Table of Contents Fishers bland Strategic Plan: 2007-2017 EXECUTIVE SUMMARy In 2004, as a sequel to adopting its Comprehensive Implementation Strategy, the Town of S~.uthuld initiated a s~ies of handet studies during which residents were asked to create m~cro-te~plates for land use and other public policy or administrative decisions within their respective hamlet centers. However, the template for these studies did not fit the particular ciroun~ances of Fishers Island. Unlike other $outhold hamlets which were struggling with probl~ns related to population growth and new development, Fishers Island was fearful of further declines in its already small year.round population; to name just one of the issues of concern. Its geographic distance and isolation i~n the rest of the Town coupled with its closer physical proximity to Connecticut meant the business of government (as well as living) was somewhat awkward and complicated. Although the Islanders' b~a~ assumed an enormous de~ree of responsibility for protecting and e~mncing their own public health, safety and welfare, some issues required a more cohesive lev~raging of public as well as private resources. A different template was needed. The Plannin~ & Political Cnnt~t Through the years, several public and privately-funded planning studies articulated a vision for the Island's future. But, with the exception of the Local Waterfront Revitalization Program, none contained specific ~h~egies for aohieving it. In 2002-3, Island residents asked The Island Institute of Maine for help in addressing socio- economic issues peculiar to small island conununities. The Institute provided assistance in restmctu~g the Island's ad-hoc form of self-government: a necessity given its geographic isolation from the rest of the Town. These efforts led to the creation of the Fishers Island Community Board (FICB), which subsequently established an Island Office, a non-pwfit newspaper, and a schedule of Island activities: all of which has resulted in improved in~ra-islend communications. The FICB was also charged with two other task~: to arti~lato al~ priority comm~lllity goals; and undertake and support effo~s necessary to achieve those goals. Document Pumose The purpose of this document is to articulate the community's goals and objectives, thereby setting the stage for the FICB to ehart Fishers Island's course for the next decade. Thc Fhher~ Ishmd Strategic Phm 2007-2017 is the end product of a consensus-building and planning precis that started during thc surmner of 2006 and ended in the fall of 2007. The Plan's scope goes beyond thc boundaries of thc hamlet's business centers to include the entire Island. As noted enrlinr, this change in template was justified because of the Island's unique history, pattern of land use development and physical isolation from the rest of Southuld Town. Prelect Design & Mathodoloav Active input by the Island community was solidted, fu~t by appointing Stakeholders representing a broad spectrum of the Island community. Although appointed by the Southold Town Board, they were giveo fi~e rein to shape the content and direction of this document. .Execut/ve Summary Fishers Island Strategic Plan: 2007-2017 Thc consensus-building approach used to facilitate cons~xuctive dialogue and practical problem-solving enabled each Stakeholder ~ bring different perspectives to the table. The Stakeholders identified gaps in their understanding of the issues facing the community, which resulted in a search for a comprehensive database about the Island as well as the governmental agencies which influence Island life. The Stakeholders gathered raw data on housing and the economy. The consultant worked with various Town and Island personnel to collect and collate information for future access and use on the Island. The consultant and the Stakeholders conducted extensive interviews with representatives of key Island organizations, all of whom are acknowledged in Chapter 1. The second part of this exercise consisted of exhaustive conversations amongst the Stakeholders about Fishers Island's future. Using the up-dated information, the Stakeholders made frank assessments of the problems facing the Island and worked hard to reach consensus about how best to categorize and solve those pwblems. The fruit of that dialogue was encapsulated in a drat~ Vision Statement, and a clearly defined set of goals. The goals spanned ten separate, but interconnected, aspects of community life. Then, the Stakeholders developed a series of objectives for each goal. The objectives explained the specific outcomes the go.al was intro., ded to achieve. The idea was to define benchmarks that would help commumty leaders ludgo whether a future proposed action would actoally bring them closer to achieving the intended goal. Finally, the Stakeholders identified specific implementation actions, some of which called for further research and discussion. The Fishers Island Community Board subsequently sponsored (at its own expense) a series of public information and roundtable forums to enable the Stakeholders to engage the wider Island community in a dialogue, using the draft statement of vision, goals, objectives and implementation ~uategies as a focal point. The resulting community input was used bythe Stakeholders to revise and refine this document. Prelect Im-~?~°ntmt~0n: Next Stevs This document is intended to be the basis of an organized, vibrant and ongoing dialogue (under the aegis of the FICB and with the cooperation of the Town) through the next decade. The lense-leaf binder format will facilitate its use as an expanding sad evolving compendium of factual information, as well as a vital part of the Island's institutional memory. This planning exercise was being fimded principally by the Town of Southold. significant supplementary funding was provided by the Fishers Island Community Board to underwrite consulting assistance during multiple Stakeholder meetings and four community information meetings. ii Executive Summary Fishers Island Strategic Plan: 2007-2017 CHAPTER 1: INTRODUCTION Fishers Island is a unique place with an unusual history. It is populated by independent- minded people, who have chosen the island way of life and recognize its rarity in today's world. The geographic isolation of island life poses challenges that are not for the timid or faint of heart. It should be no surprise that the island's inhabitants are a resourceful, persistent lot, dose to the American pioneering spirit. This report is the end product of a community planning exercise that took place over several months spanning the summer of 2006 and ending in the fall of 2007. The exercise wes designed to address the specific concerns of the Fishers Island community as they were articulated during this process. While this report contains many elements of a standard land use plan, it is not a typical planning document. The title, Fishers Island Strategic P/an, reveals its intent: to lay a foundation for future community action, a means whereby the Island community may achieve its goals for its future. As will be explained below, in the Readers G~ide, the structure of this document is intended to facilitate self-governance, whether through the channels of the existing town government or through the collective, voluntary actions of the island's residents. As a result, it is intended to be more of a source book, reference manual, and strategic document than a repository for all the known information about Fishers Island. The reader should pay close attention to the section below, entitled General Pl~mni~g and PolifivJl Centex because it explains more fully the specific issues this planning exercise and report were designed to address. Smd,/Area Fishers Island is nearly five square miles (about 3,200 acres) in size, and is the largest island within Southold Town. It is located about twelve miles northeast of Orient Point and about four miles south of Connecticut. Several smaller islands surround Fishers Island: all uninhabited, except for North Dumpling, which contains a residence. Map 1-1 shows the Study Area and its geographic location. Fishers Island has a complex history of managed growth. Its size and location relativc to both Southold Town and New London, Connecticut, has shaped its fiercely independent community. Residents of the Island recognize its social and natural uniqueness, and are protective of it. The strategic planning exercise that informed this document was 'conducted in direct response to a request fi~m the Islanders for a more complcte and comprehensive informational database with which to chart thek future course, which aims to protect and enhance thek unique quality of life. General Hannin~, & Political Context Be~i~'nning in 1984, the Islanders sponsored a series of privately-funded planning studies which were used es visionary blueprints and strategic plans for community action. The first study wes compiled in 1984, when the Fisher~ Island Civic Association contracted Chapter 1: Introduction Fishers Island Strategic Plan: 2007-2017 with the Trust for Public Land to assess the Island's capacity to accommodate future growth. In 1988, another report, The Fishers Island Growth Plan, was written. It was subsequently updated in 1994. During the mid-to late 1980s, Fishers Island also participated in the Town-wide Master Plan Update, but the Update was not tailored to Fishers Island. The substance of these and other relevant plmming policies and documents are discussed in fuffi~er detail, in Chapter 5 Inventory. Today, more than a decade after the 1994 Growth Plan update, the challenges facing Fishers Island are similar, but different. The purpose of this strategic planning exercise was to re-examine these challenges and to help the Islanders chart a course for the next decade using the latest available data. The aforementioned studies had created a foundational inventory of the Island's resources, but certain aspects of this database were in need of updating and enhancement. Public information essential to Island government also needed to be made more accessible to Island residents. Traditionally, factual information about Fishers Island could be found both on the island and within Southold's Town Hall. However, the geographic distance between the Island and Town Hall, coupled with limitations of technology, were the primary reasons why neither the Island nor Town Hall had a complete, categor/zed set of essential information. Recent technological advances in communications (computers, e-mail and the Internet) coupled with improvements in data management (specifically the development of a Geographic Information System (GIS) for Southold Town and the implementation of Laserfiche, an electronic document storage and retrieval system, in the Town Clerk's Office) offered the possibility of reversing some of these information and communication gaps. Proi~ct Purpose The Fishers Island Strategic Plan: 2007- 2017 (FISP 2007) is desigaed to recedfy past deficiencies in the Town's general and (3IS databases about the Island. The FISP 2007 also is intended to provide a visionary focus for decision-making at thc community and governmental levels, as well as a practical listing of actions or strategies whereby the community's Vision could be realized. The format and content reflects the active input of the Island's residents and its key stakeholder groups, who were represented by individuals selected and appointed by the Southold Town Board. Plan Develonmant & Public Partici~qt~on This plan was developed as part of a collaborative process involving three separate groups of participants: the Islanders (as represented by appointed Stakeholders), Town staff and the consultant. The Stakeholders wore identified by Councilwoman Louisa Evans and appointed by the Southold Town Board. The Stakeholders were chosen with an eye towards bringing together a broad representation of the Island community. The composition of the Fishers Island Community Board served as a guide. Table 1 lists the Stakeholders. Chapter 1: Introduction 2 Fishers Island Strategic Plan: 2007-2017 Table 1: Study Participants Stakeholders: Heath~ Ferguson Burnham Peter Burr Ken FAwards Meredith Hart Sudi lmbriglio Audrey Noy~ Ludemann Sarah Malinowski William C. Ridgway Penni¢ Sharp Charles Stcpanek The Plan was developed over the course of fifteen months beginning in July of 2006. The minutes of the Stakeholder meetings are included in Chapter 7. Councilwoman and Town Justice Louisa Evans served as an Ex-officio observer and facilitator. Her help in facilitating assistance from Town Hall was invaluable. While she participated in the Stakeholder discussious, she did not vote on the language and substance of this document. Acknowied~emen~ The research and development of the FISP 2007, particularly the inventory, would not have been poss~lo without the assistance of Ialanders who generously shared of their time and expertise. The following people met with the consultant and/or the Stakeholders in response to a specific invitation, requests for assistance, or by attending Stakeholder meetings as interested observers. A few called to offer expertise and other assistance. Table 2, below, lists these individuals in alphabetical order. Table 2: Community Resources Ann Banks, Librarian, Fishers Island Library ElbeR Burr, Chairman, Fishera Island Harbor Commltlce Frank Burr, Chairman, Walsh Park Benevolent Park Corporation Peter Btinkerhoff, President, Board, Fishers Island Library Asaociation Tom DoheIW. M*~zEer Fishers Island Ferry District Reynolds (Chippy) du Pont, Jr. Chairman, Fisher~ Island Fer~y District Leslie Goss Ctruner, Fisher~ Island Harbor Committee Sar/th Mnllnowski. Stakeholder Steve Malinowski, Fishers Island Oyster Farm Kathy Parsons, President, Fishers Island Development Company Pierce Rafferty, Curator, Henry R. Ferguson Museum William Ridgway, Stakeholder Cynthia Riley, Progntm Director, Fishers Island Library Jeanne $chuitz, Superintendent, Fishers Island 5¢hool Penni Sharp, Stakeholder John Spofford, President, Fishers Island Community Board Art Walsh, Member of the Fishers Island School Boanl Robert Wall, President, Fishers Island Utility Company, & Manager, Fishers Island Development Company Chapter 1: Introduction 3 Fishers Island Strategic Plan: 2007-2017 Town Elected Officials: Darlene Duffy, Tax Assessor Councilwo~ & Justice Louisa Evans, Ex-officio Elizabeth Neville, Town Clork Scott Russell, Supervisor Robe~ Scot~ Tax Assessor Town Aenointed Officials K~mleth Edwarda, Jr., Planning Board Town Staff:. Philip Beltz, Special Projects Coer~ir~tor Linda Bohn, Assistant Deputy Town Clerk Antonia Booth, Town Historian John Cushman, Comp~oller Linda Cooper, Assistant Deputy Town Clerk Patrieia Finaegan, Town Attorney Carol Kalin, Sec~ary, Planning Departmeat Karen McLauEhlin; Director, Human Resources Departmeat Jame~ MeMshen, Director, Public Works Department Stacey Norldan, Records Management Assistant Linda Randolph, Secretary, Planning Department Kenneth Reeves, Director, Recreatian Department Lloyd Rdsenberg, Network end Systems Administrator Robert Scott, Tax Assessor John Sepenoski, Technical Coordinator II Mark Terry, Acting Director of Planning Anthony Trezza, Senior Planner Reader's Guide As noted in the beginning of this Chapter, the Fishers Island Strategic Plan was designed to address the highly specific needs of Fishers Island's residents at this particular point in their history. First and foremost, this document is designed to be a vehicle for expr~ssin8 the consensus viewpoints of the Fishers Island community as regards its future over the coming decade. Second, it attempts to set a series of benchmarks that define the specific policies, projects, and actions that will be needed in order for the Island community to protect and enhance its way of life. Chapter 2 Methodology, Issues and Analysis contains a description of the primary issues of concern as voiced by the Stakeholders. It is followed by an overall analysis of the issues with reference to the facts collected and presented late~, in Chapter 5 Inventory. Chapter 2 also conta'ms observations on options the community might explore as well as thc inhereat problems the community faces in its attempt to achieve its vision for the Chapter 1: Introduction F~shers Island Strategic Plan: 2007-2017 Chapter 3 Vision, Goals and Objectives reflects community consensus about its future. This chapter is the heart of this document, the center from which all future actions must emanate. Understanding this chapter is essential for interpreting Chapter 4 Implementation Strategies, which lays out a highly specific, action-oriented schedule for use by the Island community. By design, this chapter also will be useful to officials in Town govea'nment. Chapter 5 Inventory provides a detailed synopsis of past planning studies that apply to Fishers Island. This framework was felt to be essential to understanding the long- standing commilxllent of thc Island community to protecting its unique environmental and human communities, as well as to understanding the ways in which Fishers Island is similar to (or different from) the rest of Southold Town. A considerable amount of natural resource and other information about Fishers Island was documented in these planning documents, and rather than recount that information, most of the~e documents are incorporated into this one by reference, with one exception. Relevant sections and maps of the Town of Southold Local Waterfront Revitalization Program are included in Chapter 7Appendix for the convenience of the reader. The Inventory also contains selected updates of other essential information, as dictated by the primary issues of concern to the Island community at this point in time. This information inchide~ a wide range of topica including social, demographic, environmental, economic, historic, public infrastructure and other public administrative or regulatory matters. Chapter 6 Bibliography contains a list of various sources used in the preparation of this particular report. Chapter 7 Append/x contains specific material deemed assential to understanding the issues. Finally, some material has been plac~l into in a separate Reference Binder, which should be updated periodically as needed. Finally, it must be noted that most of the factual information contained in the Inventory and Reference Binder pertain to Fishers Island or the Town of Soutbold. Some Connecticut resources are noted here, but a coraprehensive guide to Counecticut-based resources was beyond the scope of this project. Chapter 1: Introduction Fishers lsland Strategic Plan: 2007-2017' CHAPTER 2 METHODOLOGY, ISSUES & ANALYSIS This Chapter retraces the methodology and steps that were taken in order to develop this Strategic Plan, and identifies the expectations the Stakeholdess had for this project. This chapter include~ an articulation of issues of concern to the Islanders, as well as a frank assessment of Island strengths and the types of potential solutinns that would be explored. This assessment included an inventory of information that would be needed to develop a realistic atratcgy for the Island's future. Lastly, it contains an overall analysis of the options open to the Island given the issues, the information available end the inherent constra/nts of Island life. Metimdolotw The consultant met with the Stakeholde~ three times: during July, August and September of 2006. The purpose of the meetings was two-fold: to give the consultant firat-hand insight into the primary issues of concern to the Fishers Island community, includin~ their expectations for this planning exercise; and second~ to engage in a joint search fur additional information that would be of use to all patties during this planning exercise. A synopsis of the issues of concern expressed at that point in time is provided later in this chapter. The consultant spent the fall end winter months of 2006-7 consolidating and collating relevant factual information about Fishers Island end preparing a draft statement of Vision, Goals and Objectives, along with a prelim/nary list of Implementation Strategies. From April through September of 2007, the Stakeholders wonked diligently to refine the content and style of the draft document. Public inf~mnation meetings were held in June, July, August and September of 2007, most of which were sponsored, funded and hosted by the Fishers Island Community Board under the direction of its Chairman, John Spofford, with assistance by Meredith Hart Doyen. A considerable amount of public dialogue and written input was received during and after these meetings. Thc Stakeholders discussed all the comments and suggestions, and, in response, made several revisions to this document, particularly Chapters 3 and 4. Of necessity, some of the more detailed ideas contributed by Island residents were held aside with the intent of introducing them again during future discussions with the Island Community Board as part of the implementation of this Strategic Plan. Finally, the wording of Chapters 3 and 4 in particular represents the unanimous consensus of the Stakeholders. Chapter 2: Methodology, Issues and Analysis Fishers Island Strategic Plan: 2007-2017 Expectations Thc Stakeholders voiced a wide range of expectations for this strategic planning cxcrcisc. A synopsis is provided below. * A strategic plan to protect the natural environment from further degradation, to redress existing enviromnental problems and to encourage land preservation. · An inventory of factual information about the island, including, but not limited to: o Business properties and structures o Vacant building lots o Build-out potential o Demographic data and trends o Year-round housing o Environmental assessment * A consolidation of all existing information about Fishers Island, into the Town's Laser-fiche system. · A CD-ROM containing all scanned documents, including maps, pertalnillg tO Fishers Island. Ke Issues of Concern The Stakeholders also identified thc following issues as being of primary concern to the Island. (An asterisk * notes an issue that appears in more than one category.) Social: o There is insufficient affordable housing on the Island for year-round residents, but no one is sure how much housing is needed. o A decision had been made to create a community center, but there was uncertainty as to the specific needs it would serve and the services it would off~. Agreement has bccn reached on its location in Building 98,~ the owner of which, FIDCO, has agreed to let be used as a center. About $1.8 million of the roughly $2.5 million needed has already been raised. Cl'he appropriate p~imits have since been obtained and reconstruction is underway.) o There are questions as to whethe~ the year-round population is declining or just in a state of flux. o The~e are cencerns about the long-term viability of the year-round community given the current state of affairs, e.g. lack of affordable housing, increasing seasonal population, loss of housing in West End to seasonal population, limited business opportunities.* o There are security conce~as related to day workers returning to burglarize homes. Economic o There are concerns about the long-term viability of the year-round community given the current state of affairs, e.g. lack of affordable Chapter 2: Methodology, Issues and Analysis Fishers Island Strategic Plan: 2007-2017 housing, increasing seasonal population, loss of housing in West End to seasonal population, limited business opportunities.* 90 ~ a~°x/b i ~ o Utility costs (electricity in particular) are high, -- o More information is needed about the Island's businesses, its economy and the general business climate. o Little information is available about home occupations, tenants on Town- owned property managed by the Ferry District, and under-utilized or vacant business pmpcrties. o There are ennccrns that the Island is in danger of losing more of the few on-Islend businesses in existenco. Physical / o Maintenance of physical infrastructure such as roads and sidewalks shouldx/ be improved. o There is uncertainty about how much new growth the existing utility infrastructure (e.g. electricity, water, sewer, ferry) could absorb before additional capital inveslment would be necessary. o How many vacant lots could be built on? Or further subdivided? o There is some concern about the potential loss of historical structures and sites as new development or redevelopment occurs, o What is ultimate disposition of US Navy pro~. · Could part of site be used for affordable housing?* Environmental o There seems to be an increase in the presence ofinvasive species. o The quality of the natural environment seems to be declining. · For example: The ino'easod amount of land conveated to lawns has raised concerns about the introduction of pesticides and fertil'~rs into the ground and coastal watea~. o Land preservation needs to be continued and encouraged. Governmental o Can Fishers Island manage its future without interference from mainland"? o B~ter coordination and representation is n~xled, e.g. thoro are no Fishers Island representatives on the Zoning Board of Appeals or the Board of Trustees. o The management ofproporty owned by Southold Town soffers from lack of vision and transparency. o Tho Island is not well-pcrccived by outsiders due to recent negative publicity, e.g. sewage dumping from ferry beat. o What is ultimate disposition of US Navy property? Could par~ of site be used for affordable housing?* Fishers lsland Strategie Plan: 2007-2017 Assessment of Island Strengths The Stakeholders engaged in a frank discussion of the strengths and opportunities that currently exist as well as a clear-eyed assessment about the things that need work. The following list contains a synopsis of this assessment of strengths. ~ocial 0 There is a good sense of communlty on Fishers Island that could be strengthened. o The senso ofphysical safety should not be jenpardized. o There are significant human resources (talent, expertise, passion) that could be tapped. · Economic o The Island has not been "ruined" by tourism. · Physical o The Island poss~ses public buildings, structures ~nd land worth nmintaining and rehabilitating. · Environmental o The Island's cnviwnment is still in good simpo and the problems that have surfaced can be ~Mressed. o The potential for ecologically-sensitive use of public property has not been explored. · Governmen~ o Thc Island's zoning Ires prevented the influx of hotels and other resort or tourist designations. o The Mstoric structuras associated with Fort Wright are worth protecting. Assessment of Potenti~ Solutions and Strategies As part of this assessment, the Stakeholders also identified the types of potential solutions and strategies that it wanted to explore without committing itself to any specific solution, technique or strategy. Thes~ included the following:. · Changes in existing (or new) policy and legislation · Planning and design · Capital investment and budgeting · Other ideas that might come out of this planning exercise Information Needs The discussion of issues and potential solutions quickly led to an assessment of information needs. Chapter 5 Inventory, of this ~ort was designed to provide the information identified as neeessery for developing an effective strategy. In some eases, the aetoal reports were included by refevmce. Taken together, this information will provide a factual framework for informed decision-making, even if that decision is to conduct further research. Chapter 2: Methodology, Issues and Analysis 4 Fishers lsland Strategic Plan: 2007-2017 Gathering data for the Inventory proved to be a difficult, time-consuming and, ironically, enlightening process for the consultant. A considerable amount of information relevant to Fishers Island was available, but it was not organized in one central location, either on the island or in Town Hall. Additionally, several organizations on the island had amassed considerable amounts of institutional and other data, but with the exception of the recent Fishers Island Community Board's Annual Reports, the extent of this information dids not appear to be immediately evident (or accessible) to the community at-largo in a regular, consistent, organized manner. As part of this planning effort, thc Stakeholders invited representatives of FIDCO, the School District, the Utility Company, the Ferry District and the Walsh Park Benevolent Corporation to meet and sham information. A list of questions was sent in advenco in order to facilitate constructive conversation. The list of questions is included in Chapter 7,4ppendix as are the written responses that were received. A brief synopsis of this information was incorporated into Chapter 5 Inventory. In the future, additional research into legal, environmental and economic development matters will be necessary in order for the Islanders to d~tenulne which path to take to achieve their goals. Some of these needs ate identified in Chapter 4 and explored further in Chapter 5. The document focuses on and consolidates information about Fishers Island and the Town of Southold, but does not ignore the fact that there are resourees within the State of Connecticut. The format of this document is designed to allow the insertion of updated and new information so as to facilitate the ongoing implementation of the community's Vision for the Island's future. Indeoendent Observations & Analysis The Stakeholder meetings revealed that Island residents have made a concerted effort over the last five years to identify and address many of their issues of concern. This effort led to a significant and major revamping of the informal, on-island, self-governing mechanism whereby community issues had been addressed in the past. The creation of the Fishers Island Community Board, (FICB), took plac~ during 2005-6 under the auspices of two Island Fellows, who were funded and provided by the Island Institute of Rockland, Maine. The composition of the Stakeholder Committee mirrored that of the FICB; and the discussions that took place during the fall of 2006 reflected the renewed sense of direction the FICB had generated over the course of the previous year. The effort to create the Building 98 Community Center (and its extended campus plan) was perceived by the Stakeholders themselves as a direct result of the momentum generated by the FICB. Similarly, the decision to prepare a long-term strategy for the management of the Fishers Island School District demonstrated another collective decision that seemed to flow from the 2002-3 Island Institute experience, described in more detail in Chapter $ Inventory, Planning Framework Chapter 2: Methodology, Issues and Analysis 5 FisherslslandStrateglcPlan: 2007-2017 Having just achieved a new forum for addressing island needs through the creation of the FICB, the community, through its Stakeholders, seemed to be searching for a cohesive gnveming strategy which would articulate community goals, determinc specific priorities and deadlines, delegate responsibilities and marshal limited resources (c.g. manpower and finances) towards attaining those goals. The expectations and concerns expressed at the initial Stakeholder meedng revealed ganeral consensus about certain aspects of Island life in need of improvement, but far less clarity about exactly what changes to make and how to pursue them. Additionally, the Stakeholder meetings and interviews (in July and August of 2006) revealed the degree to which several different Island organizations, whether governmental, quasi-public or private, pursued their objectives in isolation from one another and the extent to which this habitual way of interaction was hampering those same organizations' desire to improve Island life cooperatively. The fact that the information held and generated by the various Island organizations was not centrally located or easily accessible made it difficult for any Stakeholder (or organization) to access the relevant data, use it to understand the issues of concern and develop an integrated strategy to solve them, much less coordinate inter-agency actions. The Stakeholders recognized that access to good information was essential to sound decision- making as well as to forestall endless debates fueled by emotion and subjective opinion. In addition to the need for centralized and accessible information, there was recognition that a greater degree of definition, detail and priovitization would help the Stakeholders (and the community-at-large) create a more sharply-defined Vision about the future of the Island. As noted earlier, the general consensus {articulated in previous plans) about keeping Fishers Island's character lacked sufficient detail or clarity about what constituted that character, much less suggestions how best to protect and enhance it. As a result, while considerable sums of energy and money were being expended in pursuit of good projects, there was no detailed, written statement of the overall Vision, Goals and Objectives of the Fishers Island community. Nor was there a coordinated statement of priorities, of how each project would further the whole; of how limited resources would be leveraged. By the third Stakeholder meeting, a pattern became evident. Attempts to encourage creative thinking woe met with a paradoxical mix of enthusiasm and ~-sistance. The resistance seemed to cut across all socio-economic strata and to arise out of two separate things: deep-seated fears and a long history of benign neglect by Town government. The fears wore of change, such as: triggering too much population growth, of opening the door to greater influence by Town government (and reducing Island control of its own affairs), of antagonizing specific groups of people on the Island, and of voicing alternative opinions: all of them normal to the human condition. As for the years of benign neglect by Town government, this has resulted in some deeply ingrained perceptions about the way the Town and other levels of government operate; one of which is that no one is listening or cares about Fishers Island. It is a measure of the exasperation felt by many Islanders that there is such antipathy to Town governmenL Chapter 2: Methodology, Issues and Analysis Fishers Island Strategic Plan: 2007-2017 So, for instance, amidst complaints about not getting a fair return on taxes, there wes resistance to taking advantage of services financed by those tax revenues, or even esking for Island-pertinent modifications of those services. The reluctance to tap into public resourees goes beyond a strong fear of "strings' that might bc atlached to any use of government programs. This stance is due, in part, to the Island's extensive tradition of self-reliance; and self-governance. Islanders, in general, seem to adhere to a bone-deep conservative belief in less government. In keeping with this conservatism, Fishers Island has a long tradition of protesting the Town's mx rate, particularly the loss of revenue off the Island into the Town's coffers without an equal return in services. This dispute extends to the deposit and use of transfer tax monies (pursuant to the Community Preservation Project Plan) geaerated on the Island. Efforts to reduce thc flow of tax and other money off the Island have not been sucCeSSful. Yet. Reducing the outflow of tax revenues may have to take the form of ensuring the return of a greater share of it in the form of public services relevant to the Island's needs. Achieving this goal will require an ongoing commitment of time as well es a carefully thought-out strategy. The Island community is in the midst of social and institutional change. Already it has taken strong steps to improve its own chances of effectuating change, not only on the Island, but off-island, in Town Hall. The next challenge will bo to harness its own engines of self-governance, however informal, to find constructive and effective ways to engage and leverage existing public resources available through Town, County and State agencies in order to obtain the desired results. It is hoped that this strategic planning document will ease the lransition to a more pro-active, integrated Island community;, confident of its ability to shape its future and willing to tap into tho larger pool of public resources without fear of losing its integrity and uniqueness. That said, there is no "right" answer for Fishers Island. The Island's geographic situation and history are so unique there are few, if any, comparable situations to draw from. The wide-ranging nature of the issues of concern, noted earlier in this chapter, and the inter- locking nature of many of those issues, means that the vc:y act of deciding on a strategy will mean balancing trade-offs and setting priorities for the use of limited resources. Conscqmmtly, community consensns on the issues, the goals, the priorities and the implcmcatation strateg~, will be needed because a high degree of pioneering experimentation may be necessary in order to achieve "success", however that term is defined by the Islanders. In reviewing the concerns, the issues and the data relevant to Fishers Island, the most understudied espect of Island life seemed to be the local economy. Previous planning studies gave the topic short shrift. And, yet, the local economy hes undergone major changes throughout the Island's history, and this history is worth reviewing here, In an excerpt from a brief recounting of Fishers Island's history, written by Pierce Raffetty, Curator, Hem-y R. Ferguson Museum. Chapter 2: Methodology, Issues and ,~nalysis 7 Fishers Island Strategic Plan: 2007-2017 Fishers Island was first settled in the 1640s by John Winthrop, Jr., the son of the founder of the Massachusetts Bay Colony. The younger Winthrop saw the Island's promise as an offshore livestock plantation. For six more generatious the lad was passed down within the V~nthrop family and utillzed primarily for raising cattle and sheep. In 1863 the last of the Winthrop owners fell on hard times and sold the undivided property to Robert R. Fox, a successful manufacturer of sail cloth based in New York City. His goal was to retire to the island and restore the largely abandoned farms to their former grandeur. After the unexpected death of Mr. Fox in 1871, his widow and the executors of his estate began the process of turning the island into a seaside resort. The first land lots were sold to individuals beginning in 1876. By the early 1880s, a small town center had formed, a fishing community was thriving, and a tourist hotel had been built at the western end of the island. Soon large steamers were brining hundreds of excursionists to Fishers Island for a day filled with clambakes, sports activiO~, dancing and drinking. This brief tourist period came to a halt in 1889 when Edmund and Walton Ferguson, two successful businessmen and bankers, purchased 9/l Oths of Fishers Island from the Fox heirs for the sum of $250,000. They received the entire island in return excepting 101 small lots that had already been sold to individuals. The two brothers bought out and shut down the tourist hotel and proceeded to develop the island as a family-based resort with cottages and hotels that catered to seasonal visitors. The Fergnson brothers financed a navigation company, the water works, an electric plant and built an overall infrastructure worthy of a first class resort. In the mid-1920s, Henry L and Alfred L. Fergnson, the second generation of Ferguson owners, turned their attention to the eastern two-thirds of the island, land that had been utilized almost exclusively for farming purposes before that date. They hired Frederic Law Olmsted, Jr., the son of the legendary designer of Central Parle, to draw up a plan for a private residential development (''the park") covering the eastern-most L800 acres. They also hired golf course architect Seth Raynor to design an 18-hale golf course on the Island's eastern tip. The new Fishers Island Corporation opened its grand clubhouse and its golf course on July 1, 1926. However, the Crash of 1929 slowed down development and today there are only 150 residences within the "park" and 350 residences on the more fully developed western end. Today all the grand hotels are gone and no single family owns the land, but Fishers Island remains a very private resort that seeks no publicity, discourages tourism, and nourishes its relatively quiet pace of life .... It is useful to look at this history with a critical eye. From 1644 through the early 1870s, a period spanning about 230 years, the Island's wilderness landscape was virtually obliterated by European farming practices, including the grazing of cattle and sheep. This agricultural trajectory shifted in the late 1876, with the sale of building lots. Within the span of a decade, as conlrol of the island began to pass from single to multiple ownership, the land use pattern shifted to other commercial enterprises, described as including "a small town cente~, a fishing community and a tourist hotel." Chapter 2: Methodology, Issues and Analysis Fishers Island Strategic Plan: 2007-2017 This trend was reversed fairly dramatically (and relatively quickly) when the Island was acquired in 1889 for the purpose of re-shaping it into a prcruior golf and sporting resort. Yet, within a decade, thc grand plan was greatly affected by thc federal government's purchase (from thc Fergnson brothers under threat of condemnation) of land for a military base on the West End (1898). The development and subsequent expansions of Fort H. G. Wright on the West ~n~ took place more or less alongside the implementation of the Olmsted Plan on the East End during a relatively short fii~-year period during the first half of the 20~ century. It is interesting to note that as thc year.round, military and tourist population surged, so did the economy in response. Since the dosing of Fort Wright in 1949, more than fi~b~ years ago, the Island has ex~_'~enced a slow decline in population and economic diversity. In the first half of the 20 century, Fort Wright was a dominant factor in the local economy. Now, in the first decade of the 21a century, service industries appear to be the dominant factors in the Island's economy. Along the way, the Island lost parts of its traditional local economy including almost all traces of its agricultural history. Today, almost nothing is commercially grown or made on the island: oysters and perhaps nursery stock being the major exceptions. Throughout the United States' history, many communities faced with the loss of a military base reacted by actively end aggressively re-thinking the physical infrastructure and use of that base. On Fishers Island, the dismantling of Fort Wright in 1951 prompted a series of such actions, which were designed to keep ownership of the Fort's land and structures within the control of the Island community. Much of the vacant land around the airfield went to Southold Town. Other properties and buildings were sold to Fisher Island residents or companies formed for the specific purpose of keeping the property within Island control. Subsequently, many structures were put to good use: officers' housing moved into the single and multi-family private home market, some of the military storage and office buildings were converted to business warehousing and offiea space, and one (Building g98) is being convested into a community center. However, sadly, the part of Fort Wright that greets the resident (or visitor) arriving by ferry is a shadow of its former spit and polish. Today the literal and symbolic gateway to Fishers Island is partly defined by unkempt parldng areas, boarded-up buildings, feral cat colonies, and a vino-choked landscape. After the Fort was closed and more than 200 acres of land ceded to the Town, the State of New York authorized legislation allowing the Town to expand the Island-elected fe~y district's management authority over all town.owned land surrounding Elizabeth Airfield. This amendment (in 1951) set the stage for the leasing of public land for private commercial purposes, and is discussed in more detail in Chapter 5 Inventory. The Town adopted zoning in 1957. Yet, to this day, neither the Town Code nor the Zoning Regulations make any reference to the fact that the Zoning Map's designation for Town-owned land (R-120) contradicts the commercial use of that land dating back to Chapter 2: Methodology, Issues and Analysis 9 FisherslslandStrategicPlan: 2007-2017 1951. While the low rants are a boon for the lessees, the downside to this Town policy is that it has undercut the market demand for (and the value of) privately-owned commercially zoned land on the Island. This situation is exacerbated by the scattered location of the rest of the Island's businesses, some on commercial zoned land and some not. It is no wonder the local economy seems fragmanted. A cantral premise of this analysis (and the structure of the suggested Goals and Objectives) is that obtaining and maintaining a sustainable year-rotmd population will require more than creating a large, subsidized affordable housing marhat. It will require a parallel effort to foster and maintain a sustainable year.round economic base. Without a strong local economy and better access to economic oppommities on the Connecticut mainland, year-round residants will be unable to compete financially with off-Islanders in the Island's housing markeL Without greater economic parity on the part of year-round residants, West End housing stock will continue to move into the hands of seasonal owners. But, taking a hard look at the shape and deficielleies of the Island economy will mean taldng a closer look at the interplay between the Town's public land management policy and the type and location of zoning districts on the Island. And this effort will mean assessing how existing practices might be tweaked or abandoned, as circumstances require. The potantial solutions will depend on the Vision the Islanders' choose and the types of solutions they decide to pursue. Daunting as some of these challanges may appear, the Islanders have a lot of social resources to work with. With a litile inganuity, old-fashioned elbow grease, persistence, advocacy and strategic organization, they have a good chance of meeting these challenges effectively, thereby enhancing the quality of life they so treasure on Fishers Island. Chapter 2: Methodology, Issues and Analysis 10 Fishers Island Strategic Plan: 2007-2017 CHAPTER 3 VISION, GOALS AND OBJECTIVES The Role of Vision~ Goals and Objectives in Public Policy Public policies generally are not effective unless they provide decisive guidance to decision-makers at all different levels of gove~mnent. The Vision statement, which the policies pmport to achieve, must identify the end product of the policies in unambiguous langnage. For that reason, the Vision statement also should include a strategic blueprint for implementation actions in the short-mn ns well ns the long. Ultimately, the effectiveness of a public policy program ties in how well it is implemented. Effective implementation requires a set of criteria by which to measure the potential impact of proposed actions, thereby providing some means of judging whether these actions will achieve the desired Goal or not. As will be described in Chapter 5 Inventory, Planning Framework, there are several planning documents which artionlated a Vision for Fishers Island. A few exceptions aside, these Vision statemeats were not accompanied by a precise description of policy goals and objectives, thereby making it difficult to assess which proposed actions might best be pursued, as well ns to determine their effectiveness aider the fact. The following Vision statement incorporates themes; some of which were mentioned in previous documents, and othea's of which were articulated by the Stakeholders. It is followed by Goals and Objectives designed to assist Islanders, and their representatives in Town government, in achieving Fishers Island's Vision for its future. Vision Statement Fishers Island is an island community that desires to maintain its unique lifestyle and character. The community's Vision for its future is an extension of its recent past, but with enhanced opportunities for a well-rounded existenco within a setting of superlative environmental resources and community cohesiveness. The Vision is for Fishers Island to continue to be a unique place where the existing quality of life is enhanced by ample social and educational opportunities, protection of our natural reaources, sufficient economic activity and growth, and quality affordable housing to meet the needs of an expanded, but limited, year-round population. The Island enmm~ln.ity'$ Vision includes a limit to the future expansion of the resort or summer-only population in conjunction with maintaining a moro sustainable, year-round, residential community and lifestyle. The Fishers Island community is keenly aware of the trade-offs they have made in exchange for the unique lifestyle they enjoy. By definition, island life requires not just the virtues of self-relienco, slrong community networks and civic spirit, it also requires a keen understanding of how to live within environmental and other constraints. Chapter 3- Vision, Goals, Objectives Fishers Island Strategic Plan: 2007-2017 Goals and Obi~live~ The Goals and Objectives of this Vision Statement are designed to assist in the implementation process, to provide guidance to decision-makers, whether elected or Develop an effective management and implementation protocol for Island adminls~'atJon by strengthening and supporting the Fishers Island Community Board (FICB) In this rule. Objectives: * To facilitate commun/ty implementation of Island-based iaitiatives. · To improve representation of Island issues and concerns on the Mainland and in Albany and with relevant federal agencies. · To improve Islanders' understanding of Town government (and its jurisdictions) · To improve communications with the community and institutions on the Mainland. * To fadlitate the return of a more equitable proportion of the tax revenues generated on the Island. · To leverage thc cxis~ng strengths of Island organizations to achieve synergistic results. A sustainable year-round population of up to SO0 poople~ with sufficient diversity (In terms of age, sex and ability) to maintain a self-suffident Island community. Obj~.,tive~: · To ensure the range of ages and talmts necessary for the Island community to provide all necessary year-round public service functions, and governance, whether paid or volunteer, such as, but not limited to, utilities, school, fire department, constables, bay constables, and emergency medical services, including on-island medical care. · To promote social, educational, cultural and recreational opportunities on the Island to accommodate the interests of a viable year-round population. · To improve access to off-island services, facilities, and educational, cultural, and recreational opportunities for all year-round residcots. · To ensure the long-te~,u use and viability of the Fishers Island School, which is essential to the preservation of the Island community. It is presently an accredited pre-K through 12 public school. While alternatives should be continually explored, it must be recognized that discontinuing any grades could negatively impact the growth and stability of the island population. Chapter 3- Vision, Goals, Objectives 2 Fishers Island Strategic Plan: 2007-2017 Goal: Good quality housing stook of suflldent quantity and variety to house the sustainable year-round target population. Objeetiv~: * To retain and upgrade existing lower and moderate-priced housing to meet the needs of a larger, more diverse year-round population. · To create new housing of various types and sizes, suitable to meet the varying needs of a diverse year-round population, yet integrated into the existing housing stock. · To encourage the retention of year-round housing stock on he Island. A sustainable local economy geared towards providing satisfying, year-round employment and aecess to off-Island employment, as well as providing ~he types of serviees and goods needed by the lslund population. Objectives: · To strengthen and diversify the economic base of the Island. · To encourage the creation of steady, comp~tiv¢, year-round employment opportunities that would be attra~ve to and suppor~ a larger, more diversified Island community. · To stabilize and expand the economic comme~al base. · To revitalize or adapt existing and/or under-utilized business-zoned properties. · To continue ~vitalization of the "Gateway" area, west and south of the Ferry Dock on Silver Eel Cove. · To work with business owners to develop their properties sustainably. · To encourage the retention of core services such as fuel, food, utiliti~, etc. A sustainable lifestyle through improved energy efficiency and affordability. Ob]~flves: · To reduce energy costs for year-round residents and businesses. · To in~'oduce and encourage use of renewable energy resources in ~idenfial · To promote energy conservation through education. Chapter $- Vision, Goals, Objectives Fishers ldand Strategic Plan: 2007-2017 An integrated transportation network [induding~ but not limited to~ roads, ferFy, water-taxis, bicycle and walkln~ paths, airfield] that supports the Island community's need for reasonable access to services, goods, and eeonomie opportunities. O~]es~ives: · To facilitate nccess to services, goods and economic, educational, social and recreational opportunities which are only available off-island. · To reduce vehicular traffic on the island during the summer months. · To concenlrate high volume economic activity and traffic gener~rs in key To develop commuter-friendly ~ransportation options. Goal: Manage future ineFeases in the seasonal and tourist populations on Fishers Island. Objectives: · To minimize the impacts of the seasonal population on the Island's infrasmwture and environment · To reduce traffic and sccurity concerns. · To continue to discourage tourism. · To continue to minimize the significant expansion of dub fac'dities and/or memberships, which would accolerato the construction of new seasonal homes as opposed to providing additional social activities. Goal: PreseFvaflon of the natural envh'onment, particularly fresh water wetlands, tidal marsh, woodlands, bluffs, dunes, beaches, and warm season grasslands against degtadaflon or destruction. Obiecflves: · To identify and protect environmentally sensitive wetland and coastal resources, including marine habitat and spedes. To encourage water-enhanced and water-dependent economic and rec~ational activities without destroying or degrading the natural coastal environment. To maintain the open, mml feel of the Island through land preservation. · To pAotect the quantity and quality of the limited indigenous water supply. · To maintain recreational facilities, of reasonable size, and in appropria~ locations, to service the Island population in an environmentally-compatible · To ensure that economic activitie~ am environmentally sustninable and compnfible. Chapter 3- Vision, Goals, Objectives 4 Fishers Island Strategic Plan: 2007-2017 · To prevent the further spread ofinvasive species into the remaining natural habitat. · To identify and restore selected natural habitat already allotted by invasive · To preveat and/or mitigate erosion and siltation where possible. · To pre~e~t and/or mitigate water pollution where possible. Goal: Protection and preservation of Fishers Island's unique historic and cultural environmeat; and its strong sense of place. Ob~e,aive~: · To identify and pre.rye the historic, cultural, architectural and a~chaeological To revitalize and strengthen the existing hamlet business centea's on the West End. o Of the four ceaters, lhe following two merit ~.m-~diate at~ntion: · the Genend Business zoned "gateway" area west and sou~h of the Ferry Dock on Silver Eel Cove. · the l-lamle~ Business zoned "triangle" formed by Equestrian, Odenta! and Crescent st~ts. · To support the Ferguson Museum's role in the preaervation of social, archeological, historical and cultural at~ibutes of the Island. Goal: Accommodate new growth and revitnli,e existtnoo infrastructure in keeping with the Vision and Polleles of the Local Waterfront Revltnli,aflonProgram- Policy I Policy 2 Policy 3 Policy 4 Policy Policy Foster a pattern of development that enhances community character, preserves open space, makes efficient use of infrostructure, makes beneficial use of a coastal location, and minimizes adverse effects of development. Preserve historic resources. Enhance visual quality and protect scenic resources. Minimize loss of life, structures, and natural resources from flooding and erosion. Protect and improve water quality and supply. Protect and restore the quality and function of the ecosystem. Chapter 3- Vision, Goals, Objectives 5 Fishers lsland Strategic Plan: 2007-2017 Policy 7 Policy 8 PoRcy 9 PoBcy 10 Policy 11 Policy 12 Polly Protect and improve air quality. Minimize environmental degradation from solid waste and hazardous substances and wastes. Provide for public access to, and recrealional use of, coastal waters, public lands, and public resources. Protect water-dependent uses and promote siting of new water- dependent uses in suitable locations. Promote sustainable use of living marine resources. Protect agricultural lands. Promote appropriate use and development of energy and mineral To use the Local Wat~fxont Revitalization Program (and state grants designed to facilitate implementation of the LWRP) to protect the natural resources of Fishers Island and to assist in financing targeted projects. Chapter 3- Vision, Goals, Objectives Fishers Island Strategic Plan: 2007-2017 CHAFFER 4: IMPLEMENTATION STRATEGIES This section is designed to set forth a series of strategies which the residents of Fishers Island may use to realize their Vision for the community's future. The swategies are listed under the respective Goals and Objectives they are intended to implement. These strategies consist of specific policies, procedures, actions that will enable the Fishers Island community to realize their Vision for the Island's future. The second part of this section contains an Implementation Schedule that identifies the actions that must be taken in order to implement the recommended strategies the Island community has decided to pursue. The Schedule notes the jurisdictions that should assume responsibility for these actions, as well as setting forth a tentative timetable during which these actions are intended to take place. Develop an effective manageme~tt and implementation pFotocol for Island administration by strengthening and suppoFfing the Fishers Island Commnnlgy Board (FICB) in Ihia role. Objectives: · To facilitate community implementation oflsiand-based initiatives. · To improve representation of Island issues and concerns in the Town of Southold, in Albany, and with relevant fed~a'al agencies. · To improve Islanders' understanding of Town government (and its jurisdictions). · To improve communications with tho community and institutions of the Town of Southold. · To fadlitate the return of a more equitable pwpert/on of the tax revenues generated on the Island. · To synergistically leverage the existing strengths of Island organizations. Recommended Implementation Sla'ategies: · Islanders should insist that all Island organizations coordinate, cooperate and communicate on Island-wide issues in a timely fashion through the FICB. · Improve the effectiveness and credibility of the FICB's administrative, organizational and managerial capabilities. · Reinforce the administrative effectiveness of the FICB through regular meeting schedules, posting of meeting agendas and minutes in the Library and the Post Office, and other places of public assembly. · The FICB should cultivate productive working relationships with all Town ~esentatives of Fishers Island. · Tho FICB should establish direct contact with governmental agencies whose actions affect the Island or whose services potentially will be of benefit to the Island. (The following examples are agencies mentioned in the report; but contact should not be limited to these agencies only.) Chapter 4: Implementation Strategies Fishers Island Strategic Plan: 2007-2017 · Town of Southold , Human Resources Depafi~ent . Recwation Department · Youth Bureau · Suffolk County · Department of Health Services · New York State · Depaflment of Environmental Conservation · State University of New York Small Business D~vdopment Center · Department of State, Coastal Resources Division · Local Waterfront Revitalization Program · United States · Department of Defense o Naval Unck-rsea Warfare Center o Army Corps of Engineers · Department of Transpoflation o US Coast Guard · Environmental Proteotion Agency o R~gion I, Boston o Region II, New York City , Department of Commerce o National Oceanographic, Atmospheric Administration o Coastal Zone Management (LWRP) Comell Cooperative Extension University of Connecticut at Avery Point Mainc Island Institute · · ' ' 's (IA) job description. · Re-examine the emstmg Island Administrator a) Consider adding ghint'writing resp°nsibilities t° IA'S resp°nsibilities' b) Empower tho IA to fulfill updated job description. · Insist on Fishers Island representatives to the Zoning Board of Appeals, Planning Board and Trustees Board. an original copy of any public document generated on · Set up a proeeduro whereby tho Island is seat to thc Town of $outhold for archiving into the Laserficbe and GIS databases for future ~rieval. . . . . Set up a procedure whereby coptes of public documents pertmning speafieally ~ (or td~vant to) Fishers Island are sent to and distributed on Fishers are donated · Notify thc Land Preservation Office every time property or easements to the Henry L. Ferguson Museum Land Trust so the Town's GI$ database can be · Establish a higher profile in the Town of Southold. Chapter 4: Implementation Strategies 2 Fishers Island Strategic Plan: 2007-2017 a) initiate quarterly ,,Fishers Island Visitation Days' to S°uth°ld's T°wn Hall wherchy representatives of the FICB af~nd Town Board meetings and visit with officials in order to advocate for Island concerns. b) Sa up opportunities for school cltildren on Island and in the Town of $outhold to atteml ex~ra-curdcula events in both locations, including pending · include news in the Fog Horn about Town Board agendas, legislation and its potential impact on Fishers Island. · Send monthly status reports to thc Town Board on outstanding problems or situations in need of Town action. · ar-round puhtton~°f~:uP to 500 p~. pi.e, ~nd A sustainable ye po ....... , ...... tam a sen-sum¢~em diversity (in terms of age, sex aha anmzy~ m ~ eommunityo Objectives: community to To ensure the range of ages and talents necessary for the Island provide all necessary year-round public service functions, and governance. whether paid or volunteer, such as, but not limited to, utilities, school, fire department, constables, bay constables, and emergency medical services, including on-island medical care. To promote social, educational, cultural and recreational opportunities on the Island to accommodate the imerests ora viable yesr-rouud population. To improve access to off-ialand services, facilities, and educational, cultural, and recrcationai oppo~xmities for all year-round residents. To ensure the long-term use and viability of the Fishers Island School, which is essential to the preservation of the Island community. It is presently an accredited pro-K through 12 public school. While alternatives should be continually explored, it must be recognized that discontinuing any grades could negatively impact the growth and stability of the island population. Recommended Implementation Strategies: Create housing, social, cultural and economic opportunities that would attract and keep this targa population. Implement Island Community Center campus plan. Improve coordination and budgeting among ail Island organizations through the Fishers Island Community Board so as to provide a wider range of educational, recreational and social opportunities. Continue to contact other educational institutions for assistance on expanding educational offerings and youth marine programs. Develop marketing strategies to at~ract new reside~l about the long term use Continue dialogue with the Fishers Island School and viability of the Fishers Island School. Chapter 4: Implementation Strategies Fishers Island Strategic Plan: 2007-2017 Goal: ....... · ~'-, and variety to house the Good quality housing stock oz sumc~enz quan~ sustainable year-round target population. Obleeflves: · To retain and upgrade existing lower and moderate-priced homing to meet the needs of a larger, more dive~se year-round popuiafiot~ . To crea~e new housing of various types and sizes, suitable to meet the varying · needs of a diverse year-round population, yet integrated into the existinghousing · To encourage the reteation of year-round housing stock on the Island. Recommanded Implemeatafion Strategies: · Define thc type and amount of affordable housing needed. · Set short (2 years) and long (10 year) targets for creating affordable (low and moderate) housing units and define priorities by type and location. · Access feasible sites for renovations and new mixed uses: · Renovate existing buildings for affordable housing · Access feasible sites for new affordable housing such as: o PartofU.S. Navy property o Land owned by Fishers Bland School District o R_120 proparty at Fort Wright o Land owned by the Fishers Island Utility Company Identify which e.xisting re~dential renm housing · improved in terms of function, appeanm~ and value. · Identify which single family homes might be cunvert~l into two-family homes. · Publicize existing accessory apmment law. · Facilitate consmsction of ao:essory aparlmmts where realiffi¢ (and feasible) through l~mit ~xpediting and financial incentives or tax breaks. · Scout-out feasa'ole locations for employer-owned housing for employees though the creative r~use of existing structures, e.g. a building set up as a writers and artists colony during off-season, could be used, in psrt, as a dormitory during the peak (luly & ^ugust) s~ason. Solicit funds, donations m,g creative partnerships to enable the Walsh park B~nevolent Corporation to conslm~ more housing. · ~e incentivas for new affordable housing to be built by the private market. · Solicit Suffolk County assistance to acqmre and/or rchabdstete housing through a public-private partnership. . . · o The use of County funds would not preclude gtwng yenr-mund residents first priority. It would only require allowing access to off-ialanders (flora the Town of $outhold, then Suffolk County) if there weren't sufficient residents on the Chapter 4: Implementation Strategies Fishers Island Strategic Plan: 2007-2017 Set-up a housing education center with materials about housing subsidy programs, accessory apartment law, tenants' fights material, application forms for Section 8 and other programs. Update and maintain inventory of bland housing stock. Goal: A smtainable economy geared towards providing satisfying, year-round local employment as well as providing the types of services and goods needed by a year- round pop~laiion. · To strengthen and diversify the economic base of thc Island. · To encourage the creation of steady, competitive, year-round employment opportunities that would be attractive to and support a larger, moro diversified Island community. · To stabilize and expand the economic commercial base. · To revitalize or ~apt existing and/or under-utilized business-zoned p~perties. · To continue rovitalizatlon of the "Gateway" area west and south of the Feny Dock on Silver Eel Cove. · To work with business owners to develop their properties sustainably. · To encourage the retention of core servicea such as fuel, food, utilities, etc. Recommended Implementation Strategies: · Revitalize and strengthen the existing hamlet business ceaters on the West End. o The following two merit imm~ attention: · the General Business zoned "gateway" area west and south of the Ferry Dock on Silver Ecl Cove. · thc Hamlet Business zoned "triangle" formed by Eques~ian, Oriental and Crescent s~reets, also known as the ViHa$c Green. · Draw up a blueprint for revitaliz~ion of public and private properties west of Silver Eel Cove and use it to develop pub]lc-private pm~nerships to suck funds from New York State through the LWR.P grants program. · An'angc for thc State Univc~*sity of New York's Small Business Development Center to come to Fishers Island at scheduled times to provide assistsncc to small businesses. · Publicize thc University of Connecticut's business services programs. · Set up an island-based "small business dcvc]op~ent rosouroe center and clcaringhousu" whcroby potential and existing en~roproneurs could obtain infomu~tion and where they could be matched with potential on-island investors. · Use this center to ~cck enl~proneurial grants for areal1 sta~-up companies. · Work with the Fishers Island Fe~y Dis~ict to develop alternative managemcm strategies for Town-owned land currently under Ferry Distric~ jurisdiction. · Review, enforce and change (if necessary) zoning codes and other rogul~ons in order to encourage new economic growth, For example: · Define aquaculture and permit it in certain zones Chapter 4: Implementatt'on Strategies 5 Fishers Island Strategic Plan: 2007-2017 Goal: An integrated transportation network [ineludln~ but not limited tO, roads, ferry, water-taxi, bieyele and walking paths, and the airfield] that supports the year- round community's need for reasonable access to services, goods, and economic opportunities. Oble~h~e~: · To facilitate access to s~rvicos, goods and economic, education~, social and recreational opportunities which are only available off-island. · To reduco vchicolar traffic on the island during the summc~ months. · To conc~n~'ate high volume economic activity and traffic generators in key sectors. · To develop conunutcr-fricodly transportation options. · To continue to plan for, str~ngthan and improve the evacuation plan for both natural and man-made disasters. Recommended Implementation Strategies: * Set up a worldng committee through the FICB to explore details associated with thc concept oflmving an island-based boat at night. · ~p~o¢c padcing, walking and biking ar~as. · Continue to support Island ~orts to provide access to off-Island opportunities and activities. · Evaluate and In, sent the evacuation plan on a yearlybasis. A cap oB futllre increases in the resort, summer or tourist population on Fishers Island. Objectives: · To continue to minimize the impacts of the seasonal population on the Island's · To continue to reduce traffic and security concerns. · To continue to discourage tourism. · To continue to minimize the significant expansion of club facilities and/or mernbezships that would accelerate the construction of new seasonal homos as opposed to providing additional ~mial activities. Reeommended Implementation Strategies: · Explore creative funding opportunities to preserve land; e.g. use of Community Preservation Project Plan funds. · Continue to highlight the work of the Ferguson Museum Land Trust. · Inventory and evaluate the use of public access points (to Fishers Island). Chapter 4: Implementation Strategies 7 Fishers Island Strategic Plan: 2007-2017 Goal: Preservation of the natural environment, particularly fresh water wetlands, tidal marshes, woodlands, bluffs, dunes, beaehes and warm season grasslands, against degradation or des~xnaction. Ob]eeflves: · To identify end protect environmentally semitive wetland and coastal r~ources, including marine habitat and species. * To encourage water-enhenced and water-dependent economic and recrcational activities without destroying or degrading the natural coastal eavironmenL · To maintain the open, rural feel of thc Ishnd th'ough land preservation. · To protect thc quantity and quality of the limited indigenous water supply. · To maintain rec~ational facilities, of reasonable size, and in appml~ate locations, to service the Island population in an environmentally-compatible manner. * To ensure that economic activities are environmentally sustainable and compatible. · To prevent the further spread ofinvasive species into the ~=maining natural habitat. * To identify and restore selected natural habitat already affected by invasive species. · To tn'event end/or mitigate erosion and siltation where possible. · To prevent end/or mitigate water pollution where possible. Recommended Implementation Strategies: * Seek funding to develop a "ground-trothed" w~lends map for the West End. · Develop a littor and garbage management plan. · Amend the Harbor Management Plen to afford better protection ofmarine water quality end give lhe Fishers Islend Harbor Committee tools to implement · Work with the Henry L. Ferguson Museum, the Fishers Islend Conservancy end other island organizafious in their efforts to develop public education exhibits on how sensitive coastal features of Fishers Islend can be damaged through ovause or · Tap into the resources and public education capabilities ofoff-lslend organizations such as Comell University's Cooperative Extens/on, the Maine Island Institute, thc University of Connecticut at Avery Point, Mystic Seaport, the New York D~x~ment of Environmental Conservation, and the New York Dep~h~ent of State's Coastal Resources Div/sion~ · ldenfifypoint sources of direct stormwater discharges to tidal waters and wetlands. o Develop a capital improvement plan (including public fimtlln~ sources) to remedinte those souw~ in a more environmentally oompatible mnnner. · Encourage use of the Harbor Honey through public education. · Work with the Town to develop alternative management sWategies/'or Town- owned land. · Enforce accepted Best Management Practices for erosion con~rol during construction. Chapter 4: Implementation Strategies Fishers Island Strategic Plan: 2007-2017 Goal: Protect Fishers Island's historic and unique cultural enviFonment and its strong sense of place. Objectives: · To identify and preserve the h/stod¢, cultural, architectural and archaeological · To revitalize and smmgthen the existing hamlet business center/village green · To support the role of the Henry L. Ferguson Museum and the Museum's Land Trust in the preservation of social, archeological, historical and cultural attributes of the Island. · To celebrate the Island's natural environment and unique character and lifestyle. Recommended Implementation Strategies: · Develop a Parade Ground Presarvation Han. · SCck funds to do an updated version of thc Society for the Preservation of Long Island Antiquities' (SPLIA) survey of historic structures. · Recommend properties for local, state and national landmark status. · Recomm~d lishthouscs for State landmmk status. · Continue to broadea thc Fishers Island School's offerings by building bridges with Comell University's Cooperative Extcasinn, the University of Connecticut at Avcot Point and other relevant off-Island institutions. Accommodate new growth and revitalize existing infrastructure in keeping with the Vision and Policies of the Local Waterfront Revitalization Program. Objectives: To use the Local Waterfront Revitalization Program (and state grants designed to facilitate implementation of thc LWRP) to protect the natural resources of Fishers Island and to assist in financing targeted projc*cts. Recommended Implementation Strategies: Broaden public awareness of the power of LWRP to implement Fishers Island's Vision by distributing educational material and giving lectures. Seek LWRP-rclated funding to accomplish projects listed in the Fishers Island section of the LWRP, particularly the revitalization of the Silver Eel Cove area and protecting the fisheries resources. Chapter 4: Implementation Strategies 9 Fishers Island Strategic Plan: 2007-2017 CHAPTER 5 INVENTORY .Introduction The purpose of this Section is to update existing inventories of certain attributes of Fishers Island which were identified as particularly relevant to the 2007 Strategic Plan. The Inventory starts with a synopsis of plannlng documents and policies, then moves on to more specific topics. Throughout this section, the reader is referred to existing documents, which if not included in the Appendix or thc Resource Binder of this report, may be accessed through the Town of Southold's Laserfiche archive. The documents in the Lozerfiche archive have also boen copied onto CD-ROMs, which have been placed on Fishers Island; one copy in the offices of the Fishers Island CommklRity Boald and the other in the Fishers Island L~rary. /qnnning Framework This report used several planning documents by way of reference, information, guidance and historical context. These studies and reports am incorporated by reference because they are foundational policy documents. Thdr salient points are highlighted here. A fairly recent synopsis of many of these plans also can be found in The Town of SouthoM's Local Waterfront Revitalization Program, November 2004, specifically within Section II, Inventory & Analysis, Section J. Reach 10: Fish,rs Island, pages 1-48. A copy of this portion of the LWRP is located in the Reference Binder. The entire three volume set of the Local Waterfront Revitalization Program document (in print and electronic formats) is available in the office of the Fishers Island Community Board as well as the Fishers Island Library. 1. The Fishers Ishmd Growth Plan: 1988, 1994 The 1988 and 1994 v~sions of the Fishers Island Growth Plan (FIGP) were based on an earlier body of work consisting of natural resource inventories, maps and a report, all of which had been prep~ in 1984 (and subsequently updated in 1987) by the Trust for Public Land. Thc Trust reports ~amined thc current state of development on Fishers Island and the Island's capacity to accommodate future growth without impacting the Thc 1988 FLOP, as sueunarized in the 5outhold Town Local Wateoeront Revitalization Program (LWRP) (Section II, J. Roach 10, p2), "...included a series of assumptions aimed at protecting the unique environment and community character of Fishers Island. The Plan Assumptions were: Fishers Island must have a healthy year-round population. It mu~t be self- sufficient in providing all necessary year-round service functions, e.g., school, fire department, groceries, EMS, medical, etc., and also be able to expand these services to meet the need~ of the summer population. To meet these requirements, Chapter 5: Inventory I Fishers Island Strategic Plan: 2007-2017 Fishers Island neede more people than currently live on the Island year-round. It is desirable that the year-round community includes a diverse composite of age, sex and ability levels. 2. Efforts must be made to slow the growth of the summer populatior~ Ail citizens and organizations should bear this goal in mind when making decisions, which could influence growth. The Island shouM remain a residential community and tourism is to be discouraged. (Commercial activities on Fishers Island shouM continue to focus their operations exclusively on serving the resident population). The natural environment must be unequivocally protected. The uniqueness and fragility of our ocean, barbers, wetlands and water supply must be respected. To that end, Fishers Islanders, both year-round and pan-time, must be made aware of the need for environrnental protectiot~ The Fishers Island school is a major asset and shouM be strengthened through enhanced programs and a larger student body. The character of the Island's society would be changed to everyone's detriment without the school. 6. For the foreseeable future, our Island's official governance will remain the same, i.e., we will continue to be a harnlet withtn the Town of Southold. This means we will need to work closely with the Town Board to obtain special legiMation when necessary and to see that the Board understande that Fishers Island's priorities are frequently different from those of the rest of Southold. It is the responsibility of the Fishers Island representative on the Town Board to ensure that Fishers Island's uniqueness and best interest is clearly communicated to the other Board members, lYe should seek representation on any other Town boards or committees that are important to the welfare of the Island. In addition, we should explore special vehicles which might enhance local control. To protect and strengthen Fishers Island, all people and organizations must be made aware of their interdependency, so that they will be encouraged to work for the common good even when some individual sacriJice might be necessary. All Fishers Island residents should generously support the programs of the Island Museum and similar organizations which use private in--yes and land protection strategies to preserve the remaining open space on Fishers Island. (Fishers Island Growth Plan Committee, 1988, p2.) (as quoted in Town of Southold LWRP, Section II, J. Reach 10, pp2--3.) In 1994, this plan was updated. The concerns and assumptions expressed in the 1988 plan were rea~rmed. The following points were stressed: Fishers Island must have a viable year-round population Efforts must be made to slow the growth of seasonal population The Island should remain a residential community For the foreseeable future, our Island's o.~cial governance will remain the same; we will continue to be a hamlet within the Town of Southold and Chapter 5: Inventory 2 Fishers Island Strategic Plan: 2007-2017 The natural environment must be unequivocally protected (Fishers Island Growth Plan Committee, 1994, pl.) (As quoted in Town of Southold LWRP, Section II, J. Reach 10, pp3-4.) 2. Town of Southold Master Plan Update - Background Studies: 1984 In 1984, the Town retained a consulting firm to create a series of background repo~s and maps that examined existing conditions within the Town. The information was used by the Southold Planning Board to formulate a Master Plan Update in 1985 (Master Plan Update: Background Studies, Raymond, Parish, Pine and Weiner, Inc. 1984). This update set forth goals for the entire town. In this report, Fishers Island was categorized as a "hamlet". The Master Plan Update proposed that nthe goals of the Town of Southold reflect the Town's interest in preserving and enhancing the natural and built environment and providing opportunities for a level of growth and expansion of the economic base that is compatible with the ex, ting scale of development, availability of water, existing sensitive environment of the Town and its historic heritage" ~Fown of Southold Plaaning Board, 1985, p3). The following detailed goals were proposed: Overall plannIng · Provide a community of residential hamlets that are comprised of a variety of housing opportunities, commerdal, service, and cultural activities, set in an open or rural atmosphere and supported by a diversified economic base (including agriculture, marine comma, c/al and seasonal recreation activities). · Maximize the Town's natural assets, including its coastal location and agricultural base and achieve cumpat~'oility between the natural environment and development. · Achieve a land use pattern that is sensitive to the limited indigenous water supply and will not degrade the subsurface water quality. Housing/residential development · Preserve the existing housing stock and provide the opportunity for the development of a variety of housing typez to meet the needs of people at various stages of the life cycle, various income and age levels and household compositions. Economic development · Strengthen end diversify the Town's economic base as a means of stabilizing and expanding the tax base and year-round and sessunal employment opportunities. Waterfront · Protect environmentally sensitive coastal areas, maximize publ/c access to the waterfront and achieve economic benefits from water-enhanced and water-dependent activities, particularly well planned seasonal and commercial activities in appropriate locations. Chapter 5: Inventory 3 Fishers Island Strategic Plan: 2007-2017 Agricultural preservation · Preserve Southold's prime farmland and encourage the continuation and diversification 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. · Maintain and protect Southold's agdculturai heritage and pastoral and open qualifies 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, high water table, high erosion hazard, flood hazard, sensitive coastal features, great scenic quality end woodlands. · Maintain and improve surface water quality · Maintain and proteet fin fishing and shell fishing habitats. Cultural environment · Preserve the historic, cultural, architectural and archaeological resources of the Town. · Preserve and strengthen the hamlets as cultural, residential and comme~ial centers of activity in the Town; as a means of contributing to the preservation of historic buildings and areas and conh'ibuting a "sense of place". Community facilities/utilities · Ensure the prov/sion of an adequate range of community facilities and services to accommodate existing and future Town needs in a convenient and cost effective · Maintain and improve existing utility systems and detamine 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 r~creation system adequate in size and location to accommodate a range of facilities to serve the total (seasonal and year-round) population. Transportation · insure effident movement ofl~ople and goods within Southold, as well as into and out of Town, in a manner that maximizes safety and maintalna the scale and integrity of resident/al and agricultural areas. {Update 1985: Town of Southold Plannin$ Board, 1985, p3-5) Chapter 5: Inventory 4 Fishers Island Strategic Plan: 2007-2017 The future pattern of land use proposed in the Master Plan Update encouraged residential development to locate in and around existing hamlets "in order to preserve and enhance the historic and cultural centers of the community, to support existing commercial centers, to provide locations for moderately priced housing and to encourage e.~eient and effective provision of communiO, faeilities and services" Crown of Southold Planning Board, 1985, p6) and for commercial development to bcate in hamlet centers. The Plan identified Mattituck, Cutchogue, Southold and Orient as major hamlet centers which should "corn/hue to be the residential-business-service centers of the Teavn" (Town of Southold Planning Board, 1985, pS). New Suffolk, Laurel, Peconic, East Marion and Fishers Island were also considered hamlet centers. (As quoted in Town of Southold LWRP, Section II, B. pla 2 - 4.) It is worth noting here that the Master Plan Update contains only three goals that either are not addressed or are incompatible with those set forth in the Fishers Island C, row~ plans. These are noted below: 1985 Master Phm Update Goals Fishers Island Growth Plan Goals Waterfi~mt Waterfront ...rnaximi~ public access to the waterfront Growth p!an* are silent on the issue of alld a~hJeve econollai¢ b~efit~ ~ ala.~imizing public access and on water- water-¢nhn~d and wa~er-dependent ' enha,¢ed or water-dependent activities. ~ctivitiez. p~iculady well planned seasonal Growth plato ~l~cifically not in favor of and commercial activities in ~,-opriate toori~t-b~ed economic activity such as Agricultural pre~ierv~ion Agricultural pre. traCon Preserve Somhokl~ Inime farmland and Growth plato are silent on the ~ of ~moora~ th~ ~ontinuntion and ag~lm ~ ftwnl~r~d ration. diversification of agriculture a~ an mt element in ~he life and economy of the TOWIL Environment Environment Maintain and protec~ Soothold's Growflt plato are silent on protecting agricultural heritage, agricultural herital~e, 3. Zoning Code and Zoning Map: 1989 Historically, development on the Mainland has reflected the changing nature of land use and the economy within the greater New York me~opolitan area, including western Long Island. The massive and rapid wansformation of farmland on western Long Island into housing developments after the Second World War may have been among the reasons $outhold Town adopted land use planning legislation in 1957. The first Master Plan was adopted in 1967 and am,reded in 1978. Chapter 5: Inventory Fishers Island Strategic Plan: 2007-2017 The 1985 Master Plan Update reflected the Town's ongoing concerns about new growth and the sufficiency of the 1978 plan to address it. Although the 1985 Update was never formally adopted by the Town Board, it was used as a guide in the preparation of a revised Zoning Code and Zoning Map, both of which were adopted in 1989. This Code and Map constituted a major overhaul of the extent legislation, with significant ramifications for Fishers Island. The 1989 changes prevented the re-introduction of hotels to Fishers Island. It also created a three-acre residential zoning district (R-120) coincidental with the boundaries of the Olmsted Plan on the eastern two thirds of the Island, At the same time, the pre-ex/sting lots within the Olmsted Plan were grandfathered in and recognized as legal. The lands comprising the Hay Harbor Club woe up-zoned to R-120 as well. The Navy property was up-zoned even more restrict/vely, to R-400 or ten acre zoning. Most of the boundaries of the business and industrial zoning districts shown on the 1970 Zoning Map were kept, but they were re-designated. Most General Business districts woe changed to Limited Business districts with the major exception of the land that comprised the former Army base of Fort Wright. The land south and west of Whistler Avenue, of which about 178.5 acres is owned by the Town, was rezoned R-400. Two parcels west of Fox Lane and consisting of about 10 acres are zoned R- 120. Only the main fort complex, consisting of military warehouses, offices and other operating structures, to the west of Silver Eel Cove was lei~ in Business zoning. Most of the smaller structures that had been used as officer's quarters woe given a residential zoning designation of either R-40 or Namlet Density. All the Industrial districts were changed to either Business or Marine districts, depending on the existing use. The net effect of the 1989 Zoning Map was to reduce the amount of land zoned for business purposes. Map 2-1 shows the pre-1989 zoning map. Map 2-2 shows the 1989 zoning map. The current map (2-3) is discussed later in this chapter in the subsection on Zoning. 4. Fishers Island Water Supply / Watershed Study: 1994 This study was commissioned as a result of water quality testing during the years 1988- 89. There woe concerns about the ongoing safety and capacity of the water supply system, which was built around 1926 and expanded at various times thereaRer. The study was jointly funded by a partnership of the Fishers Island Conservancy, the Suffolk County Health Deparlment and the Suffolk County Planning Deparanent. The study was designed to provide "technical information and recommendations for development of rules, regnlafious and policies for the future preservation of water quality in the three surface water reservoirs and the groundwater aquifers of the Fishers Island public water supply" (Fishers Island Water Supply / Watershed Study, A. R. Lombardi Assocs., Inc., 1994, pl-l.) The Water Supply/Watershed Study (FIWS/WS) recommended the adoption of "a comprehensive and vigorous watershed and aquifer monitoring protection sad spill prevention plan" (FIWS/W8. A.R. Lombardi, pl-3.) Most of its recommendations were Chapter 5: Inventory 6 Fishers Island Strategic Plan: 2007-2017 carried out, after the Fishers Island Watershed Protection Plan was adopted by the Town in 1997. (Town of Sou&old LWRP, Section II, J. Reach 10- p35.) However, one recommendation, to remove all underground foel storage tanks by 2007, was not specifically implemented, and it is unclear if this objective has been achieved. 5. Local Waterfront Revitalization Program: 2004 The Town of Sou&old Local Waterfront Revitalization Program (LWRP) was grounded on several planning studies, soroe of which had been funded and undertaken as part of the process of developing the program. The LWRP was designed to function as a enmprehensive planning document even though its primary focus was the preservation, rehabilitation, and enhanceroent of the natural resources on which the Town's economy and quality of life rested. Policies The LWRP promotes the following public policies within Sou&old Town: Policy 1 Foster a pattern of developrnent in the Town of Southold that enhanaes communiO, character, preserves open space, makes e~cient use of infrastructure, makes beneficial use of a coastal location, and minimizes adverse effects of development. Policy 2 Preserve historic resources of the Town of Southold. Policy 3 Enhance visual quality and pretect scenic resource~ throughout the Town of Southold. Policy 4 Minimize loss of life, structures, and natural resources from flooding and erosion. Policy 5 Protect and improve water quality and supply in the Town of Southol~L Protect and restore the quality and function of the Town of Southold's ecosystem. Policy 7 Protect and improve air quality in the Town of $outhold. Policy 8 Minimize environmental degradation in the Town of SouthoM from solid waste and hazardous substances and wastes. Policy 9 Provide for public access to, and recreational use of, coastal waters, public lands, and public resources of the Town of Southold. Policy 10 Protect the Town of ~outhold's water-dependent uses and promote siting of new water-dependent uses in suitable locations. Policy I I Promote sustainable use of living marine resources in the Town of Southold. ChapterS:Inventory Fishers Island Strategic Plan: 2007-2017 Policy 12 Protect agricultural lands in the Town of Southold. Policy 13 Promote appropriate use and development of energy and mineral resources. (LWRP, Section V - Implementation-p52) Underutilized Areas The LWRP contains a detailed description and inventory of Fishers Island's resources as was known or published at that time. Among the key findings of the LWRP were two underutilized waterfront sites: two properties on West Harbor by Dock Beach and remnants of Fort Wright near Silver Eel Cove. Since the publication of the LWRP in 2004, the two properties on West Harbor by Dock Beach have been turned into a pubhc beach and park that includes gravel parking area, picnic tables, a sc~mic overlook, low maintanance plantings and some interp~ive material. The upland lot remains in its current vegetated state. The existing dock on the shorefront parcel is currently set aside for dockage by Southold Town residants for a period not to exceed 2 hours. (LWRP, Section II.J.Reach-10-p38). With the exception of the renovation of Building ~98 into a Community Center, no equivalant revitalization of the Fort Wright property has been started. Areas of Special Concern The LWRP also identified six areas of special concern on Fishers Island. These areas, as identified in the LWRP, are described below and shown on Map ILl. 10, a copy of which is included as Map 2-4. West Harbor "West Harbor is the main maritime center on Fishers Island and is the focus of water- dependent use and recreational boating activity. It contains the three marinas located on Fishers Island and the largest single concentration of moorings in the Town of soutbold. Fishers Island Oyster Farm, a commercial aquaculture company, and several commercial lobster fishermen are based in IFest Harbor. The most significant harbor management issues on Fishers Island occur in YYest Harbor, as the sometimes divergent interests of recreational boaters, marinas and shellfish producers all converge within a harbor that is becoming increasingly congested with boat traffic." (LWRP, Section II, J. Reach 10-p38). · Fort Wright and Silver Eel Pond "The Town of southold has identified the former Fort ~Yright area and Silver Eel Pond as an underutilized area. This area includes a significant collection of abandoned military buildings that could be redeveloped to provide year-round jobs and/or affordable housing. "(LWRP, Section II, J. Reach 10-p38). · Fishers Island Beaches "The Fishers Island Beaches $CFWH consists of three areas on Fishers Island: the Mud Pond Beach area on Fishers Island Sound at the far eastern end of the island, the Middle Farms Beach area on Block Island Sound on the south central shoreline, and the Stony Beach area on the far western end of the island between Hay Harbor and Fishers Island Chapter 5: Inventory Fishers Island Strategic Plan: 2007-2017 Sound. They are important as a network of bird nesting sites. Nesting shorebird species inhabiting the Fishers Island Beaches are highly vulnerable to disturbance by humans from mid-/lpril through July. "(LWRP, Section II, J. Reach 10-p39). · Fishers Island Pine Islands (formerly Hungry Point Islands) "Fishers Island Pine Islands $CFYYH is located along the north share of Fishers Island, approximately one and one-half miles from the eastern end of the island. The Islands comprise a relatively smal~ but valuable, coastal habitat type that provides suitable conditions for several unusual species of wlMlife. Isolation from predators and human disturbance may he the most important component of the islands habita~ distinguishing this area from many other rock and marsh islands in Suffolk County." (LWRP, Section H, J. Reach 10-p39). The Race and the Conservation Zone "The Race is an area of open water located between Race Point, at the western end of Fishers Island, and Valiant Rock, located approximately one and one-half miles southwest of Fishers Island. The fish and wildlife habitat is a very deep channel (over 150 feet in depth), approximately one mile wide, and bordered by steep underwater slopes rising up to relatively shallow water ('less than 30 feet deep) on each side. This approximate 2,500- acre area is the primary opening in the underwater ridge separating Long Island Sound and Block Island Sound, and is an area of very turbulent tidal exchange. The Race represents a very unusual physical environment in New York State. The deep, turbulent waters and shoals combine to produce a productive and diverse habitat for marine.fishes. .4s a result of the abundant j~haries resources in the area, the Race has become a nationally renowned sportfishing area with heavy fishing pressure occurring throughaut spring, summer, and fall. In addition to sportfishing, the Race supports a commercial lobster fishery of regional significance. The significant human use that this area supports is dependent upon maintaining or enhancing opportunities for compatible recreational and commercial fishing, within the productiviO, limits of the fisheries resources." (LWRP, Section II, J. Reach 10-p39) "The Town of southold recognizes the importance of maintaining the habitat values of the Race SCFtVH...the Town has supported the efforts of the Fishers Island Lobsterrnen and the Fishers Island Conservancy to foster better regional management of the unique and regionatly-signiftcant lobster and other fishery resources surrounding the Island. Exploitation of. fishery resources to their detriment is contrary to the Town of Southold's LtVRPpolicies on resoarce management. "(LWRP, Section II, J. Reach 1 O-p39) "Finally, with regard to the.future deposition of any contaminated dredge spoils at the New London Dump Site, the Town of Southald finds that prospect to be contrary to the intents and purposes of its Local Waterfront Revitalization Program, as well as threatening to the water of Fishers Island, the unique habitat of the Race and the Fishers Island and Block Island Sounds in general" (LWRP, Section II, J. Reach ! 0-pp39-40) Chapter 5: Inventory 9 Fishers Island Strategic Plan: 2007-2017 · The Fishers Island Water Supply watershed "Concerns were raised about the ability of the current groundwater supply to provide an adequate quantity of water during drought conditions and saltwater intrusiot~ Protection of the watersheds of the groundwater supp~v and the Barlow, Middle Farms and Treasure Ponds from the impacts of development is important to the community, in order to ensure the continued availability and quality of the groundwater and surface water supply. Steps have been taken by the Fishers Island Fgater Company to address these concerns such as implementation of the Fishers Island Watershed Protection Plan, development of a third well and maintaining the surface water treatment plant on Barlow Pond for service. The relatively undeveloped watershed area also includes important wetlands and significant plant and wildlife habitat that warrant protectior~ "(LWRP, Section H, J. Reach 10-pp40) Develom'neot Issues The LWRP noted certain troublesome aspects of Fishers Island's population and growth poten~al. ".411 of Fishers Island has been identified by the Town of Southold as an area of existing stable use. The island is a well-established seasonal residential resort community with a small year-round populatiom Much of the island has been developed for residential use or has been subdtMded. Although many of these lots remain unimproved, seasonal growth is occurring, both through new seasonal residential development and an increasing market in seasonal rental of existing property. These trends have had the effect of increasing the overall seasonal population and boosting property values. The downside is this trend could negatively impact the environment and the community character of the island. Mitigating step~ have been taken to address rapid seasonal growth such as ccrpping membership In the island's private facilities and maintaining a two vessel ferry service rather than a larger fleet. " ",4t the same time that seasonal development pressure has increasecL Fishers Island has e.~perienced a decline in its year-round population. This threatens the vitality of the island's character and infrastructure. Maintatrdng the Fishers Island SCbool is also vital to the island's year round population. Without the school, families with young children may be forced off island. So, as the population declines, the student population at the school does as well. To address this issue, the Fishers Island School, kindergarten through grade 12, has employed a magnet student program inviting as many as 25 students in grades 5 through 12 from Connecticut {to] attend the school, thereby enhancing the viability of the school experience for the island's 50 or so students. Despite the success of this program and quality of education delivered to the students, the community is beginning to discuss the feasibility of alternative high school experiences for the island students." "It is clear that current trends will result in changes that could alter the environment and community character of Fishers Island. The facns of the Town of &>utbold LWRP is to ensure that the impacts of these changes on the island's coastal resources, both natural and cultural, are minimize& To this end the LWRP focuses on the protection of the island's unique natural environment and its water-dependent uses." (Section II, J. Reach 10- pp38 to 41.) Chapter $: Inventory 10 Fishers Island Strategic Plan: 2007-2017 Harbor Management The LWRP also included a Fishers Island Harbor Management Plan (FIHMP), which was created by the Fishers Island Harbor Management Committee, with assistance from the Southold Planning Department, and the New York State Depathncot of State. The FIHMP was adopted by the Town Board in 1997, along with enabling legislation, (Southold Town Code: Chapter 33, Fishers Island Harbor Management). Section II. J. Reach 10 and the Fishers Island Harbor Management Plan of the Town of Southold LWRP are included in the Reference Binder. Conclusions The LWRP recommended three specific pwjeets for Fishers Island: * Revitalization of Fort Wright and Silver Eel Pond · Regional Habitat and fishery Management Plan * Ongoing Protection of Water Supply and Watershed (LWRP, Section V - Implementation - p55) Of these three, only protection of the water supply and watershed has been addressed. 6. Comprehensive Implementation Strategy: 2003 Southold Town adopted a moratorium during the years 2002 through 2005, during which it undertook a comprehensive review of its long-range planning policies, its land use and resource protection plans, and its governing legislation. During this time, moratorium law prevented the subdivision of land until a comprehensive review of the Town's long- range planning policies and its governing legislation could be conducted. The Comprehensive Implementation Strategy (CIS) document, (Draft Generic Environmental Impact Statement. Sonthold Comprehensive Implementation Strategy, May 2003) examined a body of planning work spanning twenty years. These plans articulated, in various ways and levels of detail, the Town's vision for itself as a socially, economically and environmentally sustainable community. The CIS made a detailed review of the Town's land use and resource protection plans, as well as its extant legislation and procedural standards. The following list indicates the plans that were reviewed and the year the plans were completed. Parks, Recreation & Open Space Survey (1982) Town Master Plan Update (1985)* Fishers Island Growth Plan (1987-1994) * US/UK Cotmtryside Stewardship Exchange Team Report (1991) Long Island Comprehensive Special Groundwater Protection Area Plan (1992) Town Affordable Honsing policies and program (1993) Southold Town Stewardship Task Force Study (1994) Sea View Trails of the North Fork (1995) Peconic Estuary Program (1995) Economic Development Plan, Town of Southold (1997) Community Preservation Project Plan (1998) Chapter 5: Inventory I1 Fishers Island Strategic Plan: 2007-2017 Southold Township: 2000 Planning Initiatives (1999) County Route 48 Corridor Land Use Study (1999) Farm and Farmland Protection Strategy (2000) Town Wate~ Supply Manegement & Watershed Protection Strategy (2000) Scenic Southold Corridor Management Plan (2001) North Fork Travel Needs Assessment (2002) Blue Ribbon Commission for a Rural Southold, Final Report (2002) Town of Soutbold Local Waterfront Revitalization Pwgram (2003)* (CIS, p 1-4) (An asterisk denotes a plan that was discussed earlier in this section.) The CIS described the basic goals of the above-referenced plans and studies as follows: "Topreserve lana~ including farmland, open space and recreational landscapes. · To prezerve the rural, cultural and historic character of the hamlets and surrounding countryside. · To preserve the Town's remaining natural environment; to prevent further deterioration of the Town's natural resources and to restore the Town's degraded natural resources back to their previous quality. · To preserve and promote a range of housing and business opportunities that supports a socio-economically diverse community. · To increase transportation efficiency and to create attractive alternatives to automobile travel, while preserving the scenic and historic attribute~ of roadways in the Town." The Town's objectives in focusing on these goals am twofold: 1) "to maintain the unique cultural and historic sense of place found within $oathold's communities, and 2) to matntaln the high quality of the Town's environmental resources." (CIS, p 1-5) The CIS identified 43 separate implementation actions that had been recommended by the various planning studies. Many of the actions were (and remain) relevant to Fishers Island. The CIS found the Town's long-range plans to be inte~'nslly consistent, but recommended the adoption of detailed strategies to ensure their implementation. One of the recommendations was to develop detailed hamlet studies. In 2004, the Town Board authorized studies for ail the hamlets on the Mainland. The Town of Southold Hamlet Study, Cleary Consulting, was completed in July of 2005 and is discussed next. 7. Town of Southold Hamlet Study 2005 In 2004, pursuant to the afore-noted CIS recommendat/ons, the Town Board authorized studies for ail the hamlets on the Mainland. The Town of Southold Hamlet Study, was completed in July of 2005. I_ater that month, the Town Board adopted the report as an official planning document. The prima~y focus of the Hamlet Study was to formally delineate the Hamlet Centers, evaluate the technical and practical feas~ility of redirecting potential future growth from Chapter 5: Inventory 12 Fishers Island Strategic Plan: 2007-2017 the agricultural and open space areas of the Town towards the hamlets, and also to critically validate the Hamlet Centers the~nselves, to define strengths and weaknesses with an eye toward enhancement, improvement and revitalization." (Town of Southold Hamlet Study, Town-Wide Analysis, Page 5.) The hamlet studies were designed to allow local stakeholders to take active roles in defining each hamlet's "center", to propose outer growth boundaries, and to debate its future shape and form. The centers were defined as places within the overall township that were well-defined, recognizable districts distinct from the outlying open space and fannlunds. All the Town's hamlets except Laurel and Fishers Island were included. Subsequently, at the request of the Islanders, a separate hamlet study was authorized. However that effo~ stalled because much of the format end focus used for the Mainland hamlets did not lend itself to the issues of ~oncern to Fishers Islanders. 8. The Island Institute 2003-7: Givin; Voice: The l~ishers Island Project In 2002, several Fishers Island residents visited The Island Institute, in search of ideas nbout how to address issues of great concern to them, principally the declining year- round population, the rising cost of living, and the inability of existing island organizations to deal effectively with these issues. The discussion "focused on problems common to many islands: the difficulty of ruuniag (and paying for) a small public school; the costs and challenges of law enforcament; state and federal mandates that don't fit island situations; the need for health care and othe~ social services; what it means to be "out of sync" with mainland communities. In addition, Fishers, with its la'ge number of expensive summer homes and its proximity to Long Island Sound's over-the-top real estate market, was forced to deal with a housing market, property taxes and real estate values that -- f~m a small community's standpoint, at least -- could only be described as out of control." (''No Dog But His" by David D. Platt in Giving Voice: The Fishers Island Project, p 17.) The Island Institute is a membership-based community development organization based in Rockland, Maine. Its primary focus is on fiRcen year-roond island communities located off the Maine coast, and its mission ia "to support and sustain the uniqueness and viability of small islands." (htm://www.islandinstimte.or~aboutus~ A dialogue ensued, of which the end result was the funding and placement of a Senior Fellow on Fishers Island for the yeats 2004 through 2006. As documented in Giving Voice: The Fishers Island Project, two Senior Fellows assisted in the restructuring of the way in which existing organizations, upwards of thirty-three in number, communicated with one another and governed island affairs. Briefly, the Senior Fellows assisted the islanders ia restructuring their ad-hoe method of self-govea'nanco which reflected the lack of a strong presence of the Mainland of Town government. The Fishers Island Civic Association was supplanted by a partly appointed/partly elected Fishers Island Community Board (FICB), whose structure and activities are defined by By-Laws. The fourteen members consist of six, elected Chapter $: Inventory 13 Fishers Island Strategic Plan: 2007-2017 representatives (three of whom must be year-round residents and three of whom must be seasonal residents) and one appointed representative from each of the eight organivations with the greatest impact on island life: thc Fishers Island Development Corporation, the Ferry I)ist~ct, the Fire District, the School Board, the Utility Company, tho Island Health Project, the Waste Management District and Walsh Park Benevolent Corporation. The FICB's mission is "to facilitate the functioning of the Fishers Island community by serving as the focal point for participation by individuals and organizations in the determination and execution of goal for the Island." (Givino Voice, Appendix) The FICB's charge is to establish mechanism~ to: · "Increase collaboration and communication between organizations and the public; · Provide a forum, that includes organizations and the public, that encourages community participation and dialogue surrounding the issues concerning the residents of Fishers Island; · Articulate andprioritize the community goals; and · Undertake, encourage, and support tasks to achieve those goals." (Giving Voice, Appendix) Through the efforts of the Senior Fellow during the years 2006-6, the FICB established an Island Office, a non-profit newspaper, and a monthly meeting schedule of various Island activities and projects: all of which has resulted in improved inUa-island communications and organization, as well as a more cohesive dialogue with Town governmant. Historically there has been limited interaction between Southold Town government on "the Mainland" and Fishers Island. While the "hands-off' approach towards island governance by "the Mainland" often suited the independent nature of the island community, it also has resulted in a legit/mately deep-seated frustration with the Mainland's lack of responsivaness to resolving island problems. 9. Plapnlng Conclusions A review of past planning studies fi'om 1982 to 2005 revealed that many of thc Town's overall goals and objectives for its future remained fundamentally unchanged through the decades. Many, but not all, of these goals are relevant to Fishers Island. Fishers Island's Vision for its future is essentially a prescrvatiodist Vision: that of protecting the island's unique attributes from the cultural and physical homogenization that has pervaded much of the American landscape. However, pursuit of that Vision in the 21 ~t century is likely to require a more definitive approach to solving Island problems, and this may require a candid look at certain Island lraditions. As identified in Givina Voice, Fishess Island already has taken significant strides in this direction. Chapter 5: Inventory 14 Fishers Island Strategic Plan: 2007-2017 Natural Reaom'eos As seen from Map 2-4, Fishers Island is the largest of several islands scattered near the Connecticut shoreline. Fishers Island is 6.7 milos long, and awtagos three quarters of a mile in width; encompassing about 5 square milos (3,200 acres) of land. It is located about 12 milos to the northeast of Orient Point and 3 to 4 miles south of Connecticut, opposite the cities of New London, Groton, Mystic and Stonington. It is accessible only by plane or boat. The other islands, all uninhabited except for the first, include: North Dumpling South Dumpling, Pine Islands (also known as Hungry Point Islands), Wicepesset, Latimer Reef, Flat Hummock, Race Rock. The natural resources of Fishers Island have been documented in past planning documents, all of which were noted and de~'ibod earlier in the Planning Framework section. These documents are included in this report by reference and the interested reader is referred to these documents for more details. However, Section 11. J. Reach I0, of the Town of Southold's Local Waterfroat Revitalization Program, LWRP, is included in the Reference Binder. Although the LWRP contains a listing of the priority areas of concarn on Fishers Island, the natural resource database will n~xl to be updated in order for Islanders to achieve their goal of improving the environmental protection techuiquos currently in uae on Fishers Island. One gap in the database is the lack of an updated survey of rare and endangered species. Another is the lack of a detailed wetlands map. The existing wetlands map, included here as Map 2-5, is based, partly, on iaterpretations of aerial photographs. This map is too generic for stewardship purposes and needs to be improved through field work and ground and ground-truthlng, whereby GPS (Global Positioning System) waypoints are assigned to vegetation boundaries or boundaries, and are placed upon an A-2 Survey Map. (An A-2 Survey Map is an accurate property map that is field surveyed, signed and sealed by a licen~xl surveyor.) Another gap in the database is the lack of an updated survey of rare and endangered species. A third gap is lack of a GPS map denotin8 where mosquito breeding sites are located. (Source: Geb Cook, Director of Site Services, Clean Harbors Enviromnental Services, Inc., E-Mall. Septamber 10, 2007.) Currently, field workers use hend-drawn maps. An accurate property map that is field surveyed end signed and sealed by a licensed surveyor. The Fishers Island Conservancy has a long track record of protecting the Islands' natural resources. This organization hag underwritten many re~arc~ and field projects, including assisting with the costs associated with mosquito control and outfitting the pump-out boat. Currently it is funding an experimental phragmitos control project with approvals fi'om the New York Department of Environmental Conservation. Although there is environmental legislation on the books, and the Island has recourse to enforcement by Bay Constables and New York State Deper~ment of Environmental Conservation peace officers, the Island lacks an overall educational strategy or a Chapter 5: Inventory 15 Fishers Island Strategic Plan: 2007-2017 coordinated, on-Island process for self-protecting its most important upland and maritime resources. Only the Fishers Island Harbor Committee exercises direct influence on the anvironmental resources of West Hmbor, pursuant to the Southold Town Code, Chapter 157, Harbor Management. 1. Fishers Island Harbor Committee Formed in 1994, the Fishers Island Harbor Committee (FIHC) has played a very important role in exerting local control over the Island's harbor resources. The FIHC drafted and administers thc Harbor Management Plan for all waters surrounding Fishers Island. The reader is refen'ed to Section J. Reach 10, pages 41- 45 of the Local Waterfa'ont Revitalization document for a de~ailed history of this volunteer Committee, ica charge and its jurisdictional authorities. A copy of the Harbor Manngement Plan can be found in the LWRP, copies of which are available at the I.a'brary and the Fishers Island Community Board office. The FIHC was successful in cobbling together $35,000 fi'om the Town and the Suffolk County Department of Health Services towards the purchase of a pump-out boat which has been named, the Harbor Honey. The Fishers Island Conservancy donated additional funds to purchase electronic equipment and install it on the boat. The FIHC continues to work closely with the Town Trustees and the Town Depa~'h~ent of Public Works in order to obtain funding and other assistanco on harbor management issues. Thc boat has been in operation since July 2007. The two boat handlers are paid by the Town in accordance with civil service regulations. The boat has a waste-carrying capacity of 240 gallons. The waste is mmsported to Noank Shipyards and pumped into the Ca'oton Sewer system. The yearly charge for access to the Shipyard ($ 500) is paid by the Town. Pumpnge records will be kept in order to support the Island's upcoming petition to the State of New York for "No Discharge Zone" status for all the island harbors and perimeter waters. Obta!n!ng this designation will help the Island maintain the water quality and protect shellfish and fishery resourc~ from contamination. (Source: Elbert Burr, Chairman, Fishers Island Harbor Committee, August 1, 2007, Telephone conversation.) Historical Context Fishers Ishmd's rich and complex history has played a definitive role in the Island's development. The factors thai shaped Fishers Island are quite diffevmt fi'om those on the Mainland, and they continue to shape the island community today. There arc scv~ai good sources of historical information, including the article "No Dog But His" by David D. Platt (Crivim~ Voice: The Fishers Island Proiect. p 17.). The information prezentcd here is included for the purpose of facilitating a strategic plan for Fishers Island's future. Chapter 5: Inventory 16 Fishers Island Strategic Plan: 2007-2017 1. Founding Days The Island was purchased from the Pequot Indians in 1644 by John Winthrop. From that point onward, the natural wooded, enviroment of the island was profoundly re-shaped by the grazing of livestock and other farming practices of the time. In 1863, Robert R. Fox purchased the island from the Winthrop family. Between 1863 and 1889, the Fox family sold off about 101 small parcels, less than one-tenth of the island. In 1889, the remaining nine-tenths were sold to two brothers, Edmund M. Fergnson and Walton Fergnson. At the time of the Fergnson purchase, the more-developed western third of Fisben Island contained a large excursion hotel, a church, boarding houses and numerous cottages. The eastern two thirds of Fishers Island consisted of undeveloped grazing land dotted by mostly abandoned farm structures, fields and pastures. Following tbeir purchase, the Fergnsons' revived and expanded farming at the east end with operations centered on three distinct fanta: East End Farm, Middle Farm and Wilderness Dairy. A fourth, Poultry Farm, was created closer to town, below Mount Prospect. However, it was at the West End that the Fergnson brothers began to implement their vision of an exclusive resort community free of day excursionists. To support this vision, various Island-based businesses, such es hotels, ferry, electric, water and telephone enterprises were created. More than a decade earlier, in 1896, the federal government approached the Fergnson brothers about purchasing land at the western tip of the island for the purpose of creating a coastal defense base. This request did not fit the Fergnsons' plans, but they agreed to negotiate. Disagreement about the price per acre (the government offer of eric hundred dollars per acre was considerably lower than the asking price of one thousand per acre) led to condemnation hearings. Two years later, a panel of judges ruled in favor of the Fergusons and they received $176,000 for 215 acres of land in 1898. The U.S. Government would continue to purchase land through 1943 for a total of 419 acres. (Sources: Pierce Rafferty and Guardian o£ the Sound: ,4 Pictorial History o£ Fort H.G. Wright. Fishers Island. NF. 1998, Pierce Rafferty & John Wilton, p vii) The development and operation of Fort H.G. Wright (until 1949, when it was de-activated) generated enormous infrastmctural and social changes, many of which continue to affect the Island today. In the 1920s, the second gene~tion of Ferguson owne~, led by Alfred L. and Henry L. Fe~'guson, expanded the resort development plans for the eastern two-thirds of the Island, referred to hereafter (in this report) as the East End. Beginning in 1925, and continuing through the 1930s, the East End was slowly mmsformed into a private, residential community in conformance with a landscape and design plan drawn up by the Olmsted Brothers Company 1926 and revised in 1928. Between the development of the western third of the Island into a military base and the transformation of the East End Into a "gated" resort community with a premier golf links course, all vestiges of an agricultural economy disappeared, and now, almost no land is flu'med. The corporate slructure set up by the Ferguson brothers to develop and manage the Olmsted Park property was modified through the years. For more detailed information Chapter 5: Inventory 17 Fishers Island Strategic Plan: 2007-2017 on the evolution of the corporate management structure of the East End, the interested reader is directed to the following book, The Fl~hcr~ Island Club and its Golf Links. The First Seventy-Five Years, 2002, Charles B. Ferguson & Pierce Raff~ty. It contains an excellent recounting of the Fergusous, their vision for Fishers Island, the resort's evolution into its present day appearance, and the history of its corporate management. Financial and corporate decisions by the Fergusons (and the subsequent successor companies that followed the original development company) have maintained many aspects of the 1926 Olmsted plan on the East End. In 1965, the Fergusous' Fishers Island Farms company was sold and re-named the Fishers Island Utility Company, which continues to operate the water, telephone and electrical facilities, and retain partial ownership of these facilities along with the Fishers Island Development Company (FIDCO), a successor company formed in 1960 to manage the private eastern section of the Island. More details about the management slmcture are contained in the subsection on Management Structure, below. (Sources include the following: The Fishers Island Club and its Golf Links. The First Seventy-Five Years, 2002 , Charles B. Ferguson & Pierce Rafferty; The Town of $outhold LWRP, 2004; the resources of the Henry L. Fe~guson Museum, particularly its knowledgenble director, Pierce Rafferty; and the Sonthold Town Historian's library. The Ferguson Museum has benefited from recent curatorial efforts to track down written and photographic documentation pertinent to the Fergusous and Fort Wright. The interested reader is referred to the Museum's collection for details beyond the scope of this reporL) 2. Post World War Il At its height, during the First World War, Fort Wright's population is estimated to have numbered about 1,500 people. In 1949, the U. S. Army closed Fort H.G. Wright. When military personnel were withdrawn from the base, the buildings were shuttered. The extensive infrastructure consisting of barracks, officers' quartets, storage buildings, gun emplacements and dockage stood unused and neglected. In 1956, 3.82 acres and twelve buildings were transferred for use by the Fishers Island school. In 1958, 293.23 acres of the military base were transferred to the General Services Administration. Of this acreage,, 56 acres and ninety-four buildings w~re sold at auction to the Race Point Corporation, a local syndicate formed to ensure tho land was not purchased by off-islanders. Race Point Corporation donated much of this acreage to thc Town. The federal General Services Administration also transferred some acreage to thc Town. Some land still remains in federal hands, principally Mount Pwspect, site of thc U.S. Navy Underwater Sound Laboratory which is currently operated by the Naval Undersea Warfare Center (NUWC). (Guardian of the Sound, p. 218) The significance of this ownership pattern, from a planning perspective, is that the potential for the public and private sectors to work together to improve the quality of life on Fishers Island is enormous, particularly if consensus can be reached on community goals. Chapter 5: Inventory 18 Fishers Island Strategic Plan: 2007-2017 3. Stracmres and Sites of Historical Importance In 1988, The Society for the Preservation of Long Island Antiquities, (SPLLA), conducted an inventory of historic properties within the Town of Southold. The inventory (Comprehensive Survey of Historic Resources in the Town of Southold and Fishers Island) found eighty-one (81) slructurea of historic significance on Fishers Island. The information in the SPLIA survey was scanned into Laserfiche, then mapped and reviewed by the Stakeholders. It is included here as Map 2-6. SPLL4 Inventory. Upon review, ii was the consensus of the Stakeholders that the SPLIA inventory (and map) was both inadequate and inaccurate, and that a new survey should be taken when funds became available. The Town has a register for local Landmark Structures and Sites. This is a voluntary program whereby propen'y owners submit requests for local registration. No properties on Fishers Island are on this register, nor is there any record of any applications for landmark status. As noted in the Town of Southold Local Waterfront Revitalization Program, there are three lighthouses around Fishers Island that are significant for historical as well as nautical reasons. These are: Latimer Reof Lighthouse North Dumpling Light Race Rock Light (source: Town of Southold, LWRP Section II. F-p6) New York State and the federal government each maintain Registers of Historic Places. These registers contain buildings, structures, districts, objects and sites significant to the history, architecture, archeology and culture of the state or the nation. Although Fishers Island is not listed on either the State or the National registers, it has properties that are considered eligible for such d~ignation. These properties are: Race Rock Light Fort H.G. Wright (Source: Town of Southold, LWRP Scction II. F-p3) A review of the holdings of the Ferguson Museum with its curator, Pierce Raffeny, revealed that the Museum contains an extensive inventory of the Fort Wright properties end history. The museum's collection also Includes a detailed building and grounds inventory that had been commissioned by the Fishers Island Farms in 1918. This information may be useful for future historic reconsmJ_ction purposes. a) Parade Grounds The Parade Grounds of Fort Wright are owned by the Town of Southold. Although the historic aspects of this properly have not been maintained, the site is potentially of state Chapter $: Inventory 19 Fishers Island Strategic Plan: 2007-2017 or national landmark status. Map 2-7 Proposed Parade Grounds Historic District, outlines one possible boundary of such a district. Additional material relevant to the application process is contained in the Reference Binder. M ement Structure One consequence of Fishers Island's unusual history ns recounted above, briefly, is that the ownership and management of most services and infrastructure, including utilities, is in private, not public, hands. By contrast, on the Mainland, almost all utility infrastructure and services, such as electricity, interact, sewer, roads and water services are provided almost entirely by either public entities such as a local, county or state government, or by quasi-public antities that have been chartered as public authorities under New York State law (e.g. Suffolk County Water Company, Long Island Power Authority, KeySpan, etc.). Fishers Island's geographic isolation from the Mainland has resulted in a unique degree of unofficial or informal self-governsnce. Through the years, various dis~icts and other administrative arrangements have been created in response to island-specific needs and situations. As a result, govemauce on the island is a curious and not entirely efficient mix of private and public institutions, some on the Mainland and some on-island. The current form of self-govermnant is described in detail in the recent publication Givin~ Voice: The Fishers Island Proiect- A brief description of thi.~ report was included earlier, in Planning Framework. During the years 2004 and 2006, the Fishers Island Civic Association was replaced by the Fishers Island Commqnity Board (FICB) whoso mission is "to facilitate the functioning of the Fishers Island community by serving as the focal point for participation by individuals and organizations in the determination and execution of goal for the Island "(Giving Voice, Appendix). Cta~atly, the FICB is functioning as an umbrella organization which hopes to facilitate coordination among several active groups that have a significant impact on Island life. (FICB Annual Report 2006). Th~so organizations are listed below in alphabetical order, in one of four categories: taxing districts, corporate, non-profit and governmental. Taxing districts are quasi-public entities designed to provide a public service. Operating revenues are collected through general taxes paid by proper~y owners within the district. The corporate entities listed here are privately held organizations designed to provide specific management or utility se~'vices. The term, non-profit, is used here to describe any organization created for the purpose of addressing civic, religious, social or other specific issues. ~ reveaues in non-profit organizations typically are generated through private fund-raising and voluntary contributions, although some may obtain (or be able to obtain) some of their money from public funding sources. The governmental category includes organizations with considerable management authority, e.g. the Fishers Island Harbor Committee, as well as those whose jurisdiction is strictly advisory. Chapter 5: Inventory 20 Fishers Island Strategic Plan: 2007-2017 Ta~in$ district: o Fishers Island F~ry District o Fishers Island Fire District o Fishers Island Library Association o Fishers Island School Dis~ct o Fishers Island Waste Management District Corporate 0 0 0 Fishers Island Development Company Fishers Island Library Association Fishers Island Utility Company Non-profit: 0 0 0 0 0 0 0 0 0 0 American Legion Post No. 1045 Island Health Project Fishers Island Cemeteries Fishers Island Civic Association Rodent Control Program Fishers Island Conservancy, Inc. Fishers Island Fire Dega~h~ent Fishers Island Lobste~uen Association Hay Harbor Property Owners Association Fort H.G. Wright Island Bowling Center Island Community Center Island Concerts Island People's Project Our Lady of Crrace Church St. John's Church Union Chapel Sanger Fund The Henry L. Ferguson Museum Tree Committee Walsh Park Benevolent Corporation Governmental o Southold Land Use Committee o Fishers Island Harbor Cormuittee Each organization noted here has a clear purpose and is committed to meeting a specific set of needs. Of particular note is the role played by the three Island churches in building community, providing social networking opportunities, funding scholarships, aiding people in need, hosting educational and spiritual lectures, and providing meeting space: all in addition to hosting religious services. The challenge faced by the FICB will be to leverage the human and financial resources of all these organizations for maximum community benefit. The reader is referred to thc Chapter 5: Inventory 21 Fishers Island Strategic Plan: 2007-2017 Fish~ Island Community Board's Annual Reports of 2005 and 2006 to obtain a more detailed picture of the concerns and activities addressed by each of the above-listed organizations. The FICB itself is composed of six elected representatives of the Island community (three year-round and three seasonal) and eight appointed representatives, one from each of the eight institutions that wield the most influance on Island life. These institutions, listed above, also are discussed below, briefly, in terms of their relevance to the implementation of this Strategic Plan. · Fishers Island Develomnent Commanv CFIDCO) FIDCO is a corporation owned by more than One hundred shareholders, most of whom also own residential propen~y on the East End of the island. FIDCO is the successor to the original corporate entities created by the Fergnson brothers to develop the East End. Governed by an annually-elected Board of Directors, FIDCO seeks to maintain and improve the character, atmosphere and quality of life of all of Fishers Island, not just the East End, which encompasses about 85% of the land on the Island. FIDCO maintains the park-like quality of the 1926 Olmsted Plan through deed restrictions, whereby its Architectural Review CommiRee reserves the right to conduct its own site and design review of each proposed residence. In 2005, FIDCO redmfled the Covmants used to preserve the "park-like atmosphere" and improved its Design Review Cmidelines for structures and landscaping FIDCO encourages the donation of undeveloped land to the Henry L. Ferguson Museum Land Trust, to which it recently donated a sizable amount of land. FIDCO owns the land on which tha Fishers Island Club and Golf Links are sited as well as that of thc Fishers Island Marina/Yacht Club. It manages and maintains the golf course and all the buildings on land it owns. FIDCO also controls some land which has not been sold or developed. All roads within the East End are owned and maintained by FIDCO. Access over these roads is by vehicular permits issued to east end property owners, their guests, members of the Fisho's Island Club, businesses that service the east end residents and year-round resideats of the island. As a holding company, FIDCO re~h~ majority ownership (60%) of the Fishers Island Waterwod~s Company and minority ownership of the Fiabem Island Electric Company and Telephone Company. In surmnsry, FIDCO acts as both a Property Owne~ Association for the East End and as a holding company for various land holdings and infras~ctme assets located throughout the island. FIDCO's involvement with the year-round community has been extensive and generous. They have supported the efforts of the Walsh Park Benevolent Corporation in its efforts to provide permanent affordable housing. They also have helped underwrite the creation of a Chapter 5: Inventory 22 Fishers Island Strategic Plan: 2007-2017 fitness Irail near the Fishers Island School, as well as leasing Building 98 (at no cost) for the purposes of nmovating it into a Community Center. FIDCO's role in the implementation of any slrategic plan for Fishers Island will be essential. · Fishers Island Utility Comnanv (FIUC) The Utility Company is a holding company which oversees three operating companies which provide water supply and sewage treaiment, along with electric and telephone se~ic~. (The operating companies are: The Fishers Island Waterworks Company (FIWC), Fishers Island Telephone (FITC) and Fishers Island Electric (FIEC). FIUC's stake in these companies is: Fishers Island Water Company- 40%, · Fishers Island Telq~hone Company- 51%, · Fishers Island Electric Company- 40%. The FIUC provides management services to the FIWC. It also provides services to tax- chartered districts and operates in accordance with rules and regulations set by the New York State Public Service Commission. Although the holding companies are owned by stockholders, their directors have never received compensation for their services. Nor have the directors of the operating companies. (Correspondence: Robert E. Wall, President, Fishers Island Utility Company, to New York State Public Service Commission, April 3, 2006) Moro details about the utility services are provided below, in Development Patterns and ConstralnB. The management of the FIUC is linked closely to that of FIDCO and together the two holding corporations affect the level and quality of essential utility services on the island. · Fishers Island Fen3, District The Fishers Island Ferry District was created by State legislation in 1947 pursuant to A~icle 12, Town Law, Chapter 699, Laws 1947. Ira "object and purpose...[was] to acquire, COnStTUCt, equip, operate and mainUtin a public ferry...A furlher object and purpose of the district shall be to acquire by girl, purchase or lease, an airport or landing field situated on Fishers Island, and to operate and maintain such airport." (Section 2 of the Fishers Island Ferry District ,4ct, Amended by Chapter 620 of the Lmvs of 1951). The District oversees the operation of Elizabeth Field and has secured federal funds to assist in the cost of maintaining and upgrading the airfield. The Fishers Island Ferry District Act (FIFDA) set forth the responsibilities and authorities of the five member ferry commission, as well as the process by which they would be elected. Section 5-b states that the town board may delegate jurisdiction, control and supervision of such airport or landing field to a board of ferry district commissioners, who may, in turn, lease such portion of the airport or landing field not Chapter 5: Inventory 23 Fishers bland Strategic Plan: 2007-2017 required (for such purposes) to any legal business purpose, subject to approval of the town board after a public hearing held by the commissioners. The FIFDA was emended in 1962 to incorporate the entire Island within the district, except for the Coast Guard station and the U.S. Navy property. FIFDA also sets forth the protocols whereby commissioners may be elected to the board for five year terms. "Electors of the dis~ict qualified to vote for town officers of the town of Southold at the preceding town election end owners of real property situate within the Fishers Island ferry district assessed upon the last preceding town assessment roll shall bo eligible to vote at any such annual election.' (FIFDA, Section 9). There are no term limits. (Because of its volume, all documentation related to the Ferry Dis~ict has been placed on the Laserfiche CD-ROM where it can be found under the title "Fen~j District".) When the Ferry District was created, the Town Board did not adopt additional protocols for the management of the land it had placed under the district's conirol, essentially leaving that up to the District Commissioners. When the Town acquired the majority stake in the land and airfield within Fort H.O. Wright in 1958, and expanded the taxing and electoral boundmies of the district to encompass most of the Island, this had the effect of expanding the district's management responsibilities considerably beyond its original jurisdiction, which was the ownership, operation and management of ferry sc-rvico, boats and facilities. The State authorizing legislation, FIFDA, has been emended in order to address district needs and responsibilities and conceivably could be amended again in the future, as may be needed. The extent to which the Town Board may exert its legislative authority over specific operating procedures of the District, specifically as they pertain to non-ferry issues, e.g. management of leases on public property, is not known. Eligible Island voters have the power to change the composition of the District Board of Commissioners, and to effect changes in operating procedures through the ballot box. · Fishers Island School Disirict The Fishers Island School District, FISD, provides public schooling for grades pre-K through 12. The District is committed to providing a high quality learning environment and to expanding the educational experiences of island students. The school disUict is working on a long nmge plan for leveraging the uniqueness of the island's location and small classroom settings through various outreach and magnet pronouns. Thc school is perceived by thc larger community as being an essential ingredient for a successful year-round community. There is strong support for maintaining a full service, accredited (pre-K to 12) school, but there also are ongoing questions as to the wisdom and expense of providing grades 9-12 on tho island, when private or public off-island schools may be able to offer a different, more diverse palette of educational opportunities. Nearly twenty years age, the school created a magnet program to boost enrollment as well as to compensate for the loss of some students to private off-island schools. Chapter .~ : Inventory 24 Fishers Island Strategic Plan: 2007-2017 · Fishers Island Fire District and Fire Deoartment The Fire DisUict encompasses the entire island, and is protected through the efforts of approximately 48 active members of a Fire Department. The Dislrict owns the fire housc, the fire-fighting equipment and the ambulance. It rents thc fire hydrants from the Fishers Island Utility Company. The District provides life insurance for the Deparhnent. It also has an awards pwgram for Department members with twenty years of service. The Fire Department consists of male and female volunteer fireflghter~ who also provide ambulance and emergency medical technical services. The Fire Department owns and maintains the Sea S/retcher, a twin engine ambulance boat capable of transporting two patients to the New London hospital. Unlike the District, which is funded through tax revenues, the Deparlment relies heavily on volunteer labor and extensive private donations. Its ability to service the emergency needs of the island depends on being able to draw on a sufficiently large pool of able-bodied yesr-wund residents. · Fishers Island Waste Mana~ament District The FIWMD is primarily concerned with the collection and disposal of garbage generated on the island. It is a taxing disirict governed by five commissioners. The district has two full time employees and one part time secretary, all of which are provided with a health benefits package. The composting station is operated on land owned by the FIWMD. The transfer station is operated on land leased fi'om the Ferry Dislrict. The transfo' station handles all household wastes including recyciables. The district does not dispose of junked cars or boats. The FIWIvID would like to move the Iransfer operation onto its property in ordar to reduce operating and staffing costs and improve efficiency. Three years ago, the district capped its landfill pursuant to New York State regulations. It is negotiating with the Henry L. Ferguson Museum Land Trust to donate that pwperty as permanent open space since State regulations prohibit use of that land for any other purpeaes. Pursuant to State regulations designed to protect sole source aquifers (sources of potable drinking water) from contamination, all household garbage generated on the Island must be shipped off the Island. The expense of shipping garbage via ferry is five hundred dollars ($500) per 30 cubic yards of material. During the summer months the District spends between eight and twelve thousand dollars ($8,000 - $12,000) per month to ship garbage to New London. In order to reduce this expense, the district is looking into ways of reducing the volume of garbage that must be shipped off the Island. It would like to acquire equipment capable of shredding glass and paper for rouse on the Island. (Source: Michael Imbrigiin, Commissioner, FIWIViD. Telephone conversation, July 30, 2007) · Island Health Project incorporated in 1974, the Island Health Project is committed to providing year-round medical care on the Island. In 2006, the IHP was successful in achieving an ambitious Chapter 5: Inventory 25 Fishers Island Strategic Plan: 2007-2017 goal: finding a permanent physician to live on the island year-round. The IHP is also constructing a new medical facility to improve the level of e~ergency and clinical care. The IHP reflects the Island community's commitment to round-the-clock medical and emergency care, and its recognition that such care will be essential for the Island to attraci and retain a diverse and vibrant year-round population. * Walsh Park B~nevolent Corporation In 1987, the Fishers Island Civic Association and other civic-minded residents formed a non-profit organization, known as the Walsh Park Benevolent Corporation, WPBC. The mission of WPBC is to provide affordable housing opportunities for families who live and work on Fishers Island. Named for the woman who agreed to sell her property on North Hill, WPBC is credited with creating the first permanent affordable housing in $outhold Town, as well as Fishers Island. The organization is managed by a twelve member Board composed of year-round and seasonal residems. Its funding comes from donations, property rents and a fund-raising event. WPBC continues to create and manag~ affordable housing. Its future effo~s will be critically important ff the Island is to retsin~ much less expand, its year-round population. 1. Intergoveramen~l relations Intergovernmental relations between the Island and the Mainland, the County and the State are fractured, at best. Currently the Island is represented on the Mainland by an elected Councilperson and an appointed Planning Board Member. Until a few years ago, the Island also had an appointed representative on the Zoning Board of Appeals and an elected representative on the Board of Trustees. The loss of representation on the latter two boards occurred as the result of political decisions and has resulted in a lack of Island input into the decision-making of those respective boards. The geographic distance and the long travel time between the Island and the Mainland are the primary culprits in this situation. There are Island appointees to thc following Mainland committees: · Architectural Review · Emergency and Disaster Preparedness · Land Preservation The Fishers Island Harbor Management Committee is composed solely of Island representatives. In addition to the lack of Island representation on the Board of Trustees and the Zoning Board of Appeals, there are no Island representatives on the following town committees: · Board of Assessment Review · Agricultural Advisory · Anti-Bias Task Force Board of Ethics · Committee on Health Issues and Services for the Elderly Chapter 5: Inventory 26 Fishers Island Strategic Plan: 2007-2017 · Conservation Advisory Council · Employees D~ferred Compensation Plan Employees Health Benefits Historic Preservation · Housing Advisory Commission · Padis, Beaches and Recreation · Police Advisory · Records Advisory · Storm water Runoff Advisory The bulk of Island coordination with the Mainland falls on a few shoulders, basically the Couneilperson and, to a lesser degree, the Planning Board member. 2. Alternative forms of governing As noted earlier, the awkwardness of the current governing situation is due primarily to the geographic distance between the Island and the Mainland. Improved applications of existing technology might ease some of these communications problems in the future, e.g. teleconferencing, vidcoconferencing, and online access to both Las~fi~c and the Mainland government's computer network. For the moment, as in the past, thc primary short-nm solution to improved governing (anti governance) is a persistent commitment of time and energy into staying engaged in Mainland government functions and discussions relevant to the Island. The feasibility of exploring alternative forms of self-governance was brought up in Stakeholder meetings and these alternatives are limited. One is to get Southold Town to agree to send a home rule message to the New York State Legislature asking that it form the Town of Fishers Island. The consultant views this alternative as unlikely for two reasons: the reluctance of the Mainland to allow the Island to separate and the growing realization in Albany that creating more local jurisdictions may be counterproductive to efficient governing statewide. The other alternative is to form an Incorporated Village within Southold Town. State law restricts the geographical extent of Villases to five square miles or less. Fishers Island encompasses slightly less than five square miles of territory. However, the minimum requirement for incorporation is a year-round population of five hundred (500) "regular inhabitants". New York State Yillage Law, Article 2-200.2. defines ~regular inhabitants" as "all persons residing in the territory proposed to be incorporated except such persons who themselves, or who are persons under the age of eighteen years residing with persons who maintain a residence outside such territory which is used as their address for purposes of voting." Further, a petition for incorporation must be sponsored by either twenty percent of the residents qualified to vote within the proposed Village or the owners of more than fifty perc~t in assessed valuation of real property (based on last completed assessment roll). (Source: htW://vublic.leginfo.state.y.us) Chapter 5: Inventory 27 Fishers Island Strategic Plan: 2007-2017 Develoumeat Patterns & Constraints The development patterns described in thc Town of Southold LWRP 2004 document remain largely valid'and while that text was used as a primary source for this report, the following paragraphs contain updated information where applicable. The current breakdown of land uses on 979 parcels, based on the Tax Assessors records, is noted below: Use of land on oarcel Number of oarcels One family dwellings: 507 Two family dwellings: 6 Multiple dwellings: 5 Vacant lots: 306 Vacant underwater land: 7 Commercial: 28 Recreation & Entertainment: 9 Community Services: 40 Public Services: 6 Wild, Forested, etc. Lands: 4 Purchased Dev. Rights 1 Total parcels 919 (Source: Town of Southold, GIS, August 2006) Because the management of the Island is so strongly bifurcated into East and West; its development parents and cenatraints are described in that context as well. The graphic version of the list above c. an be found on Map 2-8: Land Use. When looking at this map, keep in mind that the land use pattern shown here reflects the Tax Assessor's interpretation of land use, which may be quite diff~a,mt from the uses permitted by the undcrlying zoning, which is shown on Map 2-3: Zoning 2006. 1. wNt E~d Medium to high density development is only found in the western part of the island, principally within the confines of the former H.G. Wright Army base, where community water supply and sewerage services axe located. The western portion of the island contains all thc institutional axed commercial uses found on the island with the exception of the Water Works building on Barlow Pond, on the East End. The institutional uses include a new medical clinic, an accredited pre-K to 12 public school, a post office, thc volunteer fire station, the Coast Guard Station, the ferry dock and management office, a solid waste recycling and landfill station, and the offices of the Fishers Island Utility Company. Commercial uses include: several marinas, a seasonal inn (which includes a restaurant, bar, game/meeting rooms and eight bedrooms), a seasonal food and deli market, a year-round Chapter 5: Inventory 28 Fishers Island Strategic Plan: 2007-2017 supermarket, a couple of year-round or seasonal retail stores, the Hay Harbor clubhouse and golf course, a hardware store, an aquaculture business, several landscaping businesses and storage/offices for construction businesses. Corranerclal uses are scattered about the West End, and can be found within the six discrete business zoned areas as well as on Town propelty to the west and south of Silver Eel Cove. Three churches and affiliated cemeteries, a museum, the American Legion Post, a bowling alley and a theatre building are pan of the wider community infrastmeture. Finally, Building 98, owned by FIDCO, is in the process of being converted into the Island Community Center. Southold Town owns most of the land that comprised the former military base. This land lies to the south and west of Silver Eel Cove and Whistler Avenue and it encompasses Elizabeth Field, a smal/airstrip. The Town's holdings equal appwximatcly 186 acres. All of this land is managed by the Ferry Distfiet pursuant to the Fishers Island Ferry District Act. Since the Town permits home occupations and some business operations pre-date the 1989 Zoning Code, it should be presumed that there is additional economic activity taking place on residentially-zoned prOlgtiy. The constraints to new development and re-development on the West End, particularly within the former Fort, are small bcoause of the close proximity to community water supply and sewerage s~vicos. 2. East End The eastern pan of Fishers Island, beyond West Harbor, is largely under the control of FIDCO and lot owners. It is almost entirely residential in us~ exempt for recreational facilities such as the Fishers Island Club and the Fishers Island Links. This part of the Island contains the lowest density of residential development. It is zoned R-120 (120,000 square feet of land, or slightly less than three acres of land is required per dwelling). Building lots that were created prior to the addition of three acre zoning (in 1989) are grandfathered, thus considered to be legal non-conforming lots. Furore development within the East End will oeenr but the rote of that devdopment will be controlled by FIDCO's policies. For instance, it still holds potential building lots, which have not been sold. Also, FIDCO has maintained a cap on the membership level within the Fishers Island Club. FIDCO's policies have been designed to prevent unchecked growth in the seasonal populadon, thereby protecting the quality of life enjoyed by the year-round eormnunity as well. The eastern end of the Island was developed in acenrdanee with a unique development plan created in 1926 by Oimsted Brothers Company. In 1958, the Southold Town Board adopted the 1926 Olmsted development map as an "open development" area or subdivision, pursuant to Section 280-A.4 of New York State Town Law. This law Chapter 5: Inventory 29 Fishers Island Strategic Plan: 2007-2017 requires the Planning Board to approve the creation of any new building lots with "the park". In sununary, the constraints to new development on the East End are largely self-imposed. The Olmsted Plan itself caps the ultimate amount of residential development that may occur. Some of that development potential has been eliminated by individual property owners who donated easements or land (in perpetuity) to the Ferguson Museum. In addition to donating land to the Ferguson Museum Land Trust, FIDCO has voluntarily held land with some development potential in reserve Public services and facilities The cost of utilities and othe~ services was noted as an issue of concern to year-round residents, even though the true cost of these services was borne to a greater degree by the seasonal population. (Discus.sod elsewhere, in the Demographic~ section of this chapter, the seasonal population is estimated to peak at around 3,000 people.) A brief synopsis of the utility network including its inherent constraints (and excess capacity), is useful for the purposes of identifying potential constraints to new development or re-developmant. The management of Town land as defined by the Fishers Island Ferry District is included here in recognition of the "public service aspect of that DisUlct's chatter. But the foxy service itself is discussed under the subheading Transportation, towards the end of this Chapter. Some of the information in this sub-section was excerpted from the Southold LWRP, Section J. Reach I0 and some from the Stakeholder interviews with the providea-s of these services. Chapter 7Append/x contains the Stakeholder questious and agency responses. 1. Water Supply The water supply, treatment, distribution and storage facilities for Fishers Island are ownod and operated by the Fishers Island Waterworks Company, an operating company jointly owned by FIDCO and the Fishers Island Utility Company. The Fishers Island water supply system was ~onstmctod in the early 1900s as part of the development of Fort Wright. Today it services more than 600 cnstomer~ by way of twenty- two miles of water mains, an equalization reservoir, a surface water ~reatment plant, a groundwater treatment facility, a well field and three surface water reservoi~ (Barlow Pond, Middle Farm Pond and Treasure Pond). A copy of the Water Supply Map is included as Map 2-9: Water Supp/y. Anyone located within five hundred feet (500') of the distribution system must tie into it for their potable water supply. Until the 1990s, Baflow Pond was the primary source of the island's drinking water, augmented with water from Middle Farm Pond, if needed, during peak summer usage. Water fiom Barlow Pond was treated in the I million gallon pot day surface water treatment plant that had been consimctod during the 1920s and located adjacent to Barlow Pond. This lreatment plant was withdrawn from servic~ in 1990 and cummtly is used as a back-up supply system. Today, the primary source of water is the Middle Farms well field Chapter 5: Inventory 3O Fishers Island Strategic Plan: 2007-2017 area. The water is treated at the ro:ently constructed groundwater treatment facihty n~ar the well field, befor~ being pumped directly into the transmission main. In 1994, the demand on the well field was 75,000 gallons per day average during the winter and 200,000 gallons per day during the summer (A.R. Lombardl Assues., Inc., 1994, p3-2). Although the land uses have changed considerably between 1939 and 1993, the trend in water consumption on the Island held steady. Pumpage has declined in recent years and some of this has beeo atlributed to the two Island golf courses switching to their own wells. Irrigation wells continue to be installed and be permitted provided they are not used for drinking purposes. . Untreated well water can be pumped to Middle Farm Pond to angment the surface supply If necessary. The 500,000 gallon Chocomont Reservoir maintains the system pressure and provides storage for tiro-fighting purposes. In order to expand the well capability of the water supply, a third well, geographically set apart from the existing two wells at Middle Farms, is now on-line and supplies robust and superior quality water. Aside fxom these wells, about 50 individual private wells are still in use on the Island. The impact of these wells on the aquifer is not known. As noted earlier, in the subsection Hnnning Framework, the Fishers Island Watex Works Company has had a watershed protection plan in place in conjunction with the Suffolk County Department of Health. This plan denotes primary and secondary protection areas. This protection plan allows the Company to impose restrictions on the addition of irrigation wells, and other heavy water users, such as swimming pools. Water supply does not appear to be a constraint to future growth due to the fact that pumping rates for nine months of the year are low. The Water Woflcs Company estimated that the system should be able to accommodate a fifty percent (50°,4) increase in usage. The water rates are charged according to type of customer: Class 1 (tree year-wund) and The Company provides Class 2 (seasonal), with the former rate being less than the latter. This two year-round employment positions There are no projected increases in staffing. company is the most indebted of the utility companies on the Island. 2. Wastewater facilities The only sewage treatment collection system on the island services about forty buildings within the l~rimetcr of Fort Wright. The system was built as part of the development of the fort. In 1986, a new community subsurface disposal system was installed to eliminate all discharge to surfaco waters, in 1987, it was estimated that if 100 gallons pix capita per day of sewage flow were generated, this system could acoommodate a maximum population of 200 in the Fort Wright area, a 30% growth increase from the service area's ctm'ant population. In addition to this main disposal system, thc Fishers Island School has its own system and there are seven individual septic systems in the Fort Wright area. (The Trust for Public Land, 1987, p32). In 1980, the population was 318 and in the 1990, it was 360. Since the Chapter 5: Inventory 31 Fishem Island Strategic Plan: 2007-2017 current year-round population on the Island has dropped below 300, it is reasonable to assume that the 1987 estimate is still valid and that considerable growth potential stdl exists within thc sc~ce area The remainder of thc island uses individual on-site subsurface sewage disposal systems which consist of either septic tankfleaching pool systems or cesspool/leaching pool systems. Since 1972, the Suffolk County Department of Heslth Services regulations have · Thc Island's well-drained required septic tank/leach pool systems for all new residences, related to individual on- soils, low density, and seasonal use have minimized problems site wastewater treatment systems. However, there are water quality problems in West Harbor and Hay Harbor and these could be caused, in part, by malfunctioning on-site wastewater ~xeatment systems on residential properties adjacent to these harbors. Research should be conducted on the location and condition of these systems to ascertain if they are a cause of the impaired water quality. Wastewater systen~ arc not likely to be a constraint for future development in thc Fort Wright area due to unused capacity of the existing sewage treatment system, as noted earlier. Also, the r~novation of Building ~98 into the Island Community Center will result in increased capacity because storm water runoff currently flowing into the sewer system from up to five catch basins will be diveaed out of the sewer system into dry wells. (Michael A. Home, P.E., Diversified Technology Consultants, Telephone conversation, August 2, 2007) Map 2-10 Sewer Network shows the location of this system. The map was created in 1970 and has not been updated. In the intering some of the buildings shown on the map have been demolished. This map's current format was too large to reproduce for pvq~oses of this report. Accordingly, a copy has been placed in the Ref~--.ace Binder. The information on this map should be updated through fie. Id work and entered into the Town's Geographic Information System database. 3. Electric Electricity is provided by the Fishers Island Electric Company. The trend in electric use has gone up nationally, and this is true for Fishers Island as well. Although no statistics are available, lifestyle changes involving greater use of electric dcwicos, is considered the biggest factor in the growth of elec~xicity demand on thc Island. New construction and renovations typically result in increased demand. The FIEC provides four basic classes of service: Class I (Year-round), Class 2 (Seasonal), Class 5 (Commercial) and Class ? (Non-seasonal, but not year.-round). Seasonal residents pay more than twice that of year-round residents and commercial users pay one half more than year-round residents. Electricity is delivered via two underwater cables from Noank, Ct. The prinuuy cable dates to 1989, the secondary cable is an older cable installed in 1963 and kept for standby Chapter 5: Inventory 32 Fishers Island Strategic Plan: 2007-2017 or back-up purposes. There is no on-Island generation of elec~icity, although the Company may look into that option in the future. At the same time, the Company is not of electrical supply. There are no service expansion plans considering alternative sources capable of servicing a fifty percent (50%) growth in the given that the current system is current on-island population. The Company employs four on-Island residents. It has no plans for expanding the work force. If this situation were to change, the Company would be interested in securing affordable housing for those employees. 4. Telephone The Fishers Island Telephone Company (FITC) has approximately 1,058 lines in service on the Island. There is no difference between seasonal and year-round call rates. The service is censtantly upgraded and expanded in response to demand and evolving technology. The~ are no known constraints to on-Islend growth in intra-island phone service. But, the long-distance or off-Islander provider, ATt, cam handle only eighty- seven (87) calls at a time. FITC also is investigating upgrading its ~t level of lntemet access. FITC employs five year-wund personnel. It has no plans to expand this number. If it did, it would assist in creating affordable housing for those employees. $. Emergency Management · As will be noted later, in the section dealing with Transporuaion, evacuation plans m the event of emergencies is a necessary part of ensuring the public health, safety and welfare. Emergencies can range from natural (severe storm or hurricane events) to man- made (e.g. breakdowns in the Millstone Nuclear Reactor in Connecticut). The extent Emergency Management Plan for the Island has been an ongoing source of concern, · · · ' n procedures in the event of a pat~deulady with regard to tamely notification and evacuatio nuclear mishap at the Millstone Nuclear Power Plant in Connecticut. Pages I -3 of the Fishers Island Telephone Directory contain the key elements of the emergency alert and evacuation plan. A copy also has been placed in the Reference binder. 6. Other The Department of Public Works is responsible for maintenance of Town-owned buildings, recreational facilities and public park lands. Thc DPW also assists in the solicitation of grants to implement the Local Waterfront Revitalization Program and other projects such as the Fitness Trail. Zo~!ni As noted earlier, in Development Patterns & Constraints, and as can be se~ from Map 2:$: Zoning 2006, the bulk of Fishers Island is zoned for residential use. The entire eastern Chapter 5: Inventory 33 Fishers Island Strategic Plan: 2007-2017 part of the Island. is zoned R-120 (120,000 square feet per lot/dwelling) winch is equivalent to thr~ acre zomng. 1. Zoning Pattern~ Thc westin part of the lslend contains a much mor~ divees~ zoning parterre. Most of thc r~idential lend is zoned R-80 (80,000 square fe~ pex lot/dwelling). Thr~ parcels of land are zoned R. 120. One is the site of the Hay Ha~cor Club and Golf Cousso. The other encompasses 9.5 ac~s and is the site of the Fishers Island Garbage and Refuse District. A small adjac~t parcel coontains a two-family residence. All the business zoning on the Island is contained on less Ihen sixty acres of land within the West End, and it is found in six different areas on the Bland: General Business: west of Silver ~ Cove Hernl~t Business: at the intersection of West and Equestrien avanues Limited Business: at the intersection of Crescent and Fox avenues General Business: Montauk Avenue Ganeral Business: Central Avenue Marine II: Central Avenue General Business: eastern terminus of The Gloaming The location of the business districts reflects the location of pre-existing business operations that came into existence during a period of higher population and greater levels of economic activity. Each of the districts has its own distin~ive quality mad a primary service or set of services that it offers. For instance, the post office is the centarpiece of .the West and Equ~rian business center. With a f~w exceptions, each district contains potential for redevelopment and new growth, although some more so than others. Maps 2-15 A and 2-15 B show the location of busineas-zon~xl properties and structures. The following table notes these properties by tax map numbex, zoning, acreage and use (as determined by the Tax Assessor's Office). Table: Business zoned properties on Fishers Island PKTKEY ZONING SPLITCAT ACREAGE Zacres USE* 0,49 0 210 6.-8-5 B 0.99 0 210 9.-5-3 B 0.15 0 210 9..5~6 B 0.04 0 210 9.-5-7 B 0.09 0 210 9.-5-8 B 0.52 0 210 9.-5-9 B 0.33 0 210 10.-7-3 B 0.21 0 210 10.-9-16 B 0.26 0 210 10.-9-17 B 10.-1-5 B R-40 0.65 0.29 210 0.002 0 310 10.-1-7 0.46 0 311 12.-1-7.1 B 6.-8-3.2 B R-40 0.74 0.04 31 Chapter 5: Inventory 34 Fishers Island Strategic Plan: 2007o2017 10.-1-6 B R.-40 IAI 0.22 311 6.-8-6 B R-40 0.81 0.35 311 10.-10-1 B 0.38 0 312 6..4-11 B 0.65 0 313 10.-1-8.1 B 1.2 0 432 10.-'7-2.4 B R-40 0.82 0.48 432 12.-1-4.4 B 4.68 0 440 12.-1-3 B 0.85 0 449 12.-1-19 B 0.4 0 449 10.-9-21.1 B 0.68 0 480 12.-1-2 B 2.18 0 480 12.-1-5,1 B 1.25 0 480 9.-5-4 B 0.18 0 483 9.-5-5 B 0.11 0 483 12.-I-17.1 B 6.4 0 612 12.-1-4.3 B 0.8 0 661 6.-8-7 B 0.34 0 870 9.-4-8.2 I-H5 0.34 0 210 9.-4-2 HB R-80 1.13 0.53 210 9.-2-5 lib 0.48 0 481 9.-4-3 HI5 0.06 0 481 9.-4-5 lib 0.07 0 481 9.-4-11.5 I'IB 021 0 483 9.-44 I-IB 0.15 0 484 9.-4.8.5 FiB 0.46 0 484 6.-7-1 LB 0.35 0 210 6.-7-3 LB 0.09 0 210 6.-7-4 LB 0.2 0 210 6.-2-18 LB R-80 0.53 0.17 210 6.-7-2 LB 0.08 0 311 6.-7-5 LB 0.5 0 311 6.-2-17.2 LB R-80 0.5 0.12 311 6.-7-6 LB 2.02 0 330 6.-6-20.6 LB 0.78 0 449 6.-6-21 LB 1.93 0 449 6,-7-13 LB R-go 3.31 1.33 449 6.-2-21.1 LB 0.3 0 481 6.-2-22.5 LB 0.38 0 481 6.-7-14 LB 0.5 0 484 6.-6-11 LB 1.02 0 534 9.-8-3.4 MII 0.43 0 210 9.-8-7 MIl 0.2 0 312 12.-1-10 MIl B R-120 5.1 0 448 6.-2-22.2 R..40 LB 0.26 0.0g 210 6.-2-23 R-40 LB 1.19 0.41 210 9.-5-11.1 R-40 B 2.46 0.7 418 10.-7-2.5 R-40 B 0.4 0.17 692 9...4-6 R-gO HB 1.69 0.2 210 6.-2-17.1 R-go LB 1.65 0.23 311 9.-8-2 R-go MH 3.22 0.89 441 10.-1-9 R-80 Mil 0.79 0.37 570 Chapter $: Inventory 35 Fishers Island Strategic Plan: 2007-2017 Total acreage Total minus non-business acreage 60.552 1.91 58.54 * Note: The use codes describe the predominate use of the site: 210: one fenu'ly, year round residence 310: vacant residential land 311: vacant residential land 312: residential land with small non-livabla improvement 313: ? 330: vacant commercial land 418: inn 432: service and gas stations 440; storage, wal~ous~ and dis~bufion facility 448: pkx, 449: cth~r typ~ of storage, warehou~ and aism~oution 480: multi-use ' 481' ~w ~ buildiag with first floor comm~ia[ and second floor residen~al 483: cenv~an~ residence with papal 484: on~ stagy c~ram~mial 534: seeial 570: r~xestion 612: sc~l 661: prot~:tion s~n~ic~s (e.g. military, polic~, Coast Guard) 692: road 870: electrical facility Although the $outhold Zoning Code containa additional business district~, no Island l~ol~ties are zone Resot~ Residential, Residential Office, Light h~dus~'ial, Light Industrial Office or Marine Business I. However, not all of the Island's commercial activity takes pla~ on laad zened for busing. Other venues of business activity include: · legal home occupations, . · · pre.existing non-conformingbusinesses °perating °n residentially'z°nad property' · Town land, some of it zoned B, General Business, but most of it zoned R-120, is leased for commercial activity under the auspices of the Fishers Island Ferry District Act. 2, Permitt~dUses in Business Districts A simplified list of uses permitted by the existing business districts on the Island are noted below: Limited Basiness (LB) District The purpose of the Limited Business (LB) Distriot is to provide an opportunity to accommodate limited business activity along highway corridors, but in areas outside the homier c~ltral business areas, that is cousistellt with the raral, and historic character of · · ' of design featur~ so that surrounding areas and uses. Emphasis vail be placed on reva~w existing and futur~ uses wail not detract from surrounding uses The additional uses must ganera~ low amounts of traffic and be designed to protect the residential and rural character of the area. Chapter 5: Inventory 36 Fishers Island Strategic Plan: 2007-2017 Minimum Lot Area: 40,000 square feet p~rmitted Uses Single-family Residential Retail businesses * Custom workshops, machine shops Wholesale/retail sales, accessory storage and display of garden materials, plants · Libraries, museums Professional & business offices Funeral homes l~staurants, exc~,'pt drive-in and formula R~pai~ shops, e.~q~nter and other Irad~ shops, landscaping and sel~ice businesses Hotels Retail supplemental to service business Wineries B~d & Bre,~fasts Private warehousing By Special Excention Aceessoty apartment Contractor's yards Telephonc cxchangc An galleries, aris and crafts shops Hamlet Business (HR) District The purpose of the I-Iamlct Business (liB) District is to provide for business development in the hamlet central business aw, as, including ~ office and service uses, public and semipublic uses, as well as hotel and motel and multifamily residential development that will support and enhance thc retail development and provide a focus for the hamlet area. Minimum Lot Area: 10,000 square feet permitted Uses Single-family dwelling, detached and owner occupied Two-family dwelling, own~ occupied Town and district stmotures and uses Boardinghous=~ and tourist homes Business, professional and government offices Banks and financial ~ons Retail stores up to 6,000 square feet gross floor a~ea Restaurants, excluding formula and take-out Bakeshop for on-premises mail sale Personal service shops An, antique and auction galleries Artists and craftsmen workshops Auditorium and meeting halls Repair shops Custom workshops Bus station Chapter 5: Inventory 37 Fishers Island Strategic Plan: 2007-2017 Library, museum Laundromat Bed & Brcekfast Multiple dwellings Grocery store up to 25,000 square feet Motcl/Hotcl on threc acres minimum Boarding and tourists homes Fraternal and social institutional offices, meeting halls Drinking establishments Public garages Funeral homes Fica markets Take-out & formula restaurants Aceessor~ Uses Accessory apartment General Business (B) District The purpose of the General Business (B) District is to provide for retail and wholesale commctcial development and limited office and industrial development outside of the hamlet central business areas, generally along major highways. It is designed to accommodate uses that benefit from large numbers of motorists, that need fairly large parcels of land and that may involve characteristics such as heavy trucking and noise. Minimum Lot Area: 30,000 square feet Town and district structures and uses Business, professional and government offices Banks and financial institutions Retail stores up to 8,000 square feet gross floor area Restaurants, excluding formula and take-out Bakeshop for on-premises retail sale Personal service shops Art, antique and auction galleries A~tists and craftsmen workshops Auditorium and meeting halls Repair shops Custom workshops Bus station Library, museum Laundromat Bed & Breakfast Multiple dwellings ~ stor~ up to 25,000 square feet Wholesale, privaW,/public warehousing, storage, excluding coal, coke, fuel oil, Chapter $: In~emory ~8 j~mk Fishers Island Strategic Plan: 2007-2017 Building, electrical, plumbing, contractor's yards Cold storage plants, baking and other food processing and packaging plants Wholesale or mt,ail sale and accessory storage and display of garden materials, supplies and plants, including nurst~ operations Wholesale/retail beverage distribution Funcral home Bus station Telephone exchange Winery One and two family dwellings Hotel or motel on three ac~s or more Bed & Breakfasts Tourist camps Research, Design or Development Laboratories in~lualng but not limited to tennis clubs, Fully enclosed commercial recreation facilities, dancc halls, billiard parlors, skating rinks, paddle tennis, handball and sq,~,~h facilities, bowling alleys, health spas and clubs and uses normal~y acc~sory and incidental to commercial recreation, such as locker rooms, eating and drinking facilities and retail sale of goods associamd with the pa~icular activity. Laundry or dry-cleading plants Fraternal or social institutional offices or meeting halls (nonprofit). Take-out restaurants Drinking establislunents Automobile laundries Public garages, gas stations & sales Partial service gasoline stations Private transportation service including garage and maintenance Formula food restaurants Flea markets Retail stores in excess of 8,000 square feet Accessory Uses Accessory apartments Outdoor storage Marlae I (MI) District Thc purpose of the Marine I (MI) District is to provide a waterfront location for a limited rouge of water-dependunt and watcr-rclated uses, which am those uses which located benefit from direct access to or location in marine or tidal waters but which are within the Town's tidal creeks or natural coves. Permitted Uses . . On, family detached dwelling per single and separate lot of record m existence as of the date of adoption of this article. Marinas for the docking, mooting and accommodation of moreational or commercial boats, including the sale of fuel and oil primarily for the use of boats accommodated in such mminas. Boat docks, slips, piers or wharves for pleasure or f'~shing trips or for vessels engaged in fishing or shell fishing. Chapter 5: Inventory 39 Fishers Island Strategic Plan: 2007-2017 · '" r servicing boats, wlacccssory · · fin aifin, renting, semUg o . · for building, sro g, .rep -g'- ~,,~*s dockside facilities for d~sp~Smg of Boatyards .... .~..,, e~usnment or p~o,'"'~, d lsun facilities to serve office for the sate ot m~'~ '~ fuel and, where pump-out stationS are p overnight patrons. . ....a sales and display, yacht brokers and mafiu~ insurance Boat and marine ang~ne brokers. oWn and Dislrict buildi~..g.s. . -.,-:-- nu~lies if accessory to marina/chandlery · c ' si · urtS, racquetball ~,-- '- accessory uses e.g. pools, t~ms co Beach/yacht/boat cmos Maricultm~/aquaculture operations & research and development evelo ~t . t u.. . .- ,,~ p~.~ noted that Fishers Island contained approxin~elY naoro,- ............ buildin~ lots could be 1,000 building lots. The 1994 Plan determined that an additional 77 . · created under thc zoning regulations. Island-wida, there are approximately 500 residanUal in ~Xlstance with seva'al planned for constmclion in the next few years. housing units now ' Of thc build-able lots on the East End, 214 remained unimproved. Build-able and Sub.dividable Land shows denotes land that may be built on or 8ena-ated nsin8 thc Town's Map 2-12 . · This map was sub-dividable pursuant to the further subdivided for building purposes, further · .. · owcver, this map is not an accurate database to identify land deemed build-able and/or to provide an estimate of its residential growth potential which differs from the rdlcetion of the developm~ was asked The estimate is based on FIDCO's current policies and observed and was provided by William Ridgway to the Stakeholders in September 2006. See Town's GIS estimate. Chapter 7 Appendix for coPY of full text. Of the 398 lots identified on the Olmsted Plan, 176 have residences. Some of thc residences · - -- adioining lot which is within the caretakers' cotlages on tr~¢ same or ~ .J arc accompanied by Some estates encompass more than one lot. same ownership as the main houso. plan that are still vacant (55% of thc 398), thirty-one Of the 222 lots within thc Ohnsted (or 22%) of these vacant lots are parts (31} are not considered build able. Fifbj-e/ght (58) compound, thus arc not likely .to of estates and may contain accessory structures such as caretakers' cottages, pools, gardens, These lots are considered an integral part of a larger remain in FIDCO's ownership. etc. ' of these lots have factors that auger against their be broken-off from thc estate. Of the remaining 133 lots, 27·· Thc rest, 106, arc in private hands. Some development. But, clearly some of these lots contain some potantial for future development on the East End. affected by the ToWn'S The isan~ of whether any lots within the Olmated Plan would b~ legal resca~..ch FIDCO itself doe~ not have a formal policy on the merg~ law was reviewed briefly and determined to be a topic requiting outside the scope of this report. 4O Chapter 5: ln~enwry Fishers Island Strategic Plan: 2007-2017 · · ted Plan, but it has a policy of encouraging the or unmerging of lo?s ~fl~ne the Oim$. . -. -~ ,~-build able lots in keeping ineservation of land, enu m consolidation et smaller uno with the Island's goal of minimizing future seasonal population growth. land with wells, water Land set aside for the ptuposes of environmental protection inolUd~hat encompassed within supply ponds, wetlands, etc. Other land held by FIDCO includes the Fishers Island Country Club including the Links (golf course). Although not defined as for beaches, tennis courts, clubhouse, shooting club, a "loC', this land, along with that used Park/East End/experience, thus not l~ely to be etc. is considered integral to the Olmsted sold for residential development. · · a source of income to cover property taxes and .... .,~,a i~iDCO hes sold building lots as . __ ~:,...~ ~,~ been balanced for several tn u~ ~,..-. ---- .~,-- r,..,,,,,ration's income;expema,,~- '"" land. other expenditules, iu~ years and it currently maintains a policy of not selling any of its undeveloped ~sourcos: Town of Southold, LWRP, 2004 and Kathy parsons, President, FIDCO, verbal communication, Stakeholder meeting of September 2006.) A review of building pennits issued between 1994 and 2006 revealed that a total of 39 permits had been issued for new dwellings and ~ for demolition. The location and status of the new construction (whether started and completed or not) is not know~ · 2007). But the rate., slightly more than three new dwellings per year, remains slightly lower than the three (Source: John Seponoski, Technical Coordinator II, E-Mail, Febnu~ 7, to six per year that was noted in the years prior to 1994. {Fishers Island Gmw~ Plan Committee, 1994, PP 3, 26). poi~ntial is not limited to residential growth. The Fort Wright The Island's development that areripe for redevelopment. Additionally, area includes.abandoned military buildings could be tedeveloped. As noted some of the bnsinass-zoned areas contain properties thatimpediments to earlier, in Development Constraints, there are few utility-based expanded commercial growth. · for future development. The N. avy pro~p~Y~ sZ°~ Finally, the 66.9 acre U.S. blavy property and the 44.6 acre Hay Harbor Golf Club. are the tw largest rent,al sources of lan? . __., :~ divided would y~eld fewer .. O __ .po --- -"m""' m~,~ .- sub there is a R-400 (equivalent to ten a~ ~,~ ,.~ to be declared surplus, residential building lots. If the Navy property wer~ about the · h enables the ToWn to engage in a dialogue ii]ed disposal process..which_., ..... ,a ,o fo~ the land to b~ ceded for public SP~__ , _. ,,.,~4 ~t~m ~iUD. '1 lle IoWn ~.~u~,~ ask property s use ,~,~ .wne . private hands and its R-120 (three a~re) zoning purposes. The Hay Harbor pwporty is in could result in a potential yield of i]fleen or fewer homes. and Preservation . - .... steels encompassing more than 830 acres, Luna_ r_reser,va__u~ ,.,,~ hundrea ann ~our par~ ...... *. nearly 26% of the As of Decemwr ~_,,~_,_~'-~ ~--..o been ~reserved from aeve~opm~,,,. - ofFisherslslund's 3,2oo acres'"'"'"~" the Island has bcen achieved through total. The bulk of thc land preservation on donations of land and conservation easements to the Henry R. Ferguson Museum by Chapter 5: InvenWry 41 Fishers Island Strategic Plan: 2007-2017 private property owners and FIDCO. The Town is the third largest holder of pres~wed land. - - Ma~ 2 I$ protected · ate , is included here a~ ~ - b the A map showing all pro~_t~o~..~l~. ,d~s~blLcg ~u~ro~&ng Elizabeda Airfield is owned o~ this Lands. It should be noxea ma~ .... ~otoeted, yet, in actuality, significant pat~ Town of Southold and i~ shown aa · land are regularly leased for ua by private businesses for cornmeal purposes. currently is in contract to purchase an additional 2.4 acres of land locat~ on The Town md pre~'vafion Program Plan (CPPP) fund, also Silver Eel Cove using the Corem ty are shown on the CPPP aa the two-parccat transfer tsx' Only th© properties shown on the CPPP Map known ~haaed using CPPP funds. Sin all expenditures of CPPP funds mua. t Map, which is included h~re as Map 12-14, e~ be used for the acquisition of land, may be pure. -~,-'~ ~.~efit. the funds may . - · ..... , be used for historic demonstrate clcar.puou~ ~"L~-.~.--,*~ent fi~hts, These tunas atto a,.,~.~ have been including the purctmsc o~ ~w,v~, ...... properties that preservation and environmental remediation, but only on acquired using CPPP funds. Thc Town Board's policy has been to concentrate on thc acquisition of farmland and enviromncntallY sensitive open space. Land preserved from development Table: # parcels Acreage Owner 46 372.21 Fishers Island Der Corp, 46 273.54 Henry L Ferguson Museum Inc, $ 184.8 Town of Southold, 104 830.5:l Total As noted An additional 67.0? acres of land is still owned by thc U. S. government- it surplus · . --- ,-: ,~,~, Town br public purposes. earlier, it is not protceted, but in the event thc federal $ovaTunent declares propartY, the Islanders could ask that this land ve ceo~ ~v ,-* ~ d~tailed body of information about Fishers Island's vital and social There is a tatny concerns about the size of thc year.round population. statistics, reflecting the Islanders' Thc economic and social ramrficauons of population stzc m a very small conunumty such aa Fishers Island are felt quickly. A brief roh~e~ of the available data is presented here, excerpted from various other reports, which have been included by reference in this 1. Census Data and Anal~is 1790. As a rule, Census data has been collected by the United States government since island was their permanent and primary census data counts people who stated that the nnel residing on the island aa part of · · - d include military lmso .... . f the Island grew residence, but it also w_oui_d_i _~.^,,, m vest-round popul.a.U?u .o. ....,~,,,i military tile · ' e '' ~. · .,,Itltarv 'ce. Recotxls ~tu" . ,~n o ¢ioure which ilia llot their .... ~ senn '--atel~ 700 m ~.~v, .., ~o--- 389 in 1900 to al)proxlma''' ~ 42 Chapter 5: Inventory Fishers Island Strategic Plan: 2007-2017 personnel, but does include the lighthouse keepers on the surrounding islands.(Souree: Henry L. Ferguson Museum, Exhibit, September 2007) The next Table shows Census data from 1940 through 2005. There are no data available for 1950. Table: Population Change: 1940 - 2005 1940 - 1980 Historical Pooulation of Long Island Communitie8 1790-1980: D~ennial Census Data Long Island Regional Planning Board, Hauppauge, NY, August 1982 1990 School Dislrict Special Tabulaffnn, New York Stat~ Department of Education 2000 Table DP-L Profile of Gea'.cml Demographic Characteristics: 2000. U.S. Census Bureau 2005 Population Survey, Long Island Pov~r Authority, 2005 It should be noted here that some stakeholders voiced concerns about the accuracy of thc 2000 U.S. Census data due to shoddy or incomplete data collection methods. The consensus opinion is that the census data undercounted the actual numbers of people on the island. Since 1997, a separate unofficial count has been maintained. This count is based on local knowledge of who is considered to be living on the island as a permanent or year-round resident at the time of the count. A comparison of thc unofficial count with the U.S. Census count reveals, at most, a difference of twenty people in thc year 2000, with thc unofficial count being lower than thc U.S. Census data. Since there will always be a fluctuation in thc population duc to ongoing deaths, births and migration patterns, both in and out, all population data reflects a snapshot of the moment in which it was collected. The two different sets of unofficial statistics kept for the years 2001-2003 differ from thc 2000 count by minus ten to plus twenty - a difference of thirty people. For the purposes Chapter 5: Inventory 43 Fishers Island Strategic Plan: 2007-2017 of this study, it is assumed that the short-term trend is indeterminate. By contrast, the long term trend on Fishers Island is towards continuing decline in population. As seen in the Census d~t~ above, the 2000 population represents a 49.5 percent decline since 1940. The slight up tick estimated to have occurred since 2000 may or may not be significant. By con~rast, the seasonal population seems to have increased steadily, although the increase is a matter of some debate. Various estimates have been put forth, two of which are mentioned here. The Suffolk County Department of Planning uses a standard multiplier for estimating summer seasonal population in resort areas. However, those estimates seemed to undercount the various estimates provided by the Stakeholders, FIDCO and the Utility Company. ARer reviewing the data, the County Planning Depmhaent staff subsequently revisited its assumptions as they pertained to Fishers Island. The new estimate is five (5) additional guest persons per year-round housing unit. Using this factor, the total additional seasonal population is estimated to be 2,338 persons. (Source: Peter K. Lambert, Principal Planner, Suffolk County Dep~'hl~vat of Planning, April 2006) The seasonal population is estimated by the utility company to peak around 3,000. (Robert Wall, April 3, 2006 letter to the New York State Public Service Commission). A copy of this letter is in the Reference Binder. An examination of the population and housing statistics for Fishers Island provides additional insight into the nature of the summer resort community. In 1987, of 464 residential units in existence, 89% were single family dwellings; an estimated 73% of which were used seasonally. The year-round population was 285 people; but during the summer months, between the months of May and October, the summer population was estimated to reach about 2,000. House guests and visitors increased this population dramatically, sometimes doubling this seasonal population. (The Trust for Public Land, 1987, p2). (As quoted in LWRP, Section J. Reach 10, p 2.) The continuing concern about the size of the year-round population can be traced as far back as the 1988 Growth Plan and in the earlier Trust for Public Laud reports, particularly aRer the year-round population dropped by more than 31% between the years 1970 and 1980. The median age of Fish~rs Island's year round population, according to 2000 U.S. Census data, is 43 years. The male/female ratio is nearly even (51.2/48.8). The average household size is 2.09 persons per household, with family size higher, 2.72. Nearly 28% of tho population is aged 55 years or more. The bulk of the Island's population, 36.8 %, is between 34 and 54 ye.m~ of age, and absent a significant out-migration of ~ees; this points to the potential for the average age of the Island population to continue to inch upward unless there is an infusion of younger people. Chapter 5: Inventory Fishers Island Strategic Plan: 2007-2017 2. School Population The school population has been studied extensively by the Fishers Island School Board in its drai~ Long Range Planning document. The next table shows the school anrollmant relative to the size of the yenr-round population since 1940. The table includes "magnet" or off-Island students, which typically compose about a third of the student body. (These numbers do not include Island students (K-12) who attend schools off-island.) The decline in the on-island school population reflects that of the year-round population. Census Year-round School Island Year population e~rollment students 1940 572 151 151 195O NA 67 67 1960 508 100 100 1970 462 104 104 1980 318 47 47 1990 360 68 52 2000 289 67 47 2005 293 65 43 20O7 75 50 (Sources: U.S. Census and Fishers Island School) Off-island students 16 2O 22 25 School Services The school has a strong track record scholastically. (100% Regents Diploma rate, a 10(PA post-secondary placemant rate and a zero drop-out rate.) The school attempts to counter the Island's insularity through various outreach programs, including the Magnet program, all of which arc described in Superintendent Schultz's notes, a copy of which is included in Chapter 7,4ppendix While the geographic isolation of the Island, the technological ban~iers to better use of the luternet and the small student body pose difficult limitations on the efforts of school personncl to expand and enrich cducational opportunities for thc students, a significant degree of community support and assistance is bcin~ chenncled towards overcoming these limitations. The existing school building was described as being "comfortable" for 70 to 85 students. If enrolimant increases, additional space will be needed. The conve~'sion of the bowling alley building (after the alleys are moved to Building//98) will free up space next to the school building. The school owns additional l~nd which would be available for further expansion. The school is a significant employer:, with nineteen (19) full time and four (4) part time staff for a total of twanty-three (23) people, of which twelve (12) are Island residents (tm full time and 2 part time). The school also owns and maintains seven affordable housing units within walking distance. Chapter 5: Inventory 45 Fishers Island Strategic Plan: 2007-2017 Social Services The purpose of this section is to describe thc types of human services provided to residents of Fishers Island. Most, but not all, of the services are provided though existing Town and County agencies. These services may supplement or interface with the efforts of other quasi-public, private, and non-profit entities, including churches and community organizations based on the Island. 1. Senior Services } Medicare Part D phone and fax-based counseling has been provided since 2005 by request of the Town's Hurmm Resources Department } The Senior Lunch program is supported by churches and community groups on the Island. (It is not funded by the Federal Older American's Act Nutrition Programs, the Town or the County). } Two senior aide positions were funded by the Town through Suffolk County Office for Aging. o The aides assisted senioea to live independently by assisting with transportation to Connecticut for medical appointments, food shopping, and other home-based assistance. o This program provided funds suffieiant for up to twelve hours per week per aide. o This service was fliaded and used in 2005. o It was funded but not used during 2006. Accordingly it has not been funded for 2007. o Resumption of thin servige ill the fliture can be arranged by contacting Karon McLaugldin, Director, Human Resources Depamnent, Southold_. 2. Proposed Senior Services ~ For several years, Suffolk County's Office for the Aging has contracted with thc Island Hca]th Project to provide Personai Emergency Response Systcra (PERS) services to the frail elderly on Fishers Island. The Island Health Project subcontracts with a provider for this servico. ~ Thc Southold Human Resource Center is seeking funding to purchase a vehicle to provide essential off-island transportation to doctors and treatment centers in Connecticut. ~ For the last five years, Suffolk County has advocated for a reciprocal agreement for the provision of Certified Home Health Care covered under Medicare between Connecticut and New York. Thus far, no agreement has been reached. ~' (Source: Town of Southold, Human Resources Depa~l~ent, October 2006 and January 2007) 3. Youlh Bureau }~ This Bureau was formed in 2007. No additional information was available. Chapter 5: Inventory 46 Fishers Island Strategic Plan: 2007-20l 7 Housin~ Thc 2000 U.S. Census data, (included in the Reference Binder), describes Fishers Island's housing stock as numbering 625 units, of which 138 (22 %) are occupied and the rest (78%) either vacant or for seasonal use. The majority (88.6%) of this stock is single- family de~w. hed housing. Attached or multiple units (with up to nine units in a structure) comprise the rest of the housing stock. Sixty-three percent (392) of Fishers Island's housing stock predate~ 1939. Slightly more than 56% of Fishe~ Island's housing stock is owner occupied. The rest is rental housing. It is interesting to note that in The Trust for Public Land's 1987 report, of tho 464 residential units in existence, 89% were singlo family dwellings, of which 73% were estimated to be used seasonally. The year round population was estimated to be 285 people; the seasonal about 2,000 or more. (LWRP, Section II. J. Reach 10-p2.) Today, twenty years later, the year-round population has climbed a bit and the seasonal peak has been estimated by the Fishers Island Utility Company to be closer to 3,000. The Stakeholders put together a 2006 inventory of housing occupied by the year-round population, and it can be found in thc ReL-~nmce Binder. This inventory includes one hundred fourteen (114) households/families, of which sixty-one (61) or 53% own their place of residence. This inventory's estimate is lower ~ but still very close to the 2000 U.S. Census count, noted earlier. This estimate also is in line with that identified in another housing study prepared for the Fishers Island School. (Report to the Fishers Island School Board, November 25, 2002, Preliminary Housing Report, Cynthia Riley, pages 3-6; the noted pages are included in the Reference Binder.) Thc Stakeholders recounted from personal knowledge the homes that had been sold on the West End in recent years by ycur-round residents to seasonal people. They noted that them has not been a corresponding gain in n~v year-round cons~action on the West End, leading to the concern that the pereuntage of the year-round population being forced to rent may be increasing A ~view of building permits issued between 1994 and 2006 revealed that a total of 39 permits were issued for new dwellings and three were issued for demolition. However, this data did not identify the location and status of the new consh~ction (whether started and completed or not) is not known. (Sooxcc: Southoid Town Building Department data as interl~ed by John Sq~-noski, Technical Coordinator R, February 7, 2007). 1. Affordable Housing Overview There is considerable concern about the loss of year-round housing stock to the seasonal market. This trend is related not only to the decline in the yeer-round population, bm also to the inability of some Island residents to compete in the housing market against off- Island people with higher incomes. This situation mirrors the housing problem on the Mainland, where year-round residents can't compete with up-Islanders and Manhattan. Res for housing because of the high demand for seasonal homes and the significant income disparities. Chapter 5: Inventory 47 Fishers Island Strategic Plan: 2007-2017 One indicator of the cost of housing on the Island relative to income is the pcmentage of income that is spent on the monthly costs of that housing. According to thc 2000 U.S. Census, more than 27% of the Island's households owning their home spent 35% or more of their income on monthly costs of ownership. The percentages for renters are similar. More than 11% of renters were spending 35% or more of household income on rent, and more than 13% were spending between 30 and 34.9 % of their income on rent. The rule of thumb is that no more than one-third of a household's income should be spent on shelter. In 2000, the percentage of owners and renters paying 30% or more of their monthly income for shelter was equivalent to about 25% of thc year-round occupied units. In actual numbers, this translates into 33 out of 135 households. The Island has twenty-one affordable housing units, ten of which are owned and eleven of which arc rented. Fourteen of these units are single-family residences, the mst are apartments within two multi.family structures. Twelve of the single-family residences are located on land owned by Walsh Park Benevolent Corporation, WPBC. The other units are located on land owned by the Fishers Island School District and the Utility Company. Altogether these twenty-one units account for about 3% of the Island's total housing stock, (assuming the 2000 US Census estimate of 625 units) and about 15% of the year-round occupied units (which was assumed to be 138). All of the Island's affordable housing is managed by the Welsh Park Benevolent Corporation, WPBC, which sct'cens applicants according to a set of criteria which include: a demonstrated need for housing assistance, recommendations from employers and others, commitment to working on the Island and a record of service to the In response to thc need, the WPBC is experimenting with incentives such as establishing an inventory of rental housing that would be leased to people wishing to sample year- round life on Fishers Island in the hopes of attracting them to stay permanently. WPBC also is engaged in discussions with the Fishers Island School District about creating additional affordable housing on district land. It continues to seek out land owners interested in glfl'ing either their property or their homes to WPBC for a combination of money and tax deductions in order to expand the pool of affordable housing options. When the Stakeholders asked the WPBC the following question "What are the...supply and demand projections (for affordable housing) for the next 20 years, and what are thc underlying assumptions for those projections?" it received this answer: tFalsh Park's approach to supply and demand is based on 19 years of experience that supports our contention that we are unlikely ever to meet the full demand potential and that we must continue to add units. Over this time, we have consistently been able to maintain full occupancy, even as we almost doubled the number of units. In addition, during this period, the cost of non-Welsh Park housing is lil~ly up two to three fold, which we believe is faster than the growth of average island income growth. Further, assuming that the total year round populatton is 275 people and that an average of four people lives in each dwelling, which would imply that 80 houses are needed to sustain today's level in the future, ff~hile this is a guesstimate, it must be urgently noted that virtually any of the houses owned by year round families, when sold, will not be bought by year round families, as the year round seller has and will continue maximizing their Chapter 5: Inventory 48 Fishers Island Strategic Plan: 2007-2017 sale proceeds via selling to seasonal buyers. Finally, while the island desires more year round families, the factors mentioned make it most unlikely that any current or future year round families can afford to pay prices, effective set by the demand of seasonal residents. (Source: Statement, Walsh Park Benevolent Corporation, September 2006) It should be noted that this projection, of an additional sixty residences over the current twenty-one, is based on the Island population remaining stable at 275 people. It points towards a year-round working class population with little or no opportunity of obtaining equity in their place of residence. 2. Housing Services The Town offers different types of direet housing assistance; subsidies and home improvement grants. These are described below, briefly. a) Seetion 8 Section 8 is a federal housing voucher program whereby financial subsidies are provided to eligible applicants to help pay for rental housing. The funds are disbursed at the local level. This housing program tnmbles eligible applicants to pay higher rents than they normally would be able to pay relative to their income. · Application may be made through the North Fork Housing Alliance by phone or in person. · Eligible applicants are given vouchers as they become available. Being placed on the list does not guarantee receipt of a voucher. But, the number of eligible applicants on a list influences the number of vonohers the Town receives. · 1996 was the last year during which there was a Fishers Island r~ipient of a Section 8 voucher. · Eligibility requirements and application guidelines are included in the Reference Binder (Town of $ouihold Affordable Housing Programs - Policies and Procedures, July 2006 and North Fork Housing Alliance, Section 8 Application and Income Guidelines.) (Source: Telephone Conversations, January 31, 2007 and February 15, 2007 with Tanya Palmoro, En~:utive Director, NoRh Fork Housing Alliance.) Home Imm'ovement · Financial assistance is provided for home repairs and upgrading, e.g. roofing, additions, general repairs, kitchen upgrades. · Application may be made through the Norfl~ Fork Housing Alliance by phone or in person. · If loan is granted to property owner, an indefinite lien can be placed on the property in lieu of repayment. * If loan is granted to a landlord, a tea-year lien can be placed on the propeay for half the value of the loan. (Source: Telephone Conversations, January 31, 2007 and February 15, 2007 w/th Tanya Palmore, Executive Director, North Fork Housing Alliance.) Chapter 5: Inventory 49 Fishers Island Strategic Plan: 2007-2017 Since 2004, the Town of Southold has required thc creation of affordable housing with each new subdivision plat approved by the Plann'mg Board. At least ten percent and up to twenty five p~rc~nt of a standard, full yield subdivision must be set aside as permanent affordable housing. Density bonuses are provided for the consltuction of 25% requiremeat. c) Southold Town Moderatc Housing Program The Town's moderate housing program is designed to create permanent affordable housing. The program is designed to give Town residents with local jobs first priority. The program guidclines are: Residency Requirements/Priority Populatioa: 1. Income eligible in&'vidual$ or families who haw lived and worked in the Town of Southold for a period of at least one (1) yem' prior to the application submissiou. 2. Income eligible individuals or families who have lived in the Town of Southold for a l~riod of at least one (l) year prior to application submission. 3. Income eligible in&'viduals or families who have worked in the Town of $outhold for a period of at least one (1) year prior to application submission. 4. Income eligible individuals or ~amiliea who previously lived in the Town of Southold for a minlnlu~l of one (1) year and wish to return. Asset Limitations: 1. You may not own prope~ (including vacant land or a mobile home secured to thc ground) end, 2. Your ~tal I~t worth gannot b~ gl'~t~r than 25% of thc purchase price of thc home (if applicable). 3. To~al nm wo~h of applicants shnll iaclud~ all liquid a.~ts less debt. No~: Liquid assets shall not include sheltered asseis, Imsts, Individual Rethemen! Accounls, 401K's and other fexierally recognized tax-deferred vehicles. Provosed Housing S~n'vicea: Suffolk County's Office for Economic Development and Workfor~ Homing (SC-OEDWH) is seeking to assist Walsh Park Benevolent Corporation (WPBC) with funding for future initiatives o Discussions were held with Frank Burr of WPBC and Marian Zucker, Director of Affordable Homing, Suffolk County Office for Economic Dcvelopmen! and Workforce Housing, on August 9, 2006, during Town Board's Fishers Island lrip The Town of Southold's Human Resouroes DeparUnent (TS-HRD) would assist on behalf of WPBC to obtain funding through the Suffolk County Legislature. TS-HRD provided WPBC with a copy of its recently adopted Town of Southold Affordable Housing Policies and Procedures Manual, which Chapter 5: Inventory 5O Fishers Island Strategic Plan: 2007-2017 includes a formula to ensure affordability at resale, permanent fixed improvement policy, etc. as well as the Town of Southold Housing Needs Assessment of 2005. A ~py of the Manual is included in the Reference Binder. (Source: Town of Southoid Dept. Human Reset, November 2006) 3. Accessory Ap~u'tments The Town's Zoning Code allows, by Special Exception fxom the Zoning Board of Appeals, the creation of ao:essory apartments in single-family residences within the following zoning districts on Fishem Island: by Special Exception of tho Zoning Board of Appeals: R-40, R-120, R-400, Hamiot Density a~d Limited Business. An accessory apartment in these zones is defined as follows: APAR~ -- An eatircly self-contained dwelling unit consisting of a minimum of 450 square fe~t of living area containing complete housckeepin~ facilities for only one family, including any domcstic sennmts employed on the premises and having no enclosed space other than vestibules, cnmmce hallways or porches, or cooking or sanitary facili~es in common with any other dwelling unit and/or "apartment." [Added 6-19-1990 by L.L. No. 13-1990] (Section 280-13 B. (13)). In order to obtain a Special Exception to place an accessory apartment in an existing one- family dwelling, the prope~'y owner must meet the following requirements: (a) The accessory apartment shall be located in the principal building. (b) The owner of the existing dwelling shall ocx~py on~ of the dwelling units as the owneffs principal rezidenc~. The other dwelling unit shall be leased for year-round occupancy, evidenced by a writtea lease for a t~'m of one or more years. (c) The existing one-family dwelling shall colltain not less than 1,600 square feet of livable floor area. (d) The accessory apartment ah, II coptain not less than 450 square feet of livable floor area. (e) The accessory apartment shall not exceed 40% of the livable floor area of the exist/rig dwelling unit. (f) A minimum of three off*street parking spaces shall be provided. (g) Not more th,n one accessory apartmmt shall be permitted on a lot. (tl) The accessory apartment shall meet the requilements of a dwelling unit as defined in § 28O-4 hereof. (i) The exterior entry to the accessory apartment shall, to the maximum extent possible, retain the existing exterior appearance of a one-falnily dwelling. (j) All exterior alta'ations to the existing building, except for access to the apartment, shall be made on the existing foundation. (k) The c,c~ificate of compliance shall terminate upon the transfer of t/tie by the owner or upon thc owner ceasing to occupy one of the dwelling units as th~ owner*s principal residence. In the event of an owner's demise, the occupant of an accessory ap~haent may continue in occupancy until a new owner shall occupy the balance of the dwelling Chapter 5: Inventory 51 Fishers Island Strategic Plan: 2007-2017 or one year from date of said demise, whichever shall first occur. [Amended 5-20-1993 by L.L. No. 6-1993] (1) All conversions shall be subject to the inspcctinn of thc Building Inspector and renewal ofth~ certificate of occupancy annually. [Amended 5-20-1993 by L.L. No. 6-1993] (m) The building which is converted to permit an accessory apartmant shall be in existence and have a valid certificate of occupancy issued prior to January 1, 1984, or proof of occupancy prior to that date. [Amended 5-20-1993 by L.L. No. 6-1993] (n) The existing building, together with the accessory apartment, shah comply with all other requirements of Chapter 280 of the Town Code of the Town of Southold. (o) Notwithstanding the provisions of § 280-13B hereof, no site plan approval by the planning Board shall be required for the establishment of an accessory apartment. (p) Approval by the Suffolk County Department ofttenlth Services of the water supply and sewage disposal systems shall be required. (q) No bed-and-breskfest facilities, as authorized by § 280-13B(14) hereof, shall be permitted in or on premiss for which an accessory apartment is authorized or exists. [Added 3-14-1989 by L.L. No. 3-1989] Town Code, Chapter 280-13. B. (13) Only one accessory apartmeot has been created on FI through this pm~un. In thc Hamlet Business (liB) and General Business (B) dist~cts, accessory apartments are permitted as of right (meaning the Building Dep~uu~ent can issue the permit directly) provided thc property owner meets the following requirements: (2)Apartments am permitted within the principal building only, subject to the following requirements: (a) The Building Depotlmant la,tins an accessory apartment permit. Co) Tbe habitable floor area of each apartment shall be at least 350 squa~ feet. (c) There shall be no more than three apartments created or maintained in any single (d) Each apartment shall have at least one off-street parkin~ space. (e) Con,~uction and/or remodeling of an existing slruoture to create an aceessory apartment shall not trigger the need for site plan approval ~ forth specifically in § 280-127 and A~iclc XXIV in genend unless such construction or r~nodeling results in an increase of the foundation size of the structure. (f) The apartment(s) shall not comprise more than 40% of the principal building. Source: Town Code, Chapter 280-45. C. (2), and 280-48.C. (3) 4. Permanent affordable housing The Town Code also permits the change of zone (by petition to the Town Board) to an Affordable Housing District, which contains specific provisions to ensure the permanent Chapter 5: Inventory 52 Fishers Island Strategic Plan: 2007-2017 affordability of land and dwelling units. As noted in the Town Code, these districts shall be located in "appropriate and desirable locations for affordable housing. Such locations include, but are not limited to: land within Hamlet Locus Zones, as may be determined by the Town Board; land within walking distance of services, shops, schools, and public transportation; land that adjoins existing centers of business and residuntial developmcut (as opposed to land adjoining farm and open fields); and other locations where the project has been shown to meet a demonstrable need." (Town Code, Chapter 280-26) The AHD zoning permits the following types of dwellings: single-family detached, owner-occupied two-family dwellings, multiple and row or attached dwellings, and one accessory apartment per dwelling up to 50 % of the dwellings in the AHD district. A copy of the AHD legislation is included in the Reference Manual. Additionally, every new standard residential subdivision that results in the creation of five or more new building lots shall comply with the requirements herein to provide affordable housing: [1] Twenty-five percent of the lot yidd as determined pursuant to § 240-10B(2Xa) and (b) shall bo set aside as moderate-inceme family dwelling units (MIFDU), as defined, created and adminlste~,~d under the provisions oftbo Affordable Housing District, §§ 280-24 through 280-33 of this Code. Each MIFDU shall bo created subject to covenants and restrictions as set forth at § 280-30 or through another mechanism approved by the Town Board that will keep ~ perpetually affordable. The number of MIFDU units required in a subdivision shall bo rounded up to the next whole number. In satisfaction of the requirement to create 25% MIFDU units, the standard subdivision applicant shah be required to ~oustruct 11o luss thal110% of the total yield as MIFDU units in the subdivision. All subdivisions shall have at least one coustmoted MIFDU unit within the subdivision. The ~wn~in!~lg required units shall be provided by the applicant in any of the following ways: Ia] The applicant may construct dwelling units in the subdivision equal in number to the remnlni.g percentage, thereby pwviding a total of 25% of the yield of the subdivision as MIFDU units. If this option is chosen, the applicant will receive an increased deasity of one additional lot per Mli.'vLl lot created in excess of 10% under this option. The additional Ices slmll bo built ill the subdivision and shall be MIFDU units. For each additional lot created as part of the increased density pursuant to this option, the developer shall pay a sum representing the cost of development fights equal to the number of additional units created. This sum shall bo set annually by Town Board ruso}ution and shall bo based on the average cost of development rights purchased by thc Town in the previous year. The resolution in effect at the time of the preliminary plat hearing shall determine the sum to bo paid under this section. This mnount shall bc paid to the Commtmity Pmsurvation Fund to be used according to the terms of the Fund. Alternatively, in lieu of payment, the dcv¢lolm' may extinguish an equivalent number of development rights on another parcel in Town, in a form approved by the Town Attorney. [bi Thc applicant shall pay a sum to the Town of Southold Housing Fund. The sum .~hal! bo based on the number of reqnired MIFDU lots not constructed in the subdivision. The per unit sum shall bo sct annually by resolution of the Town Board and shall Chapter 5: Inventory 53 Fishers Island Strategic Plan: 2007-2017 [al consider factors such as thc average cost of building lots and costs of consUucfion in the Town of Southold. Thc applicant may provide property with development rights ~ual to the number of the required MWDU units not constructed in the subdivision, to the Town of Southold Housing Fund, North Fork Housing Alliance, Community Land Trust of So~thold Town, Or other $imi!~r organization approved by the Town Board for the sole purpose of developing affordable housing on the site. The property must be accep~ble to the recipient as a viable site for affordable housing development, and proof of same must be provided to the pl~nnln§ Board dtLring preliminary plat ff the option provided in Subsection B(2)(c)[2][b] Or [c] is chosen, the applicant may build any rg~aining allowed Iota in the subdivision, and they shall not be required to be MIFDU units. Source: Town Code: Chapter 240-10 B/(2) (c) Community Servlee~ Fishe~ Island provides a wide range of cormnunity services, primarily through its non- profit and church organizations. A ~view of the Fishers Island Community Board's Annual Reporls provides a general idea of the range and depth of services available on the Island. The newest addition to this list is descn'bed here. Fishers Island Community Center (FICC) In 2003, a Community Center Committee was formed te explore the concept of creating a comn~unity center on Fishers Island as a key element in both the retention and increase of a viable year-round population. A survey of the seasonal and year-round residents led to the decision to create a year-round center containing a workout room, meeting and gathering rooms, a youth and senior center and a kitche~ FIDCO agreed to lease Building # 98 for this purpose, and to initiate a fund-raising campaign The Committee will work closely with the school to create a campus setting, by installing links between the Center, the school, the public tennis and basketball courts, an ex~,~iso path and thc school's waterfront property, which may be placed under easement and used for an outdoor research area. It is hoped that revitalization of this building will stimulate future impwvements of thc waterside area west of Silver Eel Cove. Future plans for the FICC include collaboration with Fishers Island School for a video- distance learning center for educational and town business, and possibly, an indoor pool at the school (a priority in all the surveys.) Fandraising started in 2006 and renovations began during 2007. A copy of the Island Commu~_ity Center Campus Map is included in the Reference Binder. The Mainland provides a small percentage of the community services offered on the Island. The Southold Town Recreation Department provides recreational services and opportunities for youth and adults. The Recreation Department does not have a direct pr~ence on tho Island, but has provided Cxluipment for the softball league. Sports Chapter 5: Inventory Fishers Island Strategic Plan: 2007-2017 equipment also has been prodded for the Island Peoples Preject. Kenneth Reeves, Director, has offerod to sponsor a fr~ youth basketball program. (Kenneth. Reeves, Director, Recreation Depariment, March 2007, E-mall conx~ondence) Funding for the design and consmiction of a Fitness Trail was obtained through a combination of public and private funds. The Department of Public Works coordinated the grant application for public funds and will oversee the trail's construction during 2007 on a portion of Town land west of Tho Parade Grounds ¢lnsest to the Fishers Island School. A copy of the Trail proposal and map is included in the Reference Binder. In March 2007, the Town agreed to form a Youth Bureau. During the development of this Bureau, Fishers Island should communicate its needs and petition for services and funding under this program. Transoor~iion It goes without saying that Iransportation services are critically important to Fishers Island. The Island's economy and social fabric are shaped by the quality and nature of its transportation network. A clear understanding of the nature of that network is essential for future decision-making affecting the Island. Earlier, mention was mad~ in the section dealing with Public Services and Facilities about the Emergency Management Plan. This plan is of critical importance for the safety of all Island residents and visitors and should be reviewed on a regular basis in response to changing conditions on and offthe Island. 1. Roads Maintenance of the public road network on the West End is under thc jurisdiction of the Town's Highway Department. There is one Highway Department employee on the island. Maintenance issues have to be brought to the attention of the Mainland on a regular basis. 2. Ferry The District's priority is a~tfe and efficient operation and maintenance of the ferry service between the Island and New London. The District retains a staff of seven, six of which are Islanders. As with the other utilities, the provision of off-season service is subsidized by In response to the que~ion whether thc ex/sting scrvic~ could be enhanced through basing of one beat on the Island overnight, the Disirlct responded as follows: The Ferry District Board can never dismiss any subject on a permanent basis under any circumstances. The District is charged with providing transportation of goods, services and people to and from Fishers Island and New London. The District was formed when the privately owned ferry service based on Fishers Island failed financially. It should be noted that the ferries are based on the mainland where the infrastructure for the maintenance services and the staffing are located. The idea of basing a fvrry on the Island is brought up Chapter 5: Inventory 55 Fishers Island Strategic Plan: 2007-2017 periodically. The conversation usually ends when the requirements of operation are discussed in detail. Without at least doubling the District's budget (resulting in much higher fares and taxes), such a contemplation is not possible. The District cannot require the crew members to live on the Island, and as of the mast recent lnformal survey, there seems to be little support amongst the crew members for mala'ng a move to the Island. Additionally, the District hires a large number of part time help during the summer season. There is no pool of candidates present on the Island either for part time help or for full time crew members, lf one were to actually propose a boat based on the Island, a minimum requirement would be 2 captains and 6 crew members domiciled on the Island in approximately 8 houses. Currently there are no houses and coincidentty no crew members wtlling to consider such a move." (Memo to Stakeholders, Fishers Island Ferry District, September 2006. The full memo is included in Chapter 7 Appendix) As noted earlier, in the subsection on Management Stmctvre, the Fishers Island Ferry District (FWD) has juriadichonal ~_ot_horities and respons~ilitiea that go beyond that of owning, operating and managing feaxy service between Fishers Island e~i the port of New London. These powem include management of nearly 186 acres of Town land, of which 7.5 acres lie immediately adjacent to the ferry dock on Silver Eel Cove. The remainder of the land, 178.4 acres, surrounds Elizabeth Airfield, the operation and ma/ntenance of which also lies with FIFD jurisdiction and responsibility. Thc legislation creating the FIFD explicitly granted authority to lease land within its jurisdiction to private ent=,ta, lses for In 2006, the FIFD held fourteen business leases for stmeturai space or land within its jurisdiction. The leases typically nm yearly, although some run for as long as throe years. All leases wero renewed in the spring of 2006. Monthly lease income for 2006 was $4,005 ($48.060 yearly). (Source: Tom Doberty, Manager, Fishers Island Ferry District, March 2007) Income ~m le~ses is deposited into thc District's general fund for use as the District sees fit. The leases and rates are included in the Reference Binder. Thc leases may be granted for the use of land or structures or both. Leases are tailored to individual business needs and are subject to public notice, hearing and input prior to be awarding. However, there is no written application procedure or protocol defining who may apply and which applications are accepted and allowed to move forward to the public nofce stage. The District's policy is to award leases to those lessees currently holding leases provided they honored the t~-ms of past leases In good faith. Next in-line is established on-Island businesses. Currently there is a wa/ting list of potential lessees, a/though the extent and composition of that list was not divulged. The waiting list is a recent tren& Lessees with waterfront access arc responsible for maintaining control over that air, ess. Public access to other waterfront property under thc jurisdiction of thc FIFD, c.g the tlshing pier and beaches, is controlled or managed as follows: ferry personnel oversee the pier, and the Bay Constable and State Troopers oversee the beaches and Race Point. Camping is not permitted on any town pwperties although overnight fishing on the waterfront is allowed. Chapter 5: Inventory 56 Fishers Island Strategic Plan: 2007-2017 Msna§eme~t of Elizabeth Field is the responsibility of the 1~ who has leased the airport building. These responsibilities include maintaining the runway lights, overseeing use of the parking lot, communicating with aircrail during business hours, collecting landing fees and alerting the Disirict of other outstanding items in nsed of roaintenanca. Landing fees are twenty-live dollars ($25) ~ landing and those fees are kept by the lessee. The airfield is maintained by the Dishict with assistance from the Federal Aviation Administration (90°,4), the State of New York (5%) and the Town of Southold (5%). The primary priority of the FIFD is the operation and management of the fen'y service. Its landlord activities include overseeing leased pioperties and enforcing leasing agreements. The FIFD would not object to exploring alternative roanagement options for the other responsibilities iroposed on the FIFD by its charier, assuming the Somhold Town Board agreed to such changes and assisted in amending the Disirict's charter or responsibilities. (Source: Reynolds (Chippy) duPont Ir., Chairman, Fishers Island Ferry District Board of Commissioners, August 17, 2006.) The Fishers Island Felry District provides the roost hoavily-nsed and essential transportation service for the Island. Its jurisdictional responsibilities were discussed earlier in the Management subsection. Although the Fishers Island fray is the primary roeans of access for the majority of the Island's year-round and seasonal residents, it is not the only water service. Many year-round and seasonal residants own their own boats and are comfortable using them to access Connecticut and New York ports of call for po~onal business. Employers and private operators also provide water taxi services to workers. In an attempt to dot.mine how many work~rs commute from Connecticut to jobs located on Fishers Island, the Stakeholders ereated a common-knowledge list of workers and their employers. The Table holow lists tho number of workers that traveled to Fishers Island fi'om Connecticut during an average work day in 2006. The ferry statistics are an average work day based on year-round ticket sales during 2006. Table: Daily Water-borae Commuter Traffic T~n~0orter: Boat (B) or Employer's Name (E) Number of Workers per Day Fishers Island Ferry - B 118 (average} Pop Eye - B 32 Baby Doll - B 28 Broom - B 5 Pirates Cove Marina - E 4 Steve Malinowski - E 3 Paul Tombari. E 3 Emery Numeskay - E 2 Tom, Ravino - E 2 Chip Sinclair - E 1 TOTAL (10) 198 workers on average per day Chapter 5: Inventory 57 Fishers Island Strategic Plan: 2007-2017 The data in the previous table suggests that thc Fishers Island Ferry accounts for about sixty (60) percent of the average daily commuter water traffic to and from the Island. This data does not include daily tril~ taken by parents to deliver children to school off- Island, or personal off-Island trips necesaltated by the unavailability of ferry service. 3. Airfield Elizabeth Airfield was constructed by the U. S. Army as part of Fort H.G. Wright. It is owned by the Town and managed by thc Ferry Dislrict. The Airfield is not subject to thc security controls common to larger airports. The District has delegated oversight of the landings and take-offs during daylight hours to the business leasing the building alongside the runway. The lessee is allowed to charge a nominal fee ($25.00) for use of thc runway and to keep the money. As best as could be determined, no records are kept of landings and take-offs, nor an analysis of whether user fees could be brought closer in linc with actual maintenance and ope~tions costs. Thc airfield is basically a no-frills runway with radio-controlled, night landing lights and a small parking area. No services are provided, such as engine repairs, hangar space, fuel, weather station, pilot's lounge, indoor waiting area, etc. Economy There are almost no standard economic statistics available for Fishers Island other than that collected by the U.S. Census Bureau. According to the 2000 U.S. Census, Profile of Selected Economic Characteristics, 221 Island year-round residents were aged sixteen years or older, of which 165 (or 74.7 %) were employed. Of this group, thirteen (13) of residents aged sixteen years or older (less than 8%) were self-employed; Twenty-nine (29) were salaried workers in government (17.6%), The remaining 123, 74.5%) are working in the private sector. The U.S. Census examines employment in two different ways: by occupation and then by industry. By occupation the statistics are as follows: 33.9 % - Service occupations 26.1% - Management, professional and related occupations 19.4 % - Sales and office occupations 12.7 % - Construction and maintenance occupations 4.2 % - Production, transportation and moving 3.6 % - Farming and fishing By industry the statistics are as follows: 18.8 % - Education, health and social services 15.8 % - Professional, scientific, management, administrative, waste management 15.2 % - AHs, entertainment, recreation, accommodation, food services 9.1% - Construction Chapter 5: Inventory 58 Fishers Island Strategic Plan: 2007-2017 9.1% - Retail 7.9 % - Transportation, warchousing, utilities 7.9 % - Other, not including public administration 6.1% - Public administration 4.8 % - Finance, insurance, real estate, rental and leasing 3.6 % - Agriculture & fishing The Census does not shed light on the percentage of residents that work off-Island. The Stakeholders attempted to further define the nature of the on-Island economy, and ge~ an idea of the numbers of off-Island workers. A copy of their Table: Fishers Island Business & Characteristics is included in Chapter 7: Appendix. While the table is incomplete, and preliminary analysis is of limited value, it does provide interesting information. About sixty-eight (68) different businesses are known to operate on the Island. The businesses are most privately owned, with a handful of government employers in the mix. Employee and other facts were available for only forty-eight (48) of the sixty-eight (68) businesses noted above. Of these, thirty-five (72.9%) were considered ye,-round businesses. And, of these, twanty-five (25) own their place of operation; the rest of the businesses are operated out of rented space, the home of the business owner or at the home of the person who has contracted for their services; e.g. house cleaners, massage therapists. Of the businesses owning their place of operation, seventeen of the twenty five are year-round operations, the rest seasonal. Although this table is incomplete, it counts at least one hundred residents employed on- Island, which suggests that more Islanders work on-Island rather than off, although the exact percentage is unknown. Income statistics by the 2000 U.S. Census reveal a median household income of $ 50,521 based on 135 households, and a median family income of $ 59,583 based on 67 families. The statistics don't indicate how many jobs were held down by family members or heads of households. Of these families, Ll~ree were living below the poverty level. This translated into 24 individuals of which five were children under the age of 18 years of age. (The 2000 U.S. Census profiles are included in the Reference Binder.) If ~he Islanders are interested in encouraging moro economic activity on the Island, it would be helpful to complete the Stekeholder's inventory (Fishers Island Businesses & Characteristics) and perhaps to expand it to include other kinds of information. This type of database might help identify underserved s~ors of the local economy, particularly where off-island businesses are providing the services for lack of on-island providers. It also might identify gaps in the zoning code as it pertains to certain types of businesses. An updated survey of the properties rented by businesses might help define the extent to which Town rental of public land for business purpo~s is reducing the market demand for privately owned business property. Chapter 5: Inventory 59 Fishers Island Strategic Plan: 2007-2017 The State of New York offers economic development counseling services to small and n~v business~ and these services include marketing analysis and assistance in accessing funding sources. These services are offered ~ugh the State University and the Empire Development Corporation of the State Economic Development Office. Source information is included in Chapter 6 Bibliography & Sources and a copy of the brochure can be found in the Reference Binder. In addition to the Island's geographic isolation, its history, and the large extent of its resort or seasonal population (relative to its year-round population), the Island's economy also is influenced by the scattered nsture of its business districts, the lack of suitable spaoeYstmctures for contemporapy business needs and the availability (however limited) of public land for lease at lower rents than might be found in the private market. Another factor is the ability of off-Island businesses to sell retail from tracks. The Town Code, Chapter 197 Peddlers Solicitors and Transient Retail Merchants, requires these businesses to obtain permits. However, this law is not enforced. Information & Commullle~tlous A small but important part of this pltmning exercise was to improve thc flow and storage of information pertalnln$ to the Island. Lack of cun~nt information about both the Island and thc Mainland contributes to the smsc of disconnectedness that exists between the Island community and Town government. In 2001, the Town implesaented an information storage and retrieval system, known as La~erflche, which has revolutionized how the public accesses government documents. Now, documents, including meeting minutes, resolutions, permits, cen'espondence and maps, can be found by typing "search words" into a computer. The computer scans the database for all documents containing the search words and provides the reader with a menu of matches. The reader can then access and read specific documents fight on the computer screen, thus saving hours of manual searching through boxes and folders. 1. Centralized Information Collection and Management As part of this update, the consultant searched on the Island and the Mainland for public records, reports and other documents related to Fishers Island and found inconsistent a.,r&ival practices. Some ori~nal public records, including maps, reports and documents, were being stored on Fishers Island but neither the Town Clerk nor the Data Processing depaahueut had a listing or copy of these records. Other records, located on the Mainland in file cabinets, had not been scanned into the Laserfiche system. In spite of the rigorous archival practices that had bean instituted on the Mainland in 2001, there was no central collection, inventory or archive containing all public documents pertaining to Fishers Island on either the Island or the Mainland. Discussions with Elizabeth Neville, Town Clerk, resulted in a radical upgrading of information storage and cataloguing practices within the Town Clerk's office. Ms. Neville also arranged for Stacey Noridun, Records Management Assistant, and a Chapter 5: Inventory 6O Fishers Island Strategic Plan: 2007-2017 Regional Advisory Officer fxom the New York State Depathaent of Archives, Lorraine Hill-Campbell, to travel to Fishers Island in August of 2006 to assist Meredith Harr of the Fish~s bland Community Board (FICB). Together they reviewed documents in the possession of thc FICB and assessed whether they should be archived. Several boxes of materials (consisting of minutes, maps and newsletters) were sent to the Mainland for scanning into Laserfiche, and then were returned to thc FICB office. In conjunction with this effort, a parallel search was made of files in thc Planning Depashuent, the offices of the Town Historian and the Town Clerk for any information (such as records, reports, documents, maps and photographs) pertaining to Fishers Island. These also were scanned into Laserfiche. All the information archived as a result of this search was filed into a specific Fishers Island file. Prior to this time, decisions, minutes and appF~cafion files from the Board of Trustees, the Zoning Board of Appeals (ZBA), and the Planning Board (PB) had been scanned into Laserfiche in accordance with standard procedures for storing public records. However, due to the volume of information generated by each of these boards, this information was not sorted into a separate Fishers Island file. Rather, keying in the words "Fishers Island" while searching the records of each respective board will yield information and decisions affecting Island properties. Records aiso can be retrieved by tax map number and by topic, e.g. accessory apartments, dock po-iiiits. Laserfiche contains records for the ZBA and the PB back to about 1957-8, when those boards came into existence. Laserfiche contains Trustee records from 1936 to the present, and Town Board minutes and resolutions from 1945 to the present. Because public documents must be stored for future retrieval purposes, the Laserfiche archiving process will be an ongoing one. Olde~ historical material will continue to be scanned into the database along with future current decisions. Thc accuracy and usefulness of this archiving system requires all components of town government to forwaxd public records to the Town Clerk's Office. However, there is no standardized procedure whereby public records generated on Fishers Island are forwarded to the Mainland for scanning. As noted earlier, all known records, documents, maps and amial photographs deemed relevant to the public record of Fishers Island (other than decisions by the Zoning, Trustee, Planning and Town beards) have been scanned into the Town's Laserfiche system and keyed for reLrieval as "Fishers Island" to save time during future searches for information. The records that have been scanned as part of this project were saved onto a CD-ROM, two copies of which are aaached to this report. It is suggested that one copy be placed in the Fishers Island Library and the other with the Fishers Island Community Board In order to facilitate public access. All other public records, such as Zoning, Trustee, Planning and Town beard minutes, can be accessed only on the Mainland through computers located at Town Hall because there is no direct, secure computer network connection between the Mainland and Fishers Chapter 5: Inventory 61 Fishers Island Strategic Plan: 2007-2017 Island. There are long term plans to provide Island access to the Laser'fiche system, perhaps within the next five years. For the near future, the Town Clerk's Office will continue to send updated CD-ROMs of Island-specific documents (other than board decisions) annually on an as-needed basis until such time that technology allows for direct computer access to the Town's Laserfiche system from Fishers Island. In the meantime, a procedure should be set up to ensure that all public records generated on Fishers Island are being sent to the Town Clerk either by e-mail (in Adobe or Word format) or through regular mails (print, CD- ROM, memory stick). 2. Geographic Information System The Town's Geographic Information System ((}IS) was developed over a period of several years beginning in the early 1990s. Maintaining, updating and expanding the database currently is the responsibility of the Data Preceding Department and other primary users such as the Planning Department, the Land Preservation Depaihiient, and the Engineering Office. The Data Processing Department's policy is to update the database on a continuing basis as Information is sent in by different d~-partments. On Fishers Island, two private entities, FIDCO and the Museum, accept easements and donations of land. There is no procedure (or requirement) whereby private land preservation activities are recorded with the Town. However, voluntary sharing of this information would enable the (}IS database to be kept current and the information made available to the Island residents. As part of this planning exe~ise, maps from previous studies and old aerial photographs were scanned into the GIS in order to expand and update the database. This effor~ also included a search for aerial photographs held by the Ferguson Museum. Tom Doughe~y, General Manager of the Fishers Island Ferry District also was contacted regarding surveys of Town-owned property located in the City of New London, Connecticut. In addition to the maps specifically c~eated for this document, the GIS database now contains the following information pe~ainin8 to Fishers Island. Aerials 2004 natural ~olor aerial photos 2001 natural color aerial photos 1999 natural color aelial photos 1996 natural color aerial photes 1995 infrared aerial photos 1930 black and white aerial photos Tsx Maps Current - Suffolk County Tax Map, which includes specific attributes such as: o Protected land o Community Facilities o Acreage Chapter 5: Inventory