HomeMy WebLinkAboutSummary of Plans for Development in the Town of Southold 1977DRAFT COPY
SUMMARY OF PLANS FOR DEVELOPMENT IN THE TOWN OF SOUTHOLD
BEGINNINGS AND.HISTORY,
Planning began in the.Town,of Southold with the creation of
-a Planning Board on April 259 1955 by resolution of the Town Board,
Norman Klipp,, Supervisor. Shortly thereafter, the members, of 'the'.;
Planning Board were also named as a Zoning Commission by the.Town
Board and charged with the -preparation of a proposed Zoning
Ordinance. The Planning Board and Zoning Commission consisted of
John Wickham, Chairman; Robert Gillispie, Jr., Vice --Chairman;
Harold R. Reeve, Sr.; Charles Van Duzer; Serge Doyen from Fishers
Island.- They were fortunate in having the assistance of John M..
Muddeman, a Planning'Consultant retained by Suffolk County to help
towns:
'r It is interesting to note'that, "in.reality, Southold had
certain land use controls long before this.in its Duck Farm
Ordinance enacted May'24, 1949 and a Trailer Camp Ordinance on
June 30, 1953 0
The proposed Zoning Ordinance that was prepared was based
largely upon the ordinance of the Town of Ithaca, New.York, being
one of the very few -ordinances. in the state at that time .that
combined agriculture with the residential district.: In due time,
the proposed ordinance was presented to the people of the town in
a series of well attended information meetings. After deliberation
and fulfillment of all legal requirements, the proposed ordinance
was adopted by resolution offthe Town.Board on April 9, 1957.. A
year later,, the Zoning Ordinance was amended in its entirety on
April 8,-1958..
In the meantime, with the assistance of Mr. Muddeman, the
.Planning Board prepared the first Rules and RegLilations for the
Subdivision of Land. After submission at a public hearing, these
.were adopted by the Planning Board and approved by the Town Board.
M' The policy statement of the Planning Board stated that the
development of ,the town's marine shorefront was fully as important
a -s the development of the town's highway frontage. The rules also .
required that highways in -subdivisions. meet town highway
specifications and requirements for dedication. {
In the .early .19601s, it was proposed by New York State.to -:.
build a. bridge from the end of Long Island -to New England.
Accordingly, it was felt necessary to review our zoning to decide
where the interests of the town lay. Fortunately, the town was
able to interest Cornell University in making a pilot, study here '
as a research project This study beganas an interdeparamental
economic base study of a developing rural - area and was -undertaken"
largely „with university funds..
: At about.the same time, the town engaged.the services`.of,
Malcolm,Pernie Engineers to study the potable water resources of' -
the town and -Raymond and May, Planning Consultants, to correlate, -
organize and .present all available information.in a P170111 master
plan study with both state and federal assistance. Subsequently,
this effort was approved by H.U..D.
The Cornell,study was undertaken in the.base years.of 1964
and 1965 and teams from the Department of Rural Sociology,
Agricultural Economics and Conservation were sent into -the town
for'some six weeks or more to make indepth studies. Nearly 95%
of all farmers were. -personally interviewed .and over 10/ of the.
summer residents.' 'The water -resource study was.also undertaken
in these base years.
The Rural Sociology Study culminated in.1965 with a.report
of 86 pages'.entitled A Social Analysis of Southold Town, Long
Island by Robert L.'Carrol1. ;
The. Department of Conservation Study produced in 1967 a
report of 131 pages entitled Outdoor Recreation and the Commercial
Fishery in the Town of Southold -by Bruce T. Wilkins.
`The Department of AgricAltural Economics reports were
entitled Agriculture as a Land.Use by David J. Allee, 17 pages,
and Presentation of the Input -Output Tables for. the Calendar Year
1963, Southold, Long Island,'New York by Morton and Allee, about
30 pages.
The Malcolm Pernie report consisted of 57 pages with numerous
additional maps. It is entitled Town of Southold,'Investigation
of Water Resources, June 1967., This was prepared by Ernest.''
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owned the same per cent of land they operated as Cornell 'found
five .years earlier®
'. In. late 1970, another information meeting was held presenting
all the information so.far.accumulated and, at this time, the.:
response indicated that those attending favored adoption..:v'At
this time, Part II Comprehensive Development Plan,. Town of Southold
by Raymond and.May was released and placed on file and in every
library.in-the towns was was recommended.with the deletion of
pages 41 to 47 inclusive, this being the-airport study.
Part I.I is largely,interpretation and proposed amendments to
the Zoning Ordinan.ce.: Interestingly, the Town Board, *hile
recognizing the very. great �ralue of.the studies and the analysis `
-of them by Raymond. and May,did not accept all of their deductions
and recommendations..' Specifically, they were not willing to:
scrap the original.ordinance and.institute an entirely new one as
Raymond and May would like 'In.fact, the.Town Board,, -Planning ..
Board and Zoning Board of.Appeals.concurred in feeling that it
would be preferable to amend the ordinance which had served us so
well.by including most.of Raymond and MayIs suggestions.
Subsequently, a large scalemap was prepared by the Planning
Board showing proposed.areas for development. Wetlands are shown
on this map even though they are in the "A1°.zone. They are both
of fresh and salt water'origin and, in general, are at or below
the three foot contour.
Concurrently,,a large scale zoning map was prepared showing
proposed precise zoning of all properties in the town..`.
A final. information meeting was held on October 2-, 1970, at
which time 85/ of those attending expressed approval of the
presentation. As,a result, the Town Board on November 23, 1971.
amended the-Ordinance in its entirety including adoption of the.
revised. zoning map. �.
A Plan for Development Map had been approved by the Town
Board. at an,earlier stage. ,.
Finally, on September 11, 1973, the Town Board authorized
the Code Book resulting in revision, some renumbering and codifi-
cation of the foregoing actions, as well as all Town Ordinances,
Local Laws and rules and regulations of a permanent nature.
Whitlock, Senior Vice -President (deceased February 1976). Much
of the cost of this report was borne by Southold as it did,not
all qualify for '►701" .
The Planning Consultant report consists of 76 pages entitled
Part I Comprehensive Development Plan, Town 'of Southold, Village
of Greenport by Raymond and May.
Each of the above reports was the subject of very careful
study by the Planning Board, the Zoning Board of Appeals and the
Town Board. These reports are on file and, in addition,'a copy
of each was sent to every library in the town. Additionally, '~
Participant Data Development, Town of Southold by Bruce T. Wilkins-.,.'-
June 1967, is also on file.
On September 26, 1967, the Town Board approved rules and
regulations for subdivisions within the limits of the Town in-
conformity with Article 16 of the Town Law of New York.
Part II, Comprehensive Development Plan, Town of Southold by
Raymond and May was first presented December 31, 1967. It included
a general aviation airport north of Oregon Road, Mattituck, a
required condition of 11701" approval being that if an airport had
ever been proposed for the area, it must be included in the study..
Suffolk County and others had proposed this location." Part II
also contained a considerable section on the possible New England,
Bridge impact and showed large.areas in parks.
After some revisions, information hearings were held on
August 29, 1969 and September 3,-1969..
The meetings, while generally favorable, indicated that there
were two general areas of disagreement.- First,,the airport and,
second, the future of agriculture in the town.
As a result, the airport was dropped from the plan and a
comprehensive study of the future of.agriculture was undertaken.
Ninety-six of the town's onehundredfarm operations were
interrogated'(3 more being Riverhead Town based). The findings•
of this study are available in the Sullivan Report. (A Survey of
Agriculture in Southold Town, 1970 by Dr. Joseph P. Sullivan of
Southampton College)
This study showed that one third of Southold's farmers plan
to continue for another -ten years; one third may or may not continue;
and
one-third plan to sell out. It also showed that farmers still
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STUDY FINDINGS
In the study by -the Department of Rural Sociology of the New
York State College of.Agriculture at Cornell, census figures,
projections and survey results are presented and analyzed. These
may be briefly summarized as follows:
Population declined.slightly in Southold from the 1930 census
to that of 1950,.the 1950 density being .373 persons per acre. In
1960, according to the census, with a population of 13,295 permanent
residents, density rose to .426 indicating that it was still the
most densely populated of the five eastern towns. (Riverhead .3349
Southampton .291,. East Hampton .194 and Shelter Island .176)
Population projections of high, median and low are given on page
.57 table 23 for both permanent and part-time residents. It shows
median projection of 22,800 for 1980 and 26,700 for 1985.in the
"permanent category".and in the "part-time". 25,080 for 1980 and
32,040 for 1985.. It was pointed out that the construction of,a
bridge to New England would invalidate these projections.
Much more information is presented in this study but.most
enlightening are.the facts,that in the study period, seasonal
residents spent $13.1 million per year in the town and all year
residents about $23.0 million. Also presented were the results of
a survey which showed most people, both permanent and part-time,
are in the town because of its rural nature. .
Other items of interest were found to be: We have a
proportionately higher non-white population than elsewhere'in the
metropolitan area except Brooklyn, Bronx, etc. Likewise, our per
capita income is lower and median age higher than most of Suffolk'..-
County.
uffolk' -County.
Our part-time residents make up the largest single block of
our economic base, nearly 60'0. They bring wealth into the town.
in return for goods and services.
The study of Outdoor Recreation and Commercial Fishery in
the Town of Southold by Wilkins found that swimming was the most
important recreation followed by boating, picnicking, shore
fishing and clamming. These five categories accounted for 735,000
participant days per year. Again, questionnaires showed that
the rustic aura of the town was the most important reason given
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for why these people were in the, town
Comparisons of 'saltiness were given..showing that Peconic Bay
was.salter than Long Island Sound, or Gardiner`s Bay.
Summaries of finfish and shellfish harvests were given and
there was discussion of limiting seasons on the one hand and
expanding processing facilities on the other..
The value of the estuarine areas is shown,both on a broad
scale and locally. Means of enhancing and protecting.the.se areas
are discussed including easements under Section 247 of the General
Municipal Law.
In -conclusion, seasonal residents and. commercial fisheries ;
brought -$19 million into the�town.in 1963.",Additionally; commercial
fisYieries contribute toward the rustic. aura It seems.probabl9
that this industry could be expanded by more research and biological
studies,.
It was projected that participation in boating will increase
by 250/ by 1985 and swimming will double by. then.
Agriculture as a Land Use by David JD Allee. Of the.28,150
acres in -the unincorporated town,.13,136 were ingrowing crops in
1963-64 of which 9,871 were in potatoes. In this dry period,
there was only an average of 1®87 acre inches of water usedfor
irrigation (2.05 A/" on larger farms). ,This study found that
nearly all farms were „adjointed by non-farm use and that, in
general, there were no problems but,,in response to specific
questions,15% to 46% acknowledged that in the following order
there were some problems - irrigation, chemical wastes, vandalism,
traffic and. dust. .
There were 145 farms in the town with an average of 87 acres
and 43% of the land was owned and the remainder rented. Partner-
ships'. comprise 20% of total farms and total farm receipts were
over''$5 million. In a verbal report to the Town Board, the study,
team projected that by 1985 there would only be about 70 farms
but they would be far stronger and have the same total production
as at present.
Presentation of Output-Imput Tables for the Year 1963 -
. Southold Town by Morton and Allee.
Primary industries are those which produce from the natural
environment such as farming and fishing and sell to other,
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industries.who, in turn, sell to consumers - who, in turn, provide
labor and proprietary services so that money flows in the opposite
direction-.
These and other industries and services are arranged in
tables in such a manner that by varying one we may find the
resultant change in others. We find, for instance-, that a 20% ..
increase in seasonal people would have more impact upon returns.to
permanent residents than doubling manufacturing. Conversely, a
50% decline in agriculture could be offset by a 13% increase in
commuters and retirees. As expansion in fishing would be more
beneficial than an expansion in manufacturing and if Plug Island .
were phased out, it would take more than a 333% increase in
manufacturing to compensate. Of course, there are other factors
such as schools, seasonal employment, protection of a spacious
rural environment, and so forth.
Investigation of Water Resources by Malcolm Pernie Engineers®
The Pernie report found that.the sole source of water in the
town is the ground water and that the total limit of this resource
is less than twice present use in 1966. In some areas, greater
quantities can be withdrawn than in others and this must be
considered in planning.
Although the average rainfall is 45" per year, there were
eight consecutive years with rainfall below 41.40 inches® The
last four of these (63, 64, 65 and 66) were 33.16, 35®45, 26..69
and 33.33 inches per year.
Fresh water deposits are in six areas, A, B, C and D, Bayview
and Nassau Point. Areas. A and B have 90% of the storage area and .
Nassau Point has only storage for one billion gallons. Withdrawal
of water adjacent.to the salt water boundaries of each of the six
areas cannot'be increased .by any appreciable extent without causing
contamination.of the supply by either lateral or vertical intrusion
of salt water.
Population estimates are for 1967, 16,000 in the town and
2,500 in Greenport and the three month summer resident period has
a total population of 32,000.
Total withdrawals in 1966 were:
Greenport Municipal System 600,000 g/p/d
Private wells -.rest of town 600,000 g/p/d
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Summer resident wells 200,000 g/p/d
Irrigation 59500,000 g/p/d
17,000,000 g/p/d
Chloride content in wells is usually between 10 and 50 ppm
250 ppm is the upper limit of potable water.
Safe yield is estimated at 10 m/g/d or 3 m/g/d above 1966
use. It is estimated that summer residents will increase to
45,000 .by 1985 and will use 1/2 m/g/d of present surplus leaving
2.5 m/g/d or enough for 20,000 more permanent residents.
It is estimated that agricultural..irrigati.an uses 200,000
gallons per acre per year on those acres irrigated (substantially,
less than the total acres in farms. Also', the 4" to 6" total
irrigation per acre is much less than 40% of 30" or 12" of annual
rainfall that would percolate to ground water in a dry year)
This 200,000 gallons per'acre per year is -the equivalent of
.about five permanent residents per acre or more than thirty
summer residents.
If withdrawal of water for irrigation is decreased in the
future, the'safe yield will provide a supply for a greater number
of additional residents.
Finally, this report lists on page 39, six steps that should
be taken to protect our ground water resources.
1. Control of future withdrawals
2.. Location.and spacing of.wells
3. Extension of public water facilities
4. Discontinue approval of dredging projects which bring
salt, water ' in
5. Construction of dikes across drainage channels
6. Recharge of acquifer with surface waters
Conversion of salt water is Also discussed.
Raymond and May Part I. Comprehensive_ Development Plan.
"The Development.Plan, a statement of policies and proposals covering.
all significant aspects of the community's Physical Advisory is
the most important of the planning tools since it forms the basis
for all others." (page 2) "The process of developing a development
plan for Southold's future begins with:the establishment of
certain objectives and goals."
1. The important natural resources of Southold should be
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preserved; they include land, air and water.
a. Positive measures should be taken to assure that land
in agriculture can be maintained in agricultural use.
b. 'Inlets, streams and other wetlands should be kept
clean and pollution abated where it exists.
c.. Sources of potable water should be safeguarded; air
pollution should be prevented.
d. Land for public use should be secured.
2. Widest possible range of educational, recreational and
governmental facilities should be provided.
3. Single family houses will prevail but provisions should
be made for other types of housing in selected.areas.
4. Major areas of employment are agriculture, -water: -
oriented recreation and industry. Growth should be encouraged.
5. Business and industrial areas should be so developed that
they are good neighbors.
`6. Business should be limited to the principle central areas.
Strip or ribbon development along State Route 25 should be
discouraged and positively prohibited along County Route 27.
7. Areas of blight should be corrected.
8. Highway and street network should be provided.
9. Plan should contribute to the.healthy economy of the town
and efficient"provision of public services.
In 1964, it was found that nearly half the,total land area
in the town was in agriculture and over 25% of the resident
population was employed in.agriculture. There were 145 farms and
the situation is not significantly changed since 1930.
.A little over 7% of -the -land is devoted to residential use r
"Because -housing is strung.out along the main highways, there is
a visual impression that a great deal more of the land is built
on than actually is the casein" Total developed land, including
parks,'streets and highways, is 18.2% leaving over 80% open.
It was found that in addition to the developed ,land and..
agriculture, there was nearly 10,000 acres of land of which 6,242-
was
,242was considered hard to develop, leaving 3,636 for.development
without reducing agriculture.
_.Based on these figures and also on water: it was computed
that an increase of more.than 19,000 permanent residents could be
accommodated.
The housing study'found the town had 9% of its dwellings
deteriorating and'3.3/ dilapidated compared to 5.5/ and 1®8% for
the county.
Median increase of residents in both town and incorporated
village was sharply below that of the county. Non-white
population of Southold was found to be 7.4% of'the resident
population.
A Survey of Agriculture in Southold Town by Dr. Joseph F.
Sullivan of Southampton College, 1970®
This report shows that there were 100 farm operations in the
town with 10,000 acres... This is 45 less than the 145 found by the -
Cornell study in 1963 with 12,555 acres. It was further found
that 56% of this land was.rented -versus 57% in 1963. Further.,
there was almost no change in farm size, type of production,.
mechanization or marketing. Employment of 300 farm workers was
57% seasonal nonresident, mostly Puerto Rican, 25% seasonal
resident and 18% year round resident. An opinion poll showed 66%
believed Southold's farms should be preserved, only 14% no and
20% undecided.or no answer. 33% expect to. farm 10 years longer
and 28% less than 5 years with the remainder uncertain. Finally,
82% would remain in agriculture if some satisfactory land
preservation program were available.
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THE PLAN AND ITS IMPLEMENTATION TO DATE
The plan for. 'the Town of Southold is, in . fact, `-the sum . of
these presentations at the information meetings which were so,
overwhelmingly supported by 85% of those attending such -meetings.
For the first set.of hearings, Raymond and May presented
Development Plan, Town of Southold,.Suffolk County, New York.
This is shown in digest form as Appendix A.
For the, second set of,information meetings, we have Additional
Facts and Proposals for Southold's Plan for Development,'October.
1, 1970. This is shown as Appendix B.
As Appendix C, we have'.the statement distributed at- the.time
the development map was presented to the public entitled.Southold's
Plan for Development.
After recommendation by the Planning Board., the Town Board
:officially adopted the new zoning map and amended the .zoning
ordinance in its entirety November 23, 1971...
It is.to be noted that, as mentioned earlier,, the official..
boards of the town did not accept,. unreservedly, Part.Il of
Raymond and May's,study which called for an airport, completely
new zoning ordinance, a multitude of parks and specific layouts
for population centers.' It was decided instead to amend our
existing ordinance as -noted above on November.23, 1971.
Subsequent.to this, there have been many amendments since
each change of zoning which is granted by the.Town Board is; in'.
reality, an amendment to the zoning map.
In addition to these, the Cluster Development section was
approved May 29, 1973 and on the .same day, amendments to the,Bulk
and Parking schedule requiring 40,000 square feet minimum area in
the A,'zone as required by the County Board of Health. With this,
there is a further requirement of 150 foot frontage.
The wetlands ordinance was enacted June 29, 1971 and amended
during codification. It was further amended to include fresh
water wetlands August 26, 1976.
The rules and regulations for the subdivision of land were
adopted by the Planning Board September 6, 1967 and approved by
the Town Board September 26, 1967,and.amended duaring.codification.,
There.have been other minor amendments May 8, 1973 to'c.onform to:
changes in-state and county law and December 9, 1975 to prouzde'
for improvements.
As regards the position of agriculture,* implementation at
the town level has been by "use assessment contracts" or negative
easements and it is noteworthy that. this town was the. ,first
municipality in the state to use Section 247 of the Generali.
Municipal Law to preserve agricultural land® Subseque4tly9'the
State"Agricultural Districts Law was passed unanimously by the:
State Legislature. This towns, farmer s had:the first individual:
commitments on Long Island under this program. Currently, the
Suffolk County program of preserving agricultural lands by purchase
of the development rights (again, under Section 247) is well,.
supported by the town's farmland owners..In 19779 farmers in 'this
town have,organized to form an agricultural district under the
state law.with.some forty farmland owners and 2,800 acres..
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ONGOING CONCERNS AND FUTURE BUSINESS
Agriculture -
In 1977, thanks to several good years in potato farming, our
farm operators are in stronger positions. Then, too, there is the
County Farmlands Preservation program which is expected to help
keep land in food production. The Agricultural Districts Law of
the State is currently helping through individual commitments and
will help -more through the emerging Agricultural District and
there are the use assessment contracts at the town level.
Each of these is seen as an attempt to.create a more favorable
climate for farming in our town and, to a degree, is helping.
Help has also been received at state -and national level in the
liberalizing.of inheritance tax laws for farmers.
At the same time, we are being faced with inflation which
increases farmland value each year and thus the taxes and/or
reduces the equalization rate. We are also faced with the almost
certain prospect of 100% assessment in the near future.
Since a continuing agriculture is seen as the key to the rural
nature of the town and thus to a thriving part-time resident and
tourism industry, it would seem that the town must be alert to the
probable changes and prepare to adapt, where necessary. This town
has-been a leader in this field in the entire state and should
continue in like manner.
Part-time residents and tourism
Our shorefront along the bays and creeks is now largely
developed and it has been greatly to the advantage of the town.
The Sound shorefront is now being.developed rapidly and considera-
tion should be given to the collector roads a short distance south
of the roughland at the Sound as proposed by Raymond and May and
the town's development map.
Failure to provide these roads will result in "bowling alley"
subdivisions from present highways to the Sound, often three-
quarters of a mile long and 300 feet wide. Such sub divisions are
not attractive and have been found to be very detrimental to
adjacent farms.
Another means of treating this problem might be to amend the
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zoning ordinance to provide for "estate' 'or "ranchette" lots.
The Planning Board has approved minor subdivisions lately with
lots four acres or larger. Th.e'Planning Board has officially
recommended to the Town Board the establishment -of such an amend-
ment, thinking particularly of the major water resource areas
(the central areas of A and B in the Pernie Report) and.the,out-..
lying islands of the town.
Multiple residences -
Multiple residences have been developed primarily in conformity
with the Raymond and May Comprehensive Development Plano This
spelled out areas of location for the hamlets of Mattituck, Southold
and Greenport. All these areas have filed for multiple -type
dwellings. To date, none have been. constructed. This would lead
to'the assumption that there is either not an'outstanding need
for this type of housing or construction costs are presently
prohibitive for this use.. We can conclude presently that there is
some need for this type of development within the town.. However,.
there has been no performance demonstrated.by the developers.
Some place where the need is demonstrated for this type of use in
another location for a specific purpose, changes of zone can be
requested.
Transient
As one of the major income-producing industries in the town,
recreational facilities should be encouraged in the future.
Specific proposals.for marine -related facilities throughout the
town have already been created. Further development in the marine
use area should be encouraged. The motel industry is a primary
factor for employment in this.area. The expansion of this industry
within the town would prove advantageous to the recreational
industry.
Finfish, shellfish and salt water recreation
As small sail and powerboats have proliferated, the state has
instituted registration, but closer control is needed at the local
level to avoid accidents and the nuisance factor. Apparently,
both water skiing and jet propelled craft are particularly
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As times and. needs. change, planning and zoning must change, -too.
It is both hoped and expected that both planning and zoning will
serve the town as well in the future as they have in the past.
Dated: October 17, 1977
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dangerous to others.
The oyster industry has staged a partial comeback and,
erratically, scallops have also. Because the fish trap industry
has had a few good years in the past, there seem to be a larger
than usual number of these structures in both bays and the sound.
It would seem that the town might request the State Department of
Environmental Conservation to limit the number of traps in
specific areas to a reasonable number.
Finally, our creeks.and inlets should be kept in the natural
state insofar as possible, particularly above the channel or
outlet. Maintenance dredging of outlets to restore flow and
navigation should be considered on their merits.
The proposed Department of Environmental Control Wetlands,
Preservation.Program and town 'Fuse assessment contracts".for salt,
water wetlands should be strongly encouraged.
Water
As the higher sites have been developed,' new homes are being
built along the lower fringes of our shorefront. As a result,
there, is ever more trouble with salt intrusion of domestic wells.
National Flood Plain legislation is being implemented and the
town is currently involved in this, but it is probable that town
zoning and planning should be more restrictive at lower elevations
of the marine.fringe. Concurrently, the town should continue
working for a water district or districts in problem areas and
people in such areas should be willing to carry the costs of such
a district.
Business and industr
The large area zoned industrial north of County Road 27 at
Cutchogue would -appear to belvery much larger than necessary.
Consideration might be given to reducing the size of this area.
Business development between villages.along State Route 25
should be kept at an absolute minimum and prohibited along County
Road 27.
In general, zoning and planning are not ends in themselves.
They are only a means to control growth in reasonable patterns.
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N. Y,
SUFFOLK COUNTY,
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HIGHLIGHTS'. OF THE DEVELOPMENT PLAN
FOR THE TOWN OF SOUTHOLD
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WHY A PLAN FOR- SOUTHOLD
For Southold, a community with a history of more than 200 years,
planning has now become essential for maintaining its agricul-
tural character, protecting naturaland historic features which
attract seasonal residents and tourists, preventing obsoles-
cence and decay, and preserving the Town's rich coastal re-
sources.
P, large increase in population is predicted for Suffolk County
by 1985. The Town with its 14,780 residents in 1966, is bound
to feel the pressures of this growth. The question before the
Town is whether it can meet the demands of new residential
development, traffic, and commerce without losing the rural
character that Southold now enjoys. The answer will be pos-
itive only if the Town plans its future by establishing and
pursuing the community goals shared by its citizens.
It is,important to understand that planning for community im-
provement is a continuing process. Although any area is al-
ways subject to unforeseen changes, the community without
a plan may find itself the victim of such changes. With plan
a community can adapt and take better advantage of changing
conditions.
THE DEVELOPMENT PLANT
This leaflet presents a summary of the Development Plan for
the Town of Southold, a two -volume work prepared by the plan-
ning consultants working with the Planning Board. Valuable
background for the plan was provided by the Cornell Univer-
sity studies of agriculture, the economic base, recreation
and fisheries, and the analysis of underground water resources
by Malcolm Pirnie Engineers.
PartI of this Pian contains the background studies dealing with
population composition, housing conditions, the local econ-
omy, and land use. It describes the goals and objectives of
the Town's planning program and contains a discussion of
various means to carry out the proposals in the Plan. Fart II
contains the detailed proposals for achieving the objectives ..
set forth in Part I. It establishes broad planning policy with
respect to transportation, future land uses and community fa-
cilities. The.Plan proposals are graphically expressed on the
Development Plan Map which is reproduced on the reverse side
of this leaflet. Whether proposals are precisely set forth or
only generally described and located, their interrelationships
are significant, and these must be studied with each new
step in Southold's growth.
Beyond certain needs which exist today the Development Plan
sets no precise timetable for the achievement of all its rec-
ommendations but should rather serve as a guide to the loca-.
tion -of various land uses and facilities.as they develop in the
future.
HOMES
The Town of Southold is primarily a residential andagricultural
community, and the Development Plan proposes that this char-
acter be maintained in the future. Over the next twenty to
thirty years the Town can be expected to grow from its pres-
ent population to about 34,000. Because buildable land is
abundant, care must be taken to see that new homes are not
developed in a random pattern destroying the agricultural
economy and the countryside.
The Development Plan proposes that, in general, intensive
residential development be confined. to the vacant land south
of State Route 25 and a nairow strip on the north shore along
Long Island Sound. Prime farm land lying north of Route 25
should be preserved for agricultural uses, and any develop-
ment that might. occur in this area limited to a very, low density.
Two residential categories are proposed (see Plan map)
1 The Agriculture-Residence Area covering most of
Southold's important agricultural land is located
primarily north of Route 25. Housing types are
limited to one family homes and density recom-
mendations vary grom .5 to 1 dwellings per net
acre, depending upon the availability of a public
water system.
Low-density residential development is shown on
the Development Plan primarily along the south
shore and in a narrow strip along Long Island
Sound. Housing types suggested here are limited
to single family houses, but a higher density than
in the Agriculture-Residence Areas, The densities.
for these areas are 1 to 2 dwelling units per net
acre depending upon the provision of a public.
water system.
( AGRICULTURE
fApproximately half of Southold's 28, 150 acres of land area are
i'. in agricultural use. The 1965 value of the total farm cropwas
in excess of eight million dollars, making Southold one of the
leading dollar-value agricultural towns in New York State. If
the Town is to exert effective control over the development of
agriculture and open lands, financial measures will have to
be.employed in addition to the normal regulatory devices pro-
vided by zoning. The following are several ways which the
Town may consider in seeking to preserve its farm lands:
j1. Adjusting tax assessments on the basis of periodic
contracts.
2. Purchase of development rights.
3. Restriction of municipal services to areas proposed
I for intensive development in the plan.
If the basic policy of agricultural land preservation set forth
in the Plan is adopted an intensive effort should be under-
taken to devise an appropriate program for the achievement
of this aim.
COMMERCE AND INDUSTRY
Industrial areas. More than 600 acres in the Town are pro-
posed for industrial uses,' in areas well separated from res-
idential development but convenient to transportation routes.
The. largest such area is west of Mattituck Central Area be-
tween Routes 25 and 27; two others are located west of the
Village of Greenport and in the northwest portion of the Town
(see Plan map) . The nature of the industries attracted to i
these areas and the impact they have on residential areas and
highway traffic can be controlled through appropriate zoning
regulations.
COMMERCIAL. AREAS �
Retail development is primarily limited to business centers
which are presently in existence. The Mattituck CentralArea
is of major importance since it is already subject to develop-
mental pressures from growth spreading eastward from River-
head. To strengthen the retail development of established
business. centers, commercial ribbon development should be
discouraged along State Route 25 and absolutely prohibited
along County Route 27
TRAFFIC CIRCULATION
Street system proposals are designed to satisfy present defi-
ciencies as well as those which will surely develop as the
result of the inevitable increase in traffic resulting from the
population growth and greater use of the automobile in the Town.
The major goal of the Development Plan is a highway network
that will eliminate present hazards and bottlenecks and accom-
modate the greater traffic volumes anticipated in the future.
To this end each thoroughfare in the Town has been identified.
either as a major street;.a collector road (linking major and
minor streets); or a minor street (giving direct access tohomes
and stores) . Proposed' standards for each type of street are
set forth, and specific recommendations are made for raising
existing and future streets to these standards.
Schools.. To meet future educational needs, the Development
Plan endorses the recommendations of the 1958 New York State
Master Plan for school district reorganization to centralize
all seven school. districts in the Mattituck -Southold Area.
Public Buildings.. New public buildings proposed by the Plan
include a new Town Hall, and several new firehouses. '
Public Utilities. Residential grodvth along the south and north
shore is predicated upon the development of a public water
supply system. The Greenport water system should be grad-
ually extended eastward along the main road to supply water
to East Marion and Orient. The areas along the southerly.
shore line, between Greenport and Mattituck, could be sup-
plied by an extension of the Greenport System or by a new
system developed by.the Town or by the Suffolk County Nater
Authority.
MAKING THE FLAN WORK
The preparation and adoption of a Development Plan does not
alone insure the development of the Town in accordance with
the Plan's objectives and proposals. Animportant partof the
planning program is that which describes ways of implement- ..
ing its proposals. Some of the planning tools available to the
Town are:
Zoning and Subdivision Regulations_
Through zoning, a community can regulate the use of
each parcel of land, the density of development, and the
size and location of buildings. The Town's present
ordinance is, in mostinstances, not adequate to enable
the Town torealize the aims of the proposed Plan. The
new regulations recommended by the consultants will
be reviewed by the Planning Board and the Town Board,
and with such changes as may appropriate submitted
to the.community at a public hearing prior to adoption.
Subdivision regulations are designed to insure high
standards of residential development. A new set of
One of the major streets proposed is a link between Routes 25
and 27 that would enable through traffic to by-pass the Vil-
s is Pro-
posed
of Greenport. To solve this problem, a by -pas
1 posed west of the Village at Chapel Lane.
Perhaps the most important collector street proposed is an ex-
tension of Sound View Avenue along the north shore. The De-
velopment Plan also proposed the extension of Bowery Lane to
Sound View Road. Both of these recommendations would facil-
itate more direct access to and from the residential develop-
ment and proposed parks and beaches on the Long Island Sound
shore.
COMMUNITY FACILITIES
Recreation. The rural character of Southold has heretofore pre
eluded the need for an extensive program for active and pas-
sive recreation. However, as the community character becomes
ly leisure time increases, new
more suburban, and as fami
demands for recreation facilities will arise. The Plan proposes
that a number of new parks be developed that will take advan-
tage of.the Town's extensive shore frontages. Beachfront
recreation areas should be developed in the vicinity of Matti -
tuck inlet, between Peconic Inlet and the Great Pond, and in
the vicinity of Hog Neck Bay. - Both State and Federal aid is
available to acquire park land. In addition, the State Park at
Orient Point should be enlarged to include the salt marsh areas
to.the north.
Wetland and Inlet Preservation. The Development Plan recom-
mends the permanent retention and public control of wetland
and inlet areas. The dredging of wetland basins can jeopar-
dize the fresh water character of the underlying aquifers. In
addition, such dredging seriously contributes to salt water
intrustion into fresh water storage areas. The Proposed Zoning
Regulations prohibit developmental encroachmenton "Wetland
Areas" designatedonthe Proposed Official Map. These areas
can still be used for private purposes of an open nature which
will, not adversely., affect the natural attributes of the wet-
lands and inlets
i regulations were prepared by the planning consultants
and after a public hearing, they can be adopted by the
Planning Board with the approval of the Town Board.
Official Map
An Official Map is a legal documentwhich prevents
building in future or widened streets, parks,'anddrain-
' age rights-of-way. In this way the eventual cost of in-
stalling such improvements can be substantially re-
j duced. The first step is the adoption of a map showing
all existing streets, parks, and drainage areas. Based
on the Development Plan proposals forthese facilities,
amendments to the Official Map should then be made.
Capital Improvement Programming
I The Plan urges' the Town to undertake a systematic pro-
cedure for preparing annual and long range programs for
all improvements to be financed wholly or partly with
Town funds. Under this procedure a program is drawn
up annually for public improvements needed in the next
six years. Priorities are then assigned to the projects,
and a budget is adopted to finance the coming year's
projects. This process would enable the Town to an-
ticipatefuture expenses and to assure long-term pro -
ijects such as parka cquisition and street improvements.
Federal and State Aids
New York State and the Federal government provide many
assistance programs relating to specific community im-
provements. These include park site acquisition, school
construction, water supply and treatment facilities,
housing for the elderly, and beautification.
Under the Housing Act of 1949 as amended, the Federal
government, through the Department of HousingandUrban
Development assumes three-fourths of the net cost of re-
Pop-newing deteriorating areas in communities of 50, 000
ulation or smaller. The other fourth is shared equally by
the State of New York and the locality. Communities
may qualify for aid only if they have undertaken compre-
hensive planning programs and other measures to pre-
vent future blight such as concentrated code enforcement.
YOUR ROLE
The Development Plan summarized here represents two years
of careful thought and study by your Planning Board and its
professional consultants. Now itis ready to be consideredby
those it will most directly affect --the citizens of Southold.
The Planning Board urges you to study the plan and register
your reactions and suggestions. Public meeting with oppor-
tunities for open discussion may be held.. Only after such
meetings and a review of citizen opinion will the Planning
Board consider acceptance of the Plan as its official policy.
Bear in mind as you review the Plan that it has no power to
automatically bind present or future generations. Itis essen-
tially an advisory document, a guide, and one that will have
to be adapted to Changing times : Acceptance of the Plan does
not necessarily assure its success. The citizens of South -
hold must provide the impetus and vigilance to carry the plan
into action.
In the. more than seven years of .continuing study of trends in the Town of Southold
many revealhig facts havebeen uncovered and, in general, the Planning Board has tried ;
to present them to the public..At the same time it is recognized that change is .the order.
of the day in Southold and further study is necessary. Nevertheless five years have
elapsed since the first reports and projections were made, and there is now an opportunity
to evaluate and recapitulate.
POPULATION. The 1960 census shows Southold with a population of 13,295 and
a population density of .426 persons per acre (Riverhead .334 and Southampton .291).
The Cornell study in 1964 showed 14,186 exclusive of Fishers Island, which agrees with
the Lilco figure of 14,626. If present estimates of about 17,000" are correct the population
density would be 6 persons per acre. Cornell's medium projection for 1970 was 15,885. In
1975 we will have 19,750, in 1980 - 23,000, and in. 1985 - 28,000 by the estimates of the
Nassau -Suffolk Planning Commission.
WATER. The water study made by Malcolm Pirnie Engineers in. 1963 and 1964
was made during a series of deficient rainfall years and thus established the danger point.
-Subsequent years have seen greatly reduced pumpage for irrigation. Pirnie's factor of 40 TO
"run in" would contribute 16 inches of rainfall per year to the ground water reserve.
Since irrigation never exceeds 6 inches per year, and in 1970 was less than 3 inches per
acre actually irrigated, it can be seen -that open land in agriculture contributes tremen-
dously to Southold's water resource and thus provides for existing areas of denser popula-
tion.
Water must be properly distributed and sources of water adequately protected.
AGRICULTURE. Southold has 10,0,00 cropped acres of some of the most productive .
land in; America. It is probably the Number Two agricultural town in New York State.
'An average sized farm of 80 acres in Southold produces enough potatoes to feed 24,000
people with potatoes every year..Clearly Southold farms supply food not only for the
local market, but also a large area of the eastern seaboard. Although total land in farms .
is somewhat higher than the 10,000 cropped acres there has been some movement out of
agriculture. Nevertheless tenancy has not increased. Farmers still own about 43% of what
they operate. Much of what they rent is owned' by former farmers.
r• t
LAND USE. The Plan for Development indicates that in 1.963-65 there was in
' agriculture 13,136 acres or 46.7% of the'Town's total area. Development of all kinds was
5,133 acres or 18.2%, including homes, commercial, industrial and public uses as well as
highways. Still remaining in vacant and private open space was 9,881 acres or 35.1% of
Southold's land. Since this base period and contrary to trends elsewhere there has been
a building boom with June 1970 setting an all-time high for any month.
It would seem that a resident population' of 28,000 in 1985, being slightly over
Cornell's medium projection for that year of 26,700, could readily be housed on - the
10,000+ acres in the Town not in farms, and that existing land in agriculture might well
remain in that use, at least until that time.
The study and report just submitted by Dr. Joseph Sullivan for the Town Board
indicates considerable interest in this direction on the part of the Town's farmers. This
study also points out in detail what has happened to agriculture and the Town in the past
7 years, and our deductions have been drawn as a result of this study.
Planning at all levels, National, State, and. County all recommend retaining land in
agriculture as long as possible: It assures a supply of food for future needs, it relieves
the tax burden for all local services as shown by the Suffolk County Planning Commission
and by lowering the population density greatly, it enhances Southold both for permanent
and part-time residents. ;
Since the Cornell study stresses the importance of maintaining Southold's rural
atmosphere, it is hoped that means will be found both to preserve open space in agricul-
ture as well as woodlands, wetlands, scenic areas, and shorefront.
"Progress is being made. at the flown level in each of these areas.
SOUTHOLD'S PLAN FOR DEVELOPMENT
History and Background
The Town of Southold started work on a plan for development more than 7 years ago..
The first studies were made in 1964 and 1965 by Cornell University as s pilot research projett.
These studies included agriculture- part-time residents, and tourism; finfish and shellfish; and an
9 .
economic base study. Reports were submitted and are available for further study..'.
A study of the fresh water resources of the Town was made by Malcolm Pirnie Engineers
in 1965 and report submitted. This report indicates that we were currently using for all purposes
about. .2/3 of our total safe water resources at that time with 1/3 which could be used for addi-
tional growth. This would accommodate approximately twice the 7965 population if other uses
remained constant and more at the expense of agriculture.
The. planning consultants, Raymond and May, selected by the Town corelated all findings,
made studies of population centers, traffic flow, possible bridge impact, population density, and
other factors and prepared, first, a report of findings, and then a plan for development and de-
velopment plan map. The latter were subsequently revised and presented at a series of Infor-
mation Meetings in 1969. The map at that time consisting only of. a small scale, colored map
printed on the information folder. The meetings, while generally favorable, indicated that
there were two general areas of disagreement: first the airport north of Mattituck, and second, the
future of agriculture in the Town. As a result the airport was dropped from the plan and a
comprehensive study of the future .of agriculture was .undertaken. Ninety-six' of the Town's one
hundred farm operations were interrogated (3 more are Riverhead based). The findings are avail-
able in the Sullivan Report. They show that 1/3 of Southold's farmers plan to continue farming for
the next 10 years, another third may or may not continue, and finally one third plan to sell
out in the near future. This report also showed the amount of owned land in these operations
to bethe same percent as the Cornell Study found 5 years earlier.
The next step was to hold another meeting in 1970 presenting all the information so far
accumulated and the response at this meeting indicated that. those attending favored adoption. At-
that
tthat time Part Two Comprehensive Development Plan, Town.of Southold by Raymond and May,
Planning Consultants -was released and placed on file in each library and Town office ifi the
Town.. This we recommend with the deletion of pages 41 to 47 inclusive being the airport study.
V.
i.,�t.
r'
SOUTHOLD'S PLAN FOR DEVELOPMENT
History and Background
The Town of Southold started work on a plan for development more than 7 years ago..
The first studies were made in 1964 and 1965 by Cornell University as s pilot research projett.
These studies included agriculture- part-time residents, and tourism; finfish and shellfish; and an
9 .
economic base study. Reports were submitted and are available for further study..'.
A study of the fresh water resources of the Town was made by Malcolm Pirnie Engineers
in 1965 and report submitted. This report indicates that we were currently using for all purposes
about. .2/3 of our total safe water resources at that time with 1/3 which could be used for addi-
tional growth. This would accommodate approximately twice the 7965 population if other uses
remained constant and more at the expense of agriculture.
The. planning consultants, Raymond and May, selected by the Town corelated all findings,
made studies of population centers, traffic flow, possible bridge impact, population density, and
other factors and prepared, first, a report of findings, and then a plan for development and de-
velopment plan map. The latter were subsequently revised and presented at a series of Infor-
mation Meetings in 1969. The map at that time consisting only of. a small scale, colored map
printed on the information folder. The meetings, while generally favorable, indicated that
there were two general areas of disagreement: first the airport north of Mattituck, and second, the
future of agriculture in the Town. As a result the airport was dropped from the plan and a
comprehensive study of the future .of agriculture was .undertaken. Ninety-six' of the Town's one
hundred farm operations were interrogated (3 more are Riverhead based). The findings are avail-
able in the Sullivan Report. They show that 1/3 of Southold's farmers plan to continue farming for
the next 10 years, another third may or may not continue, and finally one third plan to sell
out in the near future. This report also showed the amount of owned land in these operations
to bethe same percent as the Cornell Study found 5 years earlier.
The next step was to hold another meeting in 1970 presenting all the information so far
accumulated and the response at this meeting indicated that. those attending favored adoption. At-
that
tthat time Part Two Comprehensive Development Plan, Town.of Southold by Raymond and May,
Planning Consultants -was released and placed on file in each library and Town office ifi the
Town.. This we recommend with the deletion of pages 41 to 47 inclusive being the airport study.
Most of the time since then has been spent in .preparing a large scale map which, if ad-
opted, will be the Plan For Development Map of the Town of Southold.
The, Map .
The map should, theoretically, show, such development as is best for the Town of South-
old as a whole: Since the original planning effort. was to cover 15 years or target date 2980,
this map does not include plans for more than the next ten years.
By - far the greatest portion of the Town is shown as a single residential and agricul-
tural (A) zone. The State Legislature, County Planning and the Bi -County Planning Commis
sions, all emphasize the importance of preserving agriculture and the Cornell Study points out its
importance in retaining our part-time resident industry. The special Agriculture Study indicates
that farmers, generally, are in accord. Neighborhood business is clustered around existing centers.
of population in an attempt to avoid "ribbon' development, Light industry is encouraged, partic
ularly research type, and boat building and maintenance. Some growth in the motel business is
anticipated and some general industry. However, industries which are heavy users of fresh water.. t
should not be solicited.
Wetlands
Wetlands are shown on the map even though they are generally included in the °`A°° zone.
They are both of fresh and salt water origin' but typically are areas below the 3 ft. contour where
the land is regularly inundated.
Wetlands are shown on the map to -emphasize their importance to the Town and to fa- ;
cilitate a program of assistance in their preservation. They should be preserved because of their
ecological value, their buffer value, and their scenic beauty. It is planned to offer to wetland .
owners use assessment contracts under _which the assessment for tax purposes could be limited to
the use and not related to development value. Such contracts are provided for under "Section 247
of the General Municipal Law of the Sate.
Any planning effort is quite simply an attempt to peer into the future. No one really
knows what will happen by 1980. it, is, however, reassuring to find that at the one third mark
the . Town is well within the range projected by Cornell • as regards population, agriculture, and
tourism. The Planning Board is confident that the projection will continue to be reasonably
accurate and unhesitatingly recommend this plan and map to the people of the Town.