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HomeMy WebLinkAbout2011-05-21 o ti Town of Lansing Citizen's Advisory Committee On the Comprehensive Plan and Zoning (" Zoning Ordinance Review Committee") Report to the Town Board May 2009 Zoning Ordinance Review Committee Community members Guy Krogh, Chair (Lansing Town Attorney acting as citizen) Chandler Benson Margo Hittleman Ruth Hopkins Kathy Miller Andy Sciarabba Town Representatives Matt Besemer - Lansing Town Board Lin Davidson — Lansing Planning Board Larry Sharpsteen - Lansing Planning Board Hurl Sheldon — Lansing Zoning Board of Appeals Executive Summary The Citizen Advisory Committee was appointed in August 2008 by Lansing Supervisor Scott Pinney and the Lansing Town Board to make recommendations to the Town Board , Planning Board and Zoning Board of Appeals regarding a number of planning and zoning issues. The Committee met 18 times from Aug . 2008 — April 2009. Much of the committee's work centered around the " 100 Item List" — a cumulative list of planning and zoning issues that had accumulated over some years, with responses and recommendations from the Town, Planning and Zoning Boards, the Town attorney, and Town and County planners . The Committee also had far-reaching discussions on our sometimes differing views about what might advance the well-being of the Town of Lansing . This report presents the outcome of that work in the following sections: overview of the process, guiding principles re: planning and zoning in Lansing, key recommendations, outstanding issues, and (in Appendix B) specific recommendations for each item on the 100 item List? 1 Key points : • Overall, the Committee recommends retaining the Town's current Comprehensive Plan, zoning lines and zoning classifications as they are. We saw no need to change these at this time. • We recommend some adjustments to zoning ordinance changes to address inconsistencies, clarify intent, bring the plan in line with the current legal code, and/or address clear problem areas. These are summarized in our notes to the " 100 Item List" (Appendix C). • In many cases, we believe that the Town's goals can be better achieved through more consistent enforcement of the current ordinances or through non-zoning approaches such as more active support for desired development initiatives and farmland protection, rather than through zoning changes. We recommend the creation of several new citizens' committees (below) to assist with this work. • We believe that the Town should simultaneously encourage and balance economic development, farming and the preservation of good farmland , and the protection and preservation of the Town's natural resources and rural "character." Initiatives (such as a local Farmer's Market) that could simultaneously strengthen all three areas should be actively pursued . • In keeping with best planning practices, we recommend that nodal development be encouraged , strip development and sprawl be avoided, and wide community participation with skilled facilitation be integrated in future planning processes . • We recommend that the Town explore the development of a Town Center. We looked favorably on the Town Center recommendations re: general characteristics and boundaries outlined in the Town's 2010 Plan, and we suggest they be considered in future efforts. However we also recommend an open public process to discuss these issues as the Town moves forward in this area. • Finally, we recommend that any changes to the Comprehensive Plan should be gradual, if needed, as work on the Town Center proceeds. These recommendations are discussed in more detail in the body of the report. 2 Overview of the process The Citizen Advisory Committee was appointed in August 2008 by Lansing Supervisor Scott Pinney and the Lansing Town Board. Supervisor Pinney named Guy Krogh as chair. The Committee met 18 times from August 2008 through April 2009. The Town Board's initial charge to the Committee is attached ("Mission Statement, Appendix A). in brief, it states that the Citizens Advisory Committee was created to find a consensus about the future of planning and zoning the Town and to make recommendations to the Town Board , the Planning Board , and the Zoning Board of Appeals as how to implement the vision of this Committee . More specifically, it asked the Committee to: 1 . Identify whether zone and/or block zoning is the best alternative for zoning, and whether the existing zoning categories are still viable or should be modernized 2. Make a recommendation as to the vision , viability and location of a Town Center 3. Determine the means and methods for preserving open space and the viability of agriculture in the Town 4. Determine, under whatever zoning proposal the Committee recommends, where zoning lines will be drawn and what an updated zoning map should look like 5. Recommend the proposed language of a new zoning law to implement this vision 6. Make recommendations for updating the Town's Comprehensive Plan . The requested delivery date for the Committee's report was January 2009. However, it was quickly apparent that the magnitude of the charge precluded this, and the delivery date was moved to spring 2009. As a citizens committee, members had varied experience with Planning and Zoning terminology, concepts and local history. Thus, the first several meetings were spent coming to a common body of knowledge about planning and zoning process in general, and the history of earlier efforts in Lansing (e.g. , the 2010 committee and the development of the current comprehensive plan) in particular. We arranged visits with planners from Cornell University and Holt Architects to further inform our work. Much of the Committee's work centered around the "100 item List" — a cumulative list of planning and zoning issues that had accumulated over some years, with responses and recommendations from the Town , Planning and Zoning Boards , the Town attorney, and Town and County planners. In the course of all of this work, we had far-reaching discussions among ourselves exploring experiences, points of view and ideas about what might advance the well-being of the Town of Lansing , 3 This report presents the outcome of that work in the following sections: • Guiding principles re: planning and zoning in Lansing • Key recommendations • Outstanding issues • Specific recommendations for each item on the "100 Item. List" (Appendix C) Guiding Principles The Committee agreed upon several foundational principles that we believe should guide future development, as well as future changes to the Town's Comprehensive Plan and Zoning Ordinances: 1 . The Town should simultaneously encourage economic development, farming (and the preservation of good farmland), and the preservation of the Town's natural resources and "character. " Changes in each area must be weighed against its potential consequences for the other areas. Initiatives in each area should be coordinated, when possible, with initiatives in the other areas. Initiatives that can simultaneously strengthen all three areas should be actively pursued in particular. 2. Planning experts advise wide community participation early in any planning process. Such participation would benefit from skilled facilitation to ensure both broad participation and effective progress and action. The wide public participation in the development of the Town's 2010 Plan, which used skilled facilitators, provides one model for such processes. 3. In keeping with best planning practices, nodal development should be pursued . Strip development and sprawl should be avoided . 4 . Lansing's prime agricultural land must be preserved and development encouraged (and perhaps incentivized) on non-farmable land . 5. Changes to the Comprehensive Plan should be gradual, if needed, as work on the recommended Town Center proceeds. Recommendations Overall, we recommend retaining the Town's current Comprehensive Plan , zoning lines and zoning classifications, or current zoning ordinances. We saw no need to change these at this time. At the same time, we do recommend some adjustments in the Town's zoning ordinances to address inconsistencies, clarify intent, bring the plan in line with the current legal code, and/or address clear problem areas are outlined in the "100 Item List° (Appendix C) . In many cases, we believe that the Town's goals can be better achieved through more consistent enforcement of the current ordinances or through non-zoning approaches such as more active support for desired development initiatives and farmland protection, rather than through zoning changes. These are outlined in our recommendations below. 4 • The Town should explore the development of a. Town Center. o An interim recommendation was made to contract with Holt Architects to assist with the Town Center planning process. Holt Architects has offered to help with this process and this is being considered . o A representative citizen Town Center Committee should be appointed by the town board to guide this effort. One or more members of the Zoning Ordinance Review Committee should be included to ensure continuity of efforts . This Committee will need to work closely with the Economic Development and other citizen committees. o We looked favorably on the recommendations re: general characteristics and boundaries of a Town Center as outlined in the Town's 2010 Plan, and we suggest they be considered as work in this area moves forward . o Widespread, representative, significant, facilitated public participation should be ensured at every stage of the planning process. a In conjunction with developing a Town Center, the Town Board should do what is required to lift the deed restrictions on the state land across from the Town Hall. (This recommendation was made as an interim recommendation to the Town Board .) • The Town should take positive steps to promote economic vitality. There is little in the current zoning ordinance that precludes such vitality. Thus, we do not recommend specific changes to achieve this goal. Rather, we recommend more mechanisms to ensure assistance and follow-up on desirable development projects, both commercial and residential o A representative citizen Economic Development Committee should be created to ensure assistance and follow-up on desirable development projects. The Economic Development Committee should work with the Agricultural and Farmland Preservation Committee (below) to connect the rapidly growing interest in "local food systems" with local economic development efforts. o Real public discussion and participation should be sought on what constitutes "desirable development. " o In accordance with currently accepted "best practices," such development should adhere to principles of "nodal development and avoid strip development and sprawl. o The Town should explore the creation of a local Farmers Market, along with other initiatives, that can encourage both economic development and farming. • The Town should take positive steps to preserve farmland . Farming is a significant and valued part of the Lansing community for many residents. 5 o An Agricultural and Farmland Preservation citizen Committee should be established to help interested farmers explore existing mechanisms and financial supports to retain their farmland , assist the growing number of new & young farmers, and explore other ways to actively preserve Lansing's prime agricultural land . o This committee should work with the Economic Development Committee (above) to connect the rapidly growing interest in "local food" with local economic development efforts. o The Town should move forward with the current state Ag grant and explore ways to enhance local efforts to help farmers and preserve farmland. o The recently revised subdivision law should be reviewed for its unintended impacts on farmland and planned development. • The Town should build on the interest in "pathways" by developing a template of logical pathways, particularly in the center of town and, if the opportunity exists, within Unique Natural Areas (UNAs) or other development areas. • A citizen Utility and Infrastructure Committee should be established to help the Town explore and recommend options for development of cable service, high-speed internet access, future roads, and to possibly revisit the sewer options, as well as other such infrastructure. o The Committee was split in its views regarding the development of a sewer system throughout the town (see "Outstanding Issues," below), and recommends further public discussion of this topic. o The Committee recommends that the Town provide stronger support for residents seeking to negotiate with utility companies to bring high-speed Internet access. (including cable) to their neighborhoods. In particular, the Town should ensure that the terms of its franchise agreements with utility companies are being followed . o The Committee proposes consideration of ordinances relating to large community issues such as shale oil extraction (road damage) and windmill placement (road damage, environment, rural character) making sure to differentiate individual rights from large commercial interests. • A citizen Conservation Committee should be established to help the Town explore options for fulfilling the Comprehensive Plan with regard to beautification and conservation of Lansing's natural unique resources. o The Town's natural assets (including, but not limited to Myers Point and the Lake) are also a significant and valued part of the local quality of life. The Town should take positive steps to preserve and protect them and to avoid unintended degradation of these assets by development. 6 o The Town's Unique Natural Areas (UNAs) should be reviewed, along with any additional or specific areas the Town might want to include. • The Town should ensure more consistent enforcement of the current ordinances (including, but not limited to the "junk" ordinance, outdoor storage, pods and trailer storage, etc.) . • The Town is encouraged to develop and keep more extensive records of Planning, ZBA and Zoning office activity, including inquiries. Summaries of such activities can be used to inform future revisions in zoning or other town codes and processes, as well as to provide information for follow-up by the recommended citizen advisory committees. Examples of such activity logs are in Appendix B , below. • The town is advised to review activity subsequent to the revised subdivision law, 4-08 and consider impact of the new law on the overall approval process, in particular the SEQR review, and on past and future issues such as backland abandonment, strip development, streams and wetlands and erosion, and safety affected by driveway placement. Additionally a process for tracking the numbers of subdivisions needs to be explored . • In accordance with the "best practices" recommended by planning experts, the Town should ensure wide public discussion and participation regarding future development, zoning and planning decisions, particularly those with the potential to change the character of the town , This should take place early in these processes to avoid stalemates and gridlock. And it should include skilled facilitation to ensure real participation that can lead to action and limit the potential "tyranny" of a "vocal minority." • The Town is encouraged to create a Comprehensive Planning Committee, comprised of representatives from each Town Board to coordinate efforts, look for synergies and initiatives that can accomplish multiple goals simultaneously, and ensure continuity. We also recommend that this committee be charged with annually reviewing the Town's Comprehensive Plan to identify areas that need to be updated or clarified, or that merit further public discussion . • As noted above, we recommend that the Town Board create several new standing Citizen Advisory committees; the committee memberships should be widely representative of diverse interests. o Town Center committee o Economic Development committee o Agricultural and Farmland Preservation committee o Utility and Infrastructure committee a Conservation committee o Comprehensive Planning committee (comprised of representatives from each Town Board) 7 • Remaining Unresolved Issues In addition to the recommendations above, the Committee identified a number of issues worthy of more consideration. Although we had several lively discussions about these issues, we did not reach consensus regarding a recommendation. However we agreed that these were important issues meriting further public discussion. ® Balancing economic development, farmland preservation and the protection of natural resources: There were differing views on the relative weight for each of these goals. Further public discussion is needed on this subject. We did agree that particular attention should be paid to efforts that can maximize all three goals simultaneously. "Open Space": The Town's zoning ordinances regarding "open space" do not sufficiently distinguish between different types of open spaces (green spaces, recreational parks, wildlife habitat, water resources, unique natural areas, etc .). Further discussion is needed about the varieties of "open spaces" desired in the Town, their different uses, and the differing impacts of future development on each type. Committee members differed significantly in their views on the degree to which the Town should regulate and/or incentivize future development to protect natural assets. ® Preserving farmland : There was a consensus about the Town's collective interest in preserving farmland . However, committee members differed significantly in their views on the degree to which the Town should have ordinances that restrict the future uses of privately owned land . ® Sewer: The Committee was divided in its views about the desirability and necessity for expanded sewer infrastructure in the Town. ® Public participation in planning — Some committee members strongly believe that opportunities for real, community-wide participation are necessary for successful planning and development. Others were concerned about the "distortions" and "roadblocks" that can be introduced by a vocal minority of citizens. All agreed that effective public participation requires skilled facilitation, and that skilled facilitators should be sought whenever possible. 8 Appendix A: Charge provided by the Town Board to the Committee Town of Lansing Citizen's Advisory Committee On the Comprehensive Plan and Zoning (The "Zoning Committee") Mission Statement It is the desire of the Town Board of the Town of Lansing to update and modernize the Comprehensive Plan and Zoning Laws of the Town of Lansing . The Town Board wishes to create a more flexible plan and laws that would promote business development in business parks and along major commercial corridors, mainly including State Routes 34 and 34-B and North Triphammer and Peruville Roads. This will be done while protecting residential uses, public order, the right to farm and land values including consideration of mixed use districts, overlay districts, and PDA's (Planning Development Areas). When attempting to implement these changes it became clear that there were alternate versions of the future of planning and zoning within the Town. Even among those who agreed with the Town Board's vision, there were those who disagreed with the proposed implementation plan. This committee was set up to receive a broad range of views . With the blessing of the Planning and the ZBA Boards, and with the express authorization of the Town Board , the Citizens Advisory Committee was created to find a consensus about the future of planning and zoning the Town and to make recommendations to the Town Board, the Planning Board , and the Zoning Board of Appeals as how to implement the vision of this Committee. Accordingly, the Committee is charged with achieving the following objectives on or before January 15 , 2009: 1 . Identifying whether zone and/or block zoning is the best alternative for zoning in the Town. Also whether the old system of R1 , R2, R3, B1 and B2 is still viable or more modernized categories of zones be created; including identifying whether incentive based zoning , or more flexible zoning rules and procedures can improve the community and increase business counts. 2. Make a recommendation as to the vision and viability of a Town Center, including where it should be located, and what types of zoning regulations and zones should apply. 3 . Determining the means and methods for preserving open space and the viability of agriculture in the Town 4. Under whatever zoning proposal the Committee recommends, where will zoning lines be drawn and what will an updated zoning map look like. 5. The proposed language of a new zoning law to implement this vision. 6. Making recommendations for updating the Town's Comprehensive Plan, including the specific language thereof. 9 The Town Board is aware that this is a huge task and that is hwy each one of you was chosen .. Thanks for your past and continued service to the Town . Sincerely yours, A. Scott Pinney Supervisor, Town of Lansing 10 Appendix B: Table 1 : Example of activity log for ZBA: Meeting Date Zoning Resident ZBA Notes: ordinance(s) request response involved . . .specific# Example of Planning Office log: Date Name of Inquirer (in person, Topic Zoning code# Response Notes phone, email, fetter) • 11 Appendix C : "100 Item List" with Committee's comments. 12 0 a a F N N > C a C iv . _et L 'E O 0 2 N 8 la O O D t 'G N „N�' y @ �N tau O y 0. U _ ris in > to C c S E C N .c) o 0 71 ) d F- p �y ry ¢j J 'j�' llQNpp� V7 b EIJ N C D y •LC' p, •CC 0 @ O. N E r 11 a a 'O N N co j O I') to a .ri a) a) Y 2, N = O o a a) W N a 'a O CO '�. C .. S N ti N c `k 4 C -5 LO . .. (0 N. co Q 2 N m E m 7 N U "O m b W 6 2 N N ? N vi G UI 0 40 O 'O E O O92 C c p `La-t oo a O o y 7 N c.N o ai O 11 N O m - m To ta E a y u d p N L Ca SC N a) 2 E E f830 •O y O co p a 0 $ D Ea. C O. .0 c6 d 0) c 'Np C G .4 a UU0i. 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