The consultants aiding the Comprehensive Plan Update provided a status report, including preliminary findings, goals, and recommendations.
This post focuses on the presentation itself. For more about the people working on the update, concerns about the preliminary report, and other aspects of the meeting, read the companion post: “As excepted, Comprehensive Plan Update cues concerns.“
For Tuesday’s Town Board work session, the team from NYC-based BFJ Planning focused on action items.
“We’re looking to create a document for you that’s really a working, useful document,” said architect Noah Levine, who attended in person. Architect Susan Favate joined via Zoom.
Levine said four vision principles “tweaked” from a drafted vision statement guide the work:
- Exercise responsible stewardship for the natural and cultural resources which give the Island its special character and significance
- Increase the resiliency of the Island to climate change and sea level rise by implementing appropriate adaptation measures
- Maintain a vibrant year-round Island community that meets residents’ economic and social needs
- Motivate and enable upcoming generations to be part of Shelter Island’s future
Overview of Comprehensive Plan chapters
BFJ provided bullet points listing key findings, goals, and recommendations for nine of the 11 anticipated chapters. View the full slideshow here.
Levine said revising the chapter drafts is ongoing. The condensed content presented Tuesday was intended to give a brief overview of a lengthy and complex document that will have numerous tables, charts, illustrations, and appendices.
Titles for the draft plan chapters are:
- Introduction and Vision
- Growth and Change (Demographics and Socioeconomics)
- Built Environment, Land Use, and Zoning
- Housing
- Economy
- Transportation
- Natural Environment and Water Quality
- Parks, Open Space, and Waterways
- Quality of Life (Historic Resources, Cultural Resources, Government Services)
- Utilities, Sustainability, and Resilience
- Future Land Use Plan and Implementation
Missing from Tuesday’s discussion were summaries of chapters 3 and 11. Levine said Chapter 3 captures the current land use on the Island and that maps — which best illustrate existing conditions — are undergoing revisions based on the latest data from the Town assessors.
Chapter 11 will primarily be a synopsis of recommendations relating to land use, many of which are spelled out or alluded to in the other chapter summaries presented Tuesday.
Among the public comments were criticisms noting the absence of a list of specific zoning code recommendations. Levine reiterated that the purpose of the status update was to keep the Town Board informed of progress to date and seek feedback on the basic outline and preliminary recommendations.
Demographics and Socioeconomic Trends
Introducing the data relating to the Island’s population, Favate said, “I “think a lot of this is probably apparent to all of you who know it so well.”
Key findings:
- Shelter Island’s year-round population has grown, with Census data showing a full-time population of 3,253 people in 2020, up 36 percent from 2010
- The Island experiences a population boom during the summer months, growing to 12,000 or more, according to Suffolk County data
- Remote and hybrid work environments may create long-term shifts in residency
- The Town is getting older and appears to be attracting more singles and empty-nesters, with more residents living alone
- Although still majority white (85 percent), the Island’s population has become more diverse; over the past 20 years, the Hispanic population more than tripled from 2.8 percent to 8.9 percent
- Household income has increased, with a very large increase in the number of households in the highest income tiers (above $150K), and a rise in the number below median income ($111K)
- School enrollment continues to fall, despite a brief uptick during the pandemic
She noted that the firm has heard anecdotally of the impact of more people on the Island, especially since the start of the COVID-19 pandemic.
“It’s a little bit tricky to sort of suss that out in terms of the Census,” she said. “But we do know that there will likely be lingering impacts.”
Regarding the shift to an older population with more singles and empty nesters, “that is typical for the region.”
Housing
For the first time, the Comprehensive Plan will include the Town’s Community Housing Plan, developed following voter approval of the Community Housing Fund last November.
“There’s a lot of meat in [the housing plan] to really get at,” Favate said. “It’s kind of a long-term vision for enhancing affordability.”
Key findings:
- Most housing is single-family and owner-occupied, with residentially zoned land primarily owned by off-Island taxpayers
- The Island has seen a steady increase in the construction of new single-family housing, and newer homes tend to be larger and more expensive
- Land conservation has been effective at protecting over a third of the Island but comes with its own challenges
- Development pressure will continue, and infrastructure limits opportunities for traditional, compact land use patterns; about 15 percent of Shelter Island consists of vacant and unprotected parcels, with approximately 1,000 to 1,110 acres of developable land
“Land is becoming more expensive, so it becomes more difficult to preserve in the future,” Favate said. “It just becomes more costly. Also, prices are being driven up across the board, so housing is also becoming more expensive.”
The report also noted that employment influences housing:
- Employment centers around services that support residents but also a significant number of seasonal visitors
- Many employees of Island businesses – especially seasonal businesses – live off-Island and must commute via ferry
- Community Housing Plan has identified actionable steps to increase the supply of affordable housing
With many service industry employees coming from off Island, “that really creates a bit of a mismatch in terms of where people work versus where they live,” she said. “There are, obviously, very significant affordability concerns when it comes to housing.”
Housing goals and recommendations
Goal: Preserve the quality and character of existing residential neighborhoods
- Recommendations:
- Establish a limit on the sizes of knock-down houses
- Address the issue of illegal conversions
- Monitor the effectiveness of the short-term rental law
Goal: Ensure that housing construction is sensitive to the natural environment, of high design and build quality, and consistent with the scale of the surrounding area
- Recommendations:
- Limit the development of pre-existing nonconforming small lots in sensitive shoreline areas
- Strengthen limits on density in residentially zoned areas,
- Strengthen subdivision ordinances to require land for open space and/or affordable housing.
Goal: Provide for a more diverse range of year-round housing options across income, household size, and age groups
- Recommendations:
- Implement Community Housing Plan and update it every five years
- Establish code and policy for the development of Accessory Dwelling Units (ADUs)
- Consider allowing second-floor apartments above retail in business zones (B and B1 zones)
- Proactively identify sites and build community housing in appropriate locations
- Support the creation of a Shelter Island Land Trust
- Establish a low-interest loan program for first-time home buyers
The goals, Favate said, aren’t “trying to stop future development but just making sure that it’s well controlled so that it is consistent with the existing context.”
Some options are for housing that “even if it’s not necessarily deed-restricted affordable, might be more affordable by its nature.”
This includes accessory dwelling units or apartments above ground floor retail in business zones.
“Really, just trying to expand the overall housing options,” she said.
Economy key findings
Favate noted that economic findings also closely link to housing and land use.
Key findings:
- The Island’s businesses are concentrated in a few key areas
- Existing zoning does not match land use patterns
- The number of self-employed and remote workers appears to be rising, with long-term implications on the businesses located on-Island
- The Town lacks a cohesive and comprehensive business community network
- Legacy industries are an important aspect of the Island’s heritage and still have the potential to provide local jobs and activity
“Looking at who’s working and where and how that affects the Island, we do see that even before the pandemic, there was a significant growth in the number of self-employed workers and those working from home,” Favate said.
“There are long-term implications of that we are seeing throughout the region as people are sort of around more during the day,” she said. “It’s actually a positive for a lot of local downtowns that there’s more possibility for those people to patronize businesses during the day when previously they might have been off-Island at work. So that’s definitely creating a long-term shift here.”
Economy goals and recommendations
Goal: Improve the function, appearance, and quality of commercial areas, and ensure that mix of uses meets the needs of residents and visitors
- Recommendations:
- Consider merging B and B1 business zones and use design guidelines to ensure buildings are compatible with the surrounding area
- Create hamlet-scaled zoning in the Heights/Bridge Street area
Goal: Support improvements that make the Island more attractive for businesses and workers
- Recommendations:
- Identify ways to improve and expand high-speed internet infrastructure while ensuring that services are reasonably priced
- Work with the Chamber of Commerce to set up a group health plan for local businesses
- Explore an apprenticeship program between the Town, school, and local businesses
Goal: Continue to support the agriculture and aquaculture industries
- Recommendations:
- Protect legacy businesses related to agriculture and aquaculture
- Consider leasing municipally-owned underwater properties for aquaculture
Transportation
Maintaining and improving transportation systems, Favate noted, requires coordination and collaboration with outside agencies. Regarding the ferry companies, she said, “It’s important that they remain supportive and available to everyone who needs them.”
Key findings:
- Ferries are an essential component of daily life
- The Island’s transportation network is vulnerable to sea level rise and flooding
- Vehicular traffic has grown, and more transportation options are needed, especially to make it easier for people to work on the Island
- Multiple jurisdictions control roadways
- Roadway safety remains a priority, particularly for pedestrians and bicyclists
- Bicycling is popular, but infrastructure is limited, and roadways have inadequate pedestrian infrastructure
Transportation goals and recommendations
Goal: Design “Complete Streets” that are safe for all modes and abilities, including pedestrians, bicyclists, and motorists
- Recommendations:
- Adopt a Complete Streets policy to encourage roadways designed for all users
- Consider an Island-wide speed limit of 30 mph to ensure the safety of all street users
- Work with NYSDOT to develop a dedicated bicycle lane on Route 114
- Conduct a sidewalk study to find where improved safety will enhance walking
Goal: Identify ways to improve the efficiency of the roadway network and continue to maintain and invest in roadways
- Recommendations:
- Study the impact of ferry traffic on local roads
- Incorporate shoulders along roadways where feasible
- Address maintenance of vegetation along roadways
- Improve roadway maintenance and develop a capital plan
- Reduce stormwater runoff along roadways
Goal: Improve both on- and off-Island transportation options
- Recommendations:
- Explore a passenger-only launch service to and from Greenport
- Explore the possibility of providing an “around-the-island jitney” service
- Promote sustainable transportation alternatives (e.g., EV Charging stations)
Natural Resources and Water Quality
“Water quality was the most important issue we heard from any of the residents, from the review of the materials, as well as from conversations with the CPAC,” Levine said. “We understand that this is a sensitive issue.”
Levine said the Comprehensive Plan Update will include the Town’s entire Ground and Surface Water Management Plan (GSWMP) as an appendix. “We’ve also incorporated many of the recommendations — some consolidated in a more narrative form.”
The GSWMP “should be the kind of a prime resource for recommendations having to do with ground and surface water management.”
Key findings:
- Water quality is highly vulnerable to contamination, and significant actions are needed to preserve it
- The Island has many ecological resources of statewide significance
- The Island is susceptible to invasive species that can have major ecological, public health, and economic impacts
- Climate change will see rising temperatures and more frequent droughts, and an increase in the number and severity of storms and flooding
- Most areas of Shelter Island are not vulnerable to flooding, but sea level rise is accelerating and will bring major impacts
Natural Resources and Water Quality goals and recommendations
Goal: Ensure that all Shelter Island residents have ready access to drinking water that meets all applicable local, state, and federal standards
- Recommendation:
- Continue to implement the Ground and Surface Water Management Plan
Goal: Plan for and develop wastewater and water supply infrastructure to safeguard public health and protect the environment
- Recommendations:
- Consider establishing an Island-Wide Wastewater Management District, or local community district
- Continue to investigate methods to treat effluents from municipal buildings in Town Center
- Partner with the Shelter Island Heights Property Owners Corporation to upgrade the sewer plant, provide service to other areas, and explore alternative methods to dispose of treated effluent
- Create a phased Master Plan for public water utility service
Goal: Educate and assist property owners on how to prevent contamination of private water wells and safeguard their drinking water quality
- Recommendations:
- Educate the public on the water quality in their area and encourage testing of private wells
- Develop an incentive program for residents to test their well water and share the data with the Town to establish groundwater quality mapping
- Continue the grant program for I/A system installation
- Develop wellhead protection zoning for the area of recharge for the wells of each of the public water systems
Goal: Strengthen Town regulations to protect groundwater and prevent contamination
- Recommendations:
- Implement source water protection programs that identify vulnerable areas around wells and other groundwater sources
- Revisit the Town’s I/A system code
- Address issues and risks of underground fuel oil storage
- Implement water use restrictions under the drought monitoring criteria established by the Water Advisory Committee
Goal: Protect surface waters surrounding Shelter Island from being harmed by human activity and stormwater runoff
- Recommendations:
- Reduce the discharge of volatile organic compounds and other contaminants through education and Town Code modification
- Provide upland stormwater infrastructure to control runoff
- Continue to monitor the health of surface waters
Goal: Identify, protect, and enhance the quality of freshwater and marine habitats
- Recommendation:
- Restore tidal and freshwater wetlands
Goal: Protect Upland Habitats and Trees
- Recommendations:
- Promote habitat preservation and restoration
- Adopt a Tree Preservation Local Law
- Engage NYSDEC and local resources to explore creating a controlled burning program
Goal: Monitor and Control Nuisance Species
- Recommendations:
- Manage whitetail deer populations
- Work with organizations and property owners to assess and help control ticks and prevent tick-borne diseases
- Develop an education program prohibiting the introduction, throwing, dumping, depositing, or placing invasive species on/in Town land and waters
Parks, Open Space, and Waterways
BJF split water-related topics, placing water quality under Natural Resources and waterways in this chapter.
Given the importance of the waterways to Islanders and visitors alike, Levine said the Comprehensive Plan Update includes a solid recommendation to develop a Local Waterfront Revitalization Plan.
“It’s a planning document similar to a comprehensive plan but focused on water areas,” he said. “It really helps to align local actions with state policy and to help develop community priorities.”
Key findings:
- The waterways appear to be busier each year
- Access for boats is limited
- Seaplane traffic is a growing concern
Parks, Open Space, and Waterways goals and recommendations
Goal: Comprehensively plan for the use and protection of waterfront and waterways
- Recommendations:
- Develop a Local Waterfront Revitalization Plan
- Develop a plan for moorings that could address the following:
- Grid fields
- Environmental impacts
- Boat size limitations
- Permitted tackle
- Pricing programs
- Anchorages
- Limiting mooring fields
Goal: Continue to work with the County, other towns, and groups to maintain navigable channels to ensure safe passage, preserve vistas, sustain marine life, and enable recreational use
- Recommendations:
- Continue and expand dredging projects where needed
- Identify habitat restoration measures
- Protect Reel Point and Shell Beach
- Prohibit excessive power boat wakes with code regulations and signage buoys
- Explore the acquisition of a pump-out boat to service the anchorages and mooring fields throughout the summer
- Consider policies that address the following:
- Limiting seaplane activity
- Boatlifts and boat paint
- Use of beaches by off-road vehicles
- Bulkheads
- A Marine Business Zone
- Establishment of new docks
- Regulations for aquaculture
- Shoreline access
- Prepare a maintenance schedule for Town landings
- Provide resources to the CAC and WMAC for community education and communication
- Consider expansion of programs that support aquaculture
Quality of Life Recommendations
For this chapter, Tuesday’s report didn’t include key findings, and it broke out goals and recommendations into several subsets based on the work of the Town’s CPU team.
Historic Preservation and Visual Landscape
Goal: Safeguard and communicate Shelter Island’s unique identity and history
- Recommendations:
- Activate and staff the Historical Advisory Commission
- Create a Historic District Zone
- Continue to maintain and preserve historical records
Goal: Protect the Island’s small-town way of life, rural character, and natural resources
- Recommendations:
- Develop a program to encourage preservation easements
- Develop an equitable approach to controlling noise disturbances
- Control excessive night sky lighting
Community Resources (Government and Community Facilities)
Goal: Ensure an efficient, effective, and transparent Town government
- Recommendations:
- Increase government capacity for planning and implementation
- Develop a facilities master plan
- Improve record-keeping technologies
- Use new tools for communication and transparency with the public
Cultural Resources
Goal: Support cultural organizations and strengthen the sense of community
- Recommendations:
- Promote volunteerism to maintain volunteer corps of ambulance and fire department members
- Expand recreation department coordination with library and senior center programming
Public Health
Goal: Improve access to goods and services to help the Island be a more resilient and less dependent community
- Recommendations:
- Support expansion of services for the senior population
- Address food insecurity
- Continue tick-borne disease monitoring and reduction
Utilities, Sustainability, and Resilience
Key findings:
- Shelter Island’s electric and communication infrastructure is vulnerable
- Investment is needed, especially in light of climate change impacts
- There are a limited number of green energy installations
Utilities, Sustainability, and Resilience goals and recommendations
Goal: Promote renewable and environmentally responsible utilities
- Recommendations:
- Establish a small group to investigate means of creating greater energy independence and resiliency
- Encourage the use of renewable energy sources
- Evaluate the use of geothermal energy and encourage heat pump installation
Goal: Take action against climate change by reducing energy consumption and promoting sustainable patterns of development
- Recommendations:
- Promote sustainable construction and design standards
- Continue to improve the energy efficiency of Town facilities and fleets
- Develop a Coastal Resilience Plan
Goal: Assure that community facilities provide adequate service over time in a fiscally efficient way that supports the Island’s character
- Recommendations:
- Develop homeowners manual
- Harden and improve communications systems
- Continue to improve recycling center and waste management systems
- Consider appointing a Town Recycling Coordinator
Next steps
If you wish to be heard about the Comprehensive Plan Update, attend one or both upcoming public workshops. The first is scheduled for Thursday, August 24, from 7 to 9 PM via Zoom.
For details on how to connect, visit the CPU page on the Town website at www.shelterislandtown.us/comprehensive-plan-update.
Levine said the purpose of the first workshop is to gather input that will inform BFJ’s editing of the materials supplied by the CPU Task Force and CPAC.
For additional details, you can read the draft chapters created by the CPU team on the Town website here. Follow the prompts to add comments on any of the drafts.
A second public workshop is slated for Saturday, September 23, in person at the Community Center; details TBD. Levine said BFJ will post a complete draft plan about a week before that meeting. The purpose of the second workshop is for members of the public to provide feedback.
“Then, we will hopefully be able to take those comments and finalize the document for submission to the Town Board,” he said.
State Environmental Quality Review
Adoption of a comprehensive plan is also subject to State Environmental Quality Review (SEQR), a process that may include additional public input.
First, the Town Board will declare its intent to act as the lead agency under SEQR. This provides notice to other interested agencies, among them the Shelter Island Planning Board and the Suffolk County Planning Commission. They’ll have opportunities to weigh in on the pending changes.
As the lead agency, the Town Board will have to assess the environmental ramifications of the plan. The Town Board may extend BFJ’s contract to conduct the review or may hire another firm. Minimally, completion of a full Environmental Assessment Form (FEAF) is required, Favate said.
If this review determines that no adverse impacts will likely result from the plan, the Town Board would issue what’s known as a negative declaration.
“When you create a plan, you don’t want one that creates a negative impact on the environmental and your community,” said Councilwoman Meg Larsen, a member of the update task force.
“So, hopefully, the plan we develop is worthy of a negative declaration.”
Suppose the FEAF indicates that adverse impacts may result from the adoption of the plan. The board would pursue further study to determine the significance of those impacts and, where necessary, explore and present mitigations.
This more in-depth study could include the development of a generic environmental impact statement (GEIS). Adoption of a GEIS would involve additional opportunities for public input.
