NOTES: 5/19/00 The Land Use Plan was scanned in from the 'official' book and then the computer converted it to text. Errors are possible. UPDATE 5/22/00 errors are still possible. Formatting towards the end still needs work.
There is one illustration and two maps (Actually one map but divided in half here) in the 'real' book. These too were scanned in and are available by clicking here, for the illustration then here, for 1st half of the map and finally here for the last half of the map.
After they appear you can save them by "right clicking" on a PC or "click and hold" on a Mac and "save the image" to disk. Use your browsers "back" button to come back here.
You can also "save" this page as text to your own computer.
If you spot any errors please email me.
------NOTE: Areas of interest in BOLDFACE are put there by me and are not in the original book that way.
TABLE OF CONTENTS
TOWN DEVELOPMENT AND LAND USE PLAN
Page No.
A. Objective 1
B. Summary of Development Goals 1
C. Critical Issues for Meeting Goals 2
D. Background Evaluation 2
E. Land Use Analysis and Rationale 3
F. Development Goals 5
G. Guidelines For Use of The Plan 10
H. Land Use Plan Map Fold out after page 16
APPENDIX - Profiles of Preble New York
Table of Contents i
Town of Preble Officials ii
Acknowledgements iii
Page I
TOWN OF PREBLE OFFICIALS
TOWN BOARD
Peter J. Knapp. Supervisor
Anne Brennan
James A. Millis
John M. Steger. Jr.
Clint Brooks
PLANNING BOARD
Richard H. Martin, Chairman
Nate Levine
Dennis Dvorak
Elizabeth Clarke
Arnold Smith
Frank Sarat (Resigned Sept er 1993)
Dean Smith
Jeremy Mackey
Patricia Mackey, Secretary
Jean C. Martin. Town Clerk/Tax Collector
Donald L. Wrighti Highway Superintendent
Marilyn Stoker, Town Justice
Page ii
ACKNOWLEDGEMENTS
The Town of Preble Planning Board received valuable assistance from the Cortland County Planning Department in the preparation and production of this document. Staff members include; Thomas A. Cookingham, Director of Planning; Daniel Dineen. Senior Planner; Nancy Mueller. Groundwater Management Coordinator; Debra Albro, Typist; Sharon Cotterill, Administrative Assistant; and Nelissa Aurelio, Intern.
Significant interest and input to this plan has come from members of the Song Lake Association; Nancy Hansen. Cortland County Office for the Aging; Richard Elliott, Economic Development Corporation; and Jeff TenEyck. Soil and Water Conservation District.
Particular thanks to the 2-year long efforts of Planning Board Members, especially Elizabeth Clarke and Jeremy Xackey for their subcommittee work.
Richard H. Martin, Chairman
Preble Planning Board
TOWN OF PREBLE
TOWN DEVELOPMENT AND LAND USE PLAN
A. Objective
The purpose of this Plan is to adequately provide for inevitable changes and growth while retaining the overall rural character of the Town. The Town's general goals defined on the following pages reflect a comprehensive development pattern. The Plan defines seven major land-use categories as follows:
. Residential (R1)
. Residential - Lake Side (R1L)
. Commercial
. Light Industrial
. Conservation wetlands, uplands or open water
. Agriculture prime or secondary
. Recreation Commercial or Public/Non Profit
B. Summary of Development Goals
The Plan establishes development goals and guidelines for the following:
Protection of the Cortland Valley Sole Source Aquifer.
Expansion of existing centers of development.
Avoidance of fragmented growth (strip development).
Preservation of and/or 1imitation of growth in areas designated as Prime Agricultural and Conservation.
Provision for gradual decrease of development densities as one moves away from established growth centers.
More intensive protection of Town's lakes.
In addition to these guidelines are the following considerations:
1. The Plan recognizes growth potential for designated town areas and it does not support random, chaotic and incompatible development. Instead, a logical and smooth transition from intensive to non-intensive land uses is encouraged.
2. The Plan promotes cluster-type development as opposed to linear or strip growth. The retention of natural landscape between settlement areas of the town provides each location with its own separate identity, thus giving residents a sense of the uniqueness of the place where they live.
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3. The Plan encourages preservation and enhancement of the existing rural nature of the Town, with the agriculture land-use being a central theme.
C. Critical Issues for Meeting Goals
1. Preservation of Existing Town Assets.
The existing historical, archaeological, aesthetic and most importantly, the ecological (water quality, etc.) assets of the Town must be safeguarded and preserved. New housing construction and neighborhood rehabilitation must be encouraged and promoted in and around the designated centers of growth.
2. Regulation and Enforcement
To achieve the goals of the Town Land Use Plan, it is important for the Town Board and Planning Board to provide for and maintain updated standards with respect to: subdivision regulations, lakeside development regulations, site plan reviews, fire & building codes, zoning, junk regulation and the Town's official zoning map.
3. Keep Land-Use Plan Responsive.
A role of the Town Planning Board is to formulate practical policies and programs that will help promote the land use plan. The Plan places a responsibility on the Planning Board to make or other modifications to keep the Plan responsive and up-to-date with current Town trends.
4. Community Support of the Goals.
The Plan places a responsibility on the part of private developers to propose and build developments that are in accordance with the Plan. Occasionally, the interests of private enterprise way be in direct conflict with the general philosophy and community interests reflected by this plan.
D. Background Evaluation
The Town Land Use Plan Map (attached) is divided into seven major use areas or categories. The location and extent of each of these areas is based on existing physical constraints and other criteria such as soils, topography, drainage, locations of roads and highways, and the location of existing farmsteads, 1h a and other nonresidential structures and facilities.
During several years spent in preparing the initial Town Land Use Plan, the Planning Board found that It needed an
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understanding of the trends that affect the general character of Preble. The Board studied such trends, as housing, population characteristics, agricultural practices and the local and regional economy (see "Profiles of Preble" Included as an appendix to this plan). A question that will continue to be asked is, how can the character of Preble best be maintained-in the presence of inevitable growth and change? Or, more specifically, how can growth and change be managed in a way that will maintain reasonable compatibility between the Town's largest land use-- which is agriculture, and other activities?
The preservation of agriculture should not be a static, unreasoning and narrow safeguarding of the status quo.
E. Land Use and Rationale
1. Residential Areas
Residential development and farming both require soils of high quality to be successful. Since prime agricultural lands are to be conserved, new residential development should be directed to areas that already have some development. Encouraging infill and fringe residential development is an extension of this policy. Strip housing development is undesirable because of its creeping destruction of the community's rural landscape character. Some of this loss of character results from the incompatibility between farm operations and strip housing.
Existing land use around the lakes has become more intensive in recent years as residents have converted seasonal-use homes into year-around residences. Also, new development around the Town's lakeside areas has increased the threats to water quality and sedimentation of the lakes. Numerous studies have concluded that a more restrictive development plan must be implemented to help slow down the detrimental effects of lakeside residential growth. To this end, a new residential land-use category, "Residential-Lakeside", has been identified in this plan.
2. Commercial/Industrial Areas
Commercial and Industrial development has been moderate over the past ten years, with minimal impact to the rural character of the Town. Both commercial and industrial areas exist in Preble and the acreage appears adequate for the next several years. Future light industrial development is not considered a priority, and has the greatest potential conflict with the agricultural/rural theme of the
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development plan. However, expansion of existing sites and operations, as evidenced by recent cases (rehabilitation of the vacant sauerkraut plant for pleasure-boat production was successfully accomplished in 1990), has led to compatible development. Provision for moderate commercial development, of low density and low environmental impact, in encouraged. However, this development must be carefully located, while considering the economical and logical criteria which would invite investment in Preble.
3. Conservation Areas Uplands, Wetland, & Open Water
Certain areas of the Town have severe limitations for development of any kind. Preserving these areas helps maintain the Town's ecological balance. The conservation areas include those critical lands and waters which are vital to the life-giving food chains providing continuity for relatively wild natural areas. These areas replenish and provide stability for the aquifer, forests, steep slopes and natural drainage ways that combine to produce the unique quality and character of the landscape in Preble. These conservation areas require careful consideration to prevent permanent damage or loss to future generations (mudslide in Lafayette Valley (1993) points to steep slope instability caused by removal of natural cover).
Wetland areas indicated on the Land-Use Map and discussed herein are defined (to the best of our knowledge) to identify areas of concern, and may be under further regulations by the NYS Department of Conservation and the Army Corps of Engineers.
4. Agriculture, Prime and Secondary
The preservation of agriculture is a key to retaining the Town's present economy and open-space character. Defining land in prize and secondary agriculture categories is based on soils analysis. "Prize Agriculture" is highly productive valley land, while "Secondary Agriculture" refers mostly to hillsides composed of lower yield soils. These secondary agriculture areas provide necessary support for crops and grazing. The same soils that are good for agriculture are also good for housing and other forms of construction.
The Board desires to discourage residential development in agricultural areas, since adjoining agricultural operations tend to conflict with residential land-use.
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The Board supports initiatives which would shift agricultural land to more profitable agricultural uses.
Preservation of Agricultural land-uses supports the protection of the primary aquifer underlying the Preble Valley. The cumulative effects of development in the aquifer area pose a serious threat to a safe and adequate water supply serving Preble and other areas of the County.
5. Recreation Areas
Land for organized outdoor recreation activities is located in each of the developing areas of the Town. Recreation land uses, in some cases, provide a buffer for residential and agriculture land uses.
The Town must increase the accessibility of the existing recreational areas by interconnecting trails, as well as providing long-range financial planning for expansion and acquisition of additional park acreage, particularly where the potential loss of private recreational land use to development would threaten environmentally sensitive areas.
6. Aquifer Protection Area
Land located along lakes, ponds, waterways and wetlands have significant ecological and aesthetic values. Without adequate controls, the Planning Board feels that strong future development can infringe heavily on the highly vulnerable Cortland Valley Aquifer. In order to protect the Town's fragile and unique natural water resources, and ultimately the Aquifer, the concept of an "overlay zone" is developed herein, which establishes protective requirements for future shoreline and stream-corridor activities.
F. Development Goals
The land use categories discussed above provide a rationale for the arrangement of land use areas shown on the Land Use map. When developments are proposed in any of these areas, review by the Planning Board should include reference to the goals and policies given below prior to taking action.
1. Residential (R1) Land Use Goal
The Town should provide for compatible residential development in selected areas of Preble.
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Policy Statements
a. For the purpose of orderly growth, cluster type development is to be promoted within the bounds of designated centers.
b. New residential development should take full advantage of solar orientation, using site positioning.
c. Housing is to be discouraged or prohibited in areas subject to natural hazards such as flooding or where soils and/or topography are not suitable for road access, septic systems or storm drainage.
d. Every effort is to be made to limit strip development along roadways because of traffic conflicts and inefficient use of land and service utilities.
e. Residential and other existing homogeneous development areas are to be protected where possible to maintain property and other values.
f. The use of buffer areas, large lots, and common lands are some features to be considered in planning for residential developments, including multi-family units.
2. Residential Lakeside (R1L) - Land Use Goal
Development in areas which are within 1000 feet of the high-water mark of the Town's lakes shall apply a higher standard of protection for the environmental, aesthetic, and recreational qualities of the area.
Policy Statements
a. Adoption of comprehensive lakeside development regulations shall be initiated. These regulations will include at a minimum:
- Larger lot size, requirements (2 acre min.)
- Increased construction setbacks
- More stringent septic and water system requirements
- Storm water and erosion management plans
- Renovation standards which reduce existing environmental threats.
b. Alternate plans from developers that meet average density goal of 2-acre lot min a will qualify for
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waiver incentives on requirements stated above.
C. Long-term comprehensive sewage disposal plans shall be explored and encouraged which ultimately lead to reduced threats to the water quality of the Town's lakes and ground-water assets, and will subsequently permit higher density development standards.
3. Commercial Land Use Goal
Development and/or expansion of commercial land uses shall enhance the economy of the Town and conform to aesthetic standards of recently approved commercial construction (1985-present).
Policy Statements:
a. Commercial development shall not conflict with rural character of the Town.
b. Commercial development shall be supported, if it provides economic benefits to the Town, with minimal impact on health, safety, and welfare of the residents.
c. Commercial development shall be encouraged in only the designated commercial areas.
d. Site plan design reviews by the Preble Planning Board may be utilized, as authorized by future Town Board resolution, to provide comprehensive assessment of potential impacts.
4. Light Industrial Land-Use Goal
Light industrial development and/or expansion shall enhance the economy of the Town and conform to aesthetic standards of recent industrial construction (1985present).
Policy Statements:
a. Light industrial development, in areas so designated, shall be encouraged.
b. Light industrial development shall be supported if it provides major economical benefits to the Town with minimal impact on health, safety, and welfare of the residents.
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c. Site plan design reviews by the Preble Planning Board may be utilized as authorized by future Town Board resolution, to provide comprehensive assessment of potential impacts.
d. Industrial development proposals for high intensity operations which obviously conflict with the rural character of the Town will not be encouraged.
e. Mining of earth materials in Zone A will be discouraged because of the potential detrimental impacts to the sole source aquifer in the Preble Valley areas, and the permanent loss of Prime Agricultural land.
5. Conservation Land Use Goal
Provide safeguards to prevent the irrevocable loss of selected uplands, wetlands and open water areas in Preble containing unique natural characteristics. Conservation of these areas is an essential element in retaining the existing rural atmosphere of the Town. The high level of environmental quality and natural beauty exhibited by the selected conservation areas are both a social and economic asset of the Town worthy of protection.
Policy Statements
a. The management of surface water must be carefully considered in any placement of buildings, alignment of roads and drives and the location of impervious surfaces.
b. It is the responsibility of land owners and developers to assure that proper analysis and planning occurs for the adequate removal of surface water via storm drains, streams, ditches or other means. Consultation with the Cortland County Soil and Water District is encouraged prior to completion of any construction plans.
c. Most development proposed in areas designated for conservation is inappropriate except at very low density. Intensive development in conservation areas should be discouraged or avoided.
d. Floodways, floodplains and streamways should be reserved for low intensity land uses or preserved in their natural state.
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e. Where extraction of earth materials is proposed, the required reclamation plan must be practical and reasonable and the final use or uses it proposes must fit logically into the Preble Land Use Plan.
f. Long-term plans for land acquisition of environmentally sensitive areas should be initiated by the Town to provide important aesthetic and recreational assets for further generations.
6. Agriculture - Prime and Secondary Land Use Goal
The preservation of prime farmland in the Town of Preble is felt to be essential to the continued viability of farming as a livelihood in the Town, as well as preserving the open-space and rural character of the Town. Therefore, it is a major goal of the Town to protect and preserve all prime farmland from encroachment by non-agricultural uses. Preservation of secondary agriculture lands, wherever possible, is also a recognized goal.
Policy Statements
a. If farmland must be taken out of agricultural production, every effort must be made to start with the less productive land, while preserving better agricultural land in the largest tracts possible.
b. Only land uses which are compatible with existing agricultural practices and use should be permitted to locate in agricultural districts.
c. Where a planned residential or mixed use development is proposed, sufficient yards, fences or other buffering should be provided to separate the new development from farming operations.
d. Strip development along roadways and the placement of residential subdivisions in prime farm fields should be prevented to the extent possible.
e. The zoning or rezoning of agricultural road frontages for residential purposes should not be supported, as it runs counter to the maintenance of viable farming in Preble.
f. All proposed non-agricultural uses should be carefully reviewed in terms of their long-term compatibility with farming.
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g. Reference should be made to the official agricultural district map whenever appropriate to determine the probable affects of proposed non-agricultural uses on the district. Where such proposed uses way be deleterious, the Agriculture and Farm Protection Board should be notified immediately.
7. Recreational Land Use Goal
This goal calls for the provision of sufficient space and facilities for the desired recreation of local residents of all ages in all seasons of the year. In addition, the Town wishes to support the continuation of the existing recreation uses and facilities which are used by numbers of people from outside Preble and which are extremely important to the Town's economy.
Policy Statements
a. Areas of land having exceptional recreational, educational or unique natural value to the public (ie: Girl Scout Camp), should be recognized and protected by whatever means possible.
b. Existing town park areas are to be maintained and improved to provide structures and equipment for a wide variety of active and passive activities suitable for Preble citizens of all ages. Safe access to all public recreation areas shall be provided and maintained.
c. Commercial recreation is an important part of the Town's economy, and to support this, the Town should provide good access roads.
d. Open water areas should be protected from pollution and encroachment by aquatic weed growth so that these ponds and lakes can continue to be used for the full range of water-based recreation activities.
e. Assess and develop means for planning and construction of biking and walking trails which would make recreation areas wore accessible.
8. Aquifer Protection Area - Land-Use Goal
Development in an aquifer protection area shall implement increased protective requirements on new construction, in. terms of permitted uses, building setbacks, and environmental performance standards.
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The Aquifer Protection Area shall be defined as that land lying within 150 feet from all lakes, man-made ponds, DEC-regulated wetlands, and the Corps of Engineer's 100-year flood-plain boundary, and will overlay the established land-use goals surrounding the protected-resource feature.
A typical application of this overlay restrictive area is depicted in Figure 1.
Policy Statements:
a. Aquifer Protection goals defined herein shall apply as additions to the specific Land-use goals of the area.
b. Adoption of an Aquifer Protection Overlay Zone shall be initiated, which will include at a minimum:
- Increased construction setback requirements.
- Restrictions on clearing of natural vegetation along the edge of the protected resource feature.
- Prohibition of uses that present a higher potential for environmental pollution (eg: gasoline filling stations, car washes, bulk fuel storage, junkyards, truck terminals, and facilities which use or handle toxic materials).
- Limitations on right-of-way access to Town's lakes.
- Storm water and erosion control management practices.
- Agriculture incentives on tilling and fertilizer applications within 50 feet of high water mark.
- Beach and shoreline renovation standards.
- Construction limitations within flood-plain boundaries.
c. DEC-designated Freshwater Wetland areas included within the Aquifer Protection area shall be regulated by the permitting requirements of Chapter 10, part 663 of the Environmental Conservation Law.
G. Guidelines for use of the Plan
1. Project Evaluation
A town is developed over the years as a result of hundreds of individual and group decisions. These include decisions to buy land, subdivide land, build houses, locate businesses, improve roads and construct public facilities of various kinds. Whether or not these decisions produce a convenient, safe and attractive community depends on how they are related to the Town's objectives as stated-in the Town Development Plan.
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2. Planning Board Assessment and Rationale
a. Adoption of this plan by the Planning Board provides Board members with a sound and logical basis for administering current and future planning efforts for the Town of Preble.
b. The submittal of all subdivisions and proposed zone change requests shall be reviewed by the Planning Board. It is imperative that this Town Development and Land Use Plan be referred to "without fail" as part of the review of such applications.
c. All reviews and subsequent recommendations made by the Planning Board to the Town Board shall be made in writing and will cite the following (at a minimum):
- Whether or not such proposals meet the goals of the Land Use Plan.
- Reasons for recommendation for approval or denial of the proposal.
- Further details and recommendations to the Town Board that should be made part of the subsequent Town Board action on the proposal.
d. In carrying out such reviews, the Planning Board members should be impartial, expedient, and continue to consider the long-range planning viewpoint in their evaluations.
e. The responsibility for continued maintenance and update of the Plan rests with the Planning Board. This on going effort will identify specific Town problems and special needs that grow out of future growth issues that come before the Town. The Planning Board must avoid frequent minor adjustments to the plan to accommodate special-interest situations.
However, on a regular basis (at least every 5 years), the Planning Board shall formally review and update the Land Use Plan and Map to assure that it agrees with and describes the current long-range growth objectives of the Town and its, residents.
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3. Implementation
The following outline indicates how the Preble Development Plan will be carried out. Some of it in brought about through private actions, while some is implemented by the Planning Board and the Town Board or other government agencies. In some instances, joint public and private action may bring about desired results.
Part of Plan Carried Out
Carried Out by
New residential areas
Private developers and individuals, after subdivision approval by the Planning Board.
New roads and streets
By Planning Board action on sub divisions and by Town Board action on new road acceptances, widening, relocation or Town Board action on new road acceptances, widening, relocation or rebuilding. Also by Town Board action on the "Official Map".
Regulation of land use and density of new development
Through the Zoning Ordinance adopted by the Town Board.
Regulation of the character of new commercial/industrial development
Through the Zoning Ordinance adopted by the Town Board and by site plan approval of the Planning Board. The State Environmental Quality Review Regulation protects the natural environment.
Drainage, water supply, fire protection and sewage disposal
Town Board action to create districts and actions by special districts in authorizing improvements. The County Health
Department issues sewage disposal permits.
Recreation areas
Action by the Town Board in land acquisition and improvement. Action by the Planning Board in approving new subdivisions requiring land or a cash payment in lieu of land.
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Conservation areas
Lake Associations, and N.Y. State Dept. of Environmental Conservation. Both the above are concerned with natural resource protection.
Agriculture areas
Most Preble farms are included in an agricultural district administered by the County Agriculture and Farmland Protection Board. Improvement programs are sponsored by the County Soil Water Conservation District.
4. Subdivision Regulations
Preble can be expected to develop by one subdivision at a time. Unless each major subdivision is planned to fit into a satisfactory pattern of streets and related facilities, the Town can become an unattractive collection of poorly designed housing, developments with associated traffic, drainage and sanitation problems.
In 1978, the Town Board approved the establishment of subdivision regulations which were authorized by Town Law. These regulations set the standards and requirements that must be followed, in creating new land subdivision and related road and street access. As provided by the Town Law, the regulations are administered by the Town Planning Board. Each new land subdivision must be approved by the Planning Board before the subdivision may be recorded in the County Land Records and before any development way proceed.
The subdivision regulations of the Town are as important to the development of Preble as is the Zoning Ordinance. While zoning regulates the use of land, the subdivision regulations control the layout and design of streets and roads and establish the improvements required in all new land developments.
5. Town Zoning
Zoning carries out the planning program with respect to the use of private property. With adoption of the Town Development Plan, attention should be given to reviewing the relationship of the existing Zoning Regulations to the Plan. Such a review may indicate that changes or amendments to the Regulations should be to bring the zoning into closer alignment with the adopted Use Map and Town Development Plan.
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6. Conclusion
This updated Town Development Plan has identified the need for improved regulations, as follows:
a. Site Plan Review - A new local law enacted by the Town Board to provide authority to the Planning Board for comprehensive review of certain development projects. Typically, the Site Plan Review would be required on industrial or commercial development.
b. Lake-side Zoning Regulation - A comprehensive local law to maximize the development and zoning standards for protection of the Town's lakes, ponds, wetlands and subsequently the sole-source aquifer underlying Preble. All new development and renovations would apply to these standards.
C. Storm Water and Erosion Management - a local law which defines standards for run-off erosion protection for new developments and renovations in sensitive environmental areas.
d. Zoning Ordinance Amendments - In addition to the review recommended in paragraph 5. above, the Zoning Ordinance and Official Zoning Map are in need of a coordinated review. Updates to incorporate several years of resolutions and other organizational changes would improve the daily use of the Ordinance by the public.
The Planning Board must continue to concentrate on the review of subdivision applications, but must also budget time and/or professional assistance to initiate and enact the new regulations described above.
The Planning Board continues to be the focal point to address special problems which may arise in the Town. In carrying out its, work, the Planning Board must be fair and impartial in its reviews and recommendations, while maintaining a long-term view point. The work activities of the Planning Board should be supported constructively by the Town Board and the Town residents, as these efforts will have a significant and direct impact on the future quality of life in Preble.
B. Land Use Plan
A copy of the Official Land Use Plan map in attached. Larger copies of this map are available at the Town Hall or by contacting the Planning Board secretary.
The map defines land-use categories by depicting parcels with various shading or coding schemes. The categories are drawn an accurately as possible, but in some cases, the exact borders may require topographical surveys or DEC evaluation to resolve possible disagreements.
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End
