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SUMMERVILLE/WHITE (PRIORITY 6)'
PLANNING STRATEGY AREA
AREA CHARACTERISTICS ~~~!li2~_!~£_~~~i!£i~li2~ Loca ted on Lake On tar i0 a t the mouth of the Genesee Ri ver, the Summerville/White City area has the significant image and amenity advantages of a waterfront residential area. While the lakeshore in this area is within the Town's jurisdiction, the land along the Genesee riverfront is controlled by the Ci ty 0 f Roches t er,
~!.~L~!!._~£_~2~i~g Summerville/White City is a predominantly Single family residential area. However, a large condominium development is located at the mouth of the Genesee in the area's largest commercially-zoned district. Surprisingly, this lakefront commercial district contains only a f~w commercial uses (taverns/restaurants); the Stutson Plaza, located on Pattonwood Drive east of Thomas Avenue, is the area's major commercial development. A. small concentration of neighborhood commercial uses is also located at the intersection of Rock Beach Road and Washington Avenue. The majority of Irondequoit's marine-oriented uses is located in-this planning strategy area. Marine facilities (including the Shumway marine complex and Rochester Yacht Club) dominate the riverfront in the Commercial Waterfront district. These activities give a special maritime character to the area that is unique in Irondequoit and is reflected in the nautical theme of the area's restaurants~
~~iihbo!h22£_~!.!ili!i!!li~ Because a significant portion of the Summerville/White City area was developed with summer cottages before the adoption of minimum development standards, the neighborhood has had a concentration of substandard housing. As a result, Community Development Block Grant expenditures have been concentrated in this area to encourage housing rehabilitation and to improve the public infrastructure. Th e se pub 1 ie in v' men t sap pea r t 0 h a v e su e ee ed edin est a chi e v in gas tron g n e ig h b 0 rho dim pro v em e n t t rend. An increasing number of summer cottages have been converted into year-round use. This housing transition has greatly affected the socioeconomic character of the area. There are a number of fairly well-to-do households living in converted bunga lows. In add it ion, the eas tern Rock Beach Road area contains some of Irondequoit's finest homes.
~1~1!2U_~lt!!1_~tl~g! The County is studying three alternatives for replaeing Stutson Street bridge eonneeting northwest Irondequoit Greeee aeross the Genesee River. the to
ISSUES AND OPPORTUNITIES ~!1~g!_~!2!!~!~!Ul The Stutson Street bridge replaeement alternatives being studied by the County have the potential for significant impact on the Thomas Avenue /Pa ttonwood Dr ive ar ea. Because additional right-of-way acquisition would be required to construct the bridge at a point to the south of the eXisting crossing, this alternative has the greatest potential for physical impact on eXisting businesses and homes. Based on the analysis conducted by the Genesee Transportation Counc iI (!:!2tlh!I.U_~1!!t.£!:2!!iUg 1982), traf f i e vo 1urnes at the bridge are likely to increase by approximately 3,000 vehicles per day over the next 10-15 years with either of the four-lane bridge replacement options. This represents an increase of 8-12% above eXisting traffic volumes. Assuming that future distribution of this traffic between Thomas Avenue and Pattonwood Drive remains the same as now observed, these two arterial streets might see traffic increases of 1,200 and 1,800 vehicles respectively, representing increases over existing traffic levels of 1215%. Given the existing roadway cross-sections, moderate traffic congestion can be expected to result along Thomas Avenue south of the Pattonwood intersection where the crosssection narrows to two lanes. Similarly, moderate congestion is likely on Pattonwood where the cross-section narrows to eas t of the Thomas Avenue inter section. Particularly in the case of Pattonwood, it may be advantageous to el iminate parking in the curb lane and restripe the existing pavement to provide four traffie lanes. This action would not only reduce congestion, but would also serve to minimize potential traffic increases on Thomas Avenue by encouraging traffic to remain on Pattonwood to St. Pau I Bou levard.
!:!!igh~2I.h22~_Re!111!i!!li2~ Although progress toward strengthening the Summerville/White City area has already been made, continued CDBG support is needed to ensure that the momentum of private investment and upgrading continues. The f0 1 low ingp 0 s sib 1e assistance projects may be desirable:
Fin an cia I ass is tan ee to comm e rcia I pro per tyow for building renovation and signage and parking improvements.
n e rs area
Technical assistance (design guidelines and illustrative plans) to ensure a high qual ity of des ign and site planning for new developments and the cont inued rehabilitation of existing housing. In addition, it is recommended that the aggregation of small lots be encouraged to relieve overcrowding in older neighborhoods located to the north of the railway. The improvement which has already occurred in this planning strategy area creates a positive climate for expanded private sector investment and development activity. This new deve Iopment can profit from the special maritime character crea ted by the area's mar ine bus inesses and re la t ionsh ip tothe Lake and the River. However, the amount of new investment that can take place is severely constrained by the lack of developable sites. 3. Q!!!!2em!n!_Q~~2t!~ni!i!! Although little vacant land is available, development parcels do exist: a) several potential
M~ni~i~!!_!t!!!~!n!~!!n!_§ite: Parcel W-6 on the Open La nd sIn ven tor y , con sis tin g 0 f the I 1-a cref 0 rmer treatment plant site and 9 acres owned by the adjacent Shum way mar ina, pre sen t s the be s t pro sp e e t for development in Summerville/White City. The potential exists for combining the Town owned parcel and the ad jace n t Shum way pro per tyin a pub 1 ie /p r ivat e j 0 in t venture which integrates new development with the existing riverfront marina facilities to c~eate a special maritime theme. Past use of the treatment plant site as a landfill may limit the intensity of development, however. Market support exists for a development program which includes townhouses (40-60 units), a restaurant, expanded marine services, and a modest amount of retail use (up to 15,000 square feet). Although access to the site from Pattonwood Drive is good, the addition of traffic at the periodically congested Thomas Avenue/Pattonwood intersection may be a concern. As a result, any major new development in this area may have to wait until the replacement of the Stutson Street bridge is accomplished. To facilitate the evaluation of the traffic impacts ass 0 cia ted wit h this pro gram and 0 the r p o s sib 1e alternatives, figure 24 has been prepared to illustrate additional traffic volumes which are likely to result from prototypical increments of various land uses.
Figure 24 PROJECTED ADDITIONAL TRAFFIC VOLUMES - PROTOTYPICAL LAND USES Prototypical Land g!!_!n£r!m!nl Rate· Mar ina, 100 berths Restaurant, 100 seats Condominium, 100 units Retail, 5,000 ft·· 3.80/berth 1.20/seat 5.60/unit 115.80/ 1,000 ft·· Average Daily Traffic !=!!I=!21!! !!!~g!I §!l~rg!I No. Veh.·· 380 120 560 580 1,640 Rate· _ _
No. Veh.·· 570 190 560 780 2,100 of
5.70/berth 1.87/seat 5.60/unit 156.30/ 1,000 ft··
Total Additional Traffic ·Source:
"Trip Generation", Second Edition, Institute Transportation Engineers, Washington, D.C., 1979
··All values rounded to the nearest 5 vehicles b) Par£!l_!=5: This 6-acre privately owned parcel located on the south side of Pattonwood Drive adjacent to the exisiting Stutson Plaza has a low preservation priority and good .access and visibility·. Again, increased traffic generated by new development in the Pattonwood/Thomas Avenue area is a potential concern. ~!!!!h2r!_!n_Yl£lnllI_2!_!lr!1_§!£~n~hlrg §lr!!l!: The area located in the commercially-zoned district at the end of First, Second, and Third Streets may present an attractive waterfront development opportunity. This area represents the only suitable waterfront location in Summerville/White City for the development of higher density residential uses. Summerville/While City is certainly a viable location for moderate dens ity hous ing over the long term. More than 100 units (in addition to those developed as part of the mixed use project described above) could find market acceptance, if new residential development fronted directly on the Lake. Redevelopment of the First, Second, Third Street area on the lakefront north of St. Paul could provide such an opportunity. d) ~!!!!1!~_§£h22!: This closed school, may present a significant re-use and/or d~velopment opportunity for housing. In evaluating potential re-use options,
however, methods active recreation 4.
for preserving facilities should
needed neighborhood be considered.
~~~li£_~!1~t!t2rrl_~~£t~!li2rr_Q222tl~rri!i~!. a) ~!~~!h2t~: Existing residential. development ~l~ng Summerville/White City's Lake Ontario waterfront limits the potential to provide improved public recreational access in this area. Although the Town owns a small park located on the lakeshore (Bateau Terrace Tot Lot), its size, limited accessibility by car, and residential context make expansion of public use beyond the immediate neighborhood level difficult. In reviewing this problem, it has been suggested that rezoning of the Commercial district located in the First, Second, Third Street area to encourage multifamily residential (condominium) use.may be appropriate, if such development could provide 2~~li~ access to the beach for the entire neighborhood.
Ge n e see R i ve r : Th e de vel 0 pmen t 0 f two pub I i e boa t . Ti'unCb-es--has--been proposed on the Genesee Ri ver wi th in the City of Rochester adjacent to Summerville/White City. Although there is a significant demand for additional public boating facilities in the metropolitan Rochester area, access to these two proposed launch sites can only be provided through residential .neighborhoods. Significant traffic impacts are likely to be created as a result. Alternate locations for providing new launching fa e iii tie s will become a v ail a b 1e i n the n ear fut ur e ( I ron de quo i t Ba y ; On tar i 0 Be a e h S tat ePa r k ) , wher e traffic and parking demand can be accommodated with less impact.
COMMUNITY INPUT AND ALTERNATIVEPLANNINGSTRATEGIES COI!!!!~!li!I_ln2u t a) ~~!~122ID~!l!_Q222r!~!li!i~!: The subcommittee for the Summerville/White City planning strategy area endorsed the concept of making the Town controlled treatment plant site available for new private mixed use development featuring a maritime theme. However, development control were considered necessary to ensure that existing, adjacent residential areas would not be negatively impacted by the new mixed use project. The subcommittee also reacted favorably to the suggestion t hat new mu 1t i f am i I Y res ide n t i a Ide vel 0 prn en t be encouraged on the lakefront in the First, Second, Third Street area. Al though a mix of older hous ing and small commercial establishments are located here, this area is already zoned for more intensive commercial use and is located immediately adjacent to an ex Ls t Ing apartment
development. As a result, it presents a suitable opportunity for new higher density waterfront housing within the Summerville/White City area. The sub comm i t t ee recommended that this future residential development take the form of low-rise townhouses or condominiums and that units be clustered to create open space areas which would preserve waterfront views and provide pedestrian access to the Lake. The subcommittee also suggested that Open Lands Inventory Par e e 1 W - 5 , 10 cat e d imm e d iate 1y tot h e e a s t 0 f the Stutson Plaza shopping center, could be developed for small shops with a driveway connection to the Plaza. In considering re-use options for the recently closed Lakeview School, the subcommi ttee expressed a preference for e omm u nit y - 0 r ie n ted e d u cat ion a I act iv itie s ,or professional office use, which would be compatible with adjacent residential development. It was also suggested that the school property frontage on Timrod Drive might be mad e a v a i Ia b 1e for sin g 1e fam i 1 Y res ide n t ia 1 .deve lopmen t . b) considered the replacement of the the existing Stutson Street bridge to be essential in resolving eXisting traffic congestion problems and in providing the improved access needed to accomodate new development. A four-lane replacement bridge was considered necessary to provide adequate traffic carrying capacity. In addition, a location somewhat to the south of the existing crossing was considered highly desirable in ~reating an.effective link to the Ontario State Parkway. The subcommittee noted that careful design of the Irondequoit side of the Stutson Street bridge approach would be needed to ensure smooth traffic flow from Pattonwood Drive and Thomas Avenue. The subcomm ittee a lso proposed that the feas ib iii ty of abandoning existing New York Central (Conrail) rail lines be explored. These rail facilities are now used to service the Rochester Gas and Electric power plant located within the City of Rochester; however, the rail lines are not intensively used and -- in the opinion of the subcommittee -- pose severe constraints to long range development potent Ials, Abandonment of the rai 1 r ightof-way running to the south of (and parallel to) Pattonwood Drive would make it possible extend Pattonwood to the east of St. Paul to create a smoother connection to Lake Shore Drive. Some members of the committee also felt that it might be possible to use the rail turnbridge crossing on the Genesee River as an alternative location for the Stutson Street replacement bridge, with the main rail line right-of-way (located to the north of
Y!h!~~!!t_Q!t~~!!!2~: subcommittee The
Pa t t o n w o c d ) used to provide an improved connection from the bridge to Lakeshore Drive. 2.
~!l!t~!li!!_~!!~~i~K_§lt!l!Ki!! a) ~i!_~i~!_~2!~&2~~!~1: Although
the potential for rail line abandonment can certainly be pursued with representatives of Conrail and Rochester Gas and Electric, it is not likely that this issue will be res 0 Iv e din the n ear f u tu r e. Th us, mas t e r p Ian recommendations for Summerville/White City must be based on the assumption that rail service will continue on these lines.
Even if the rail rights-of-way were to become available for use in relocating and/or realigning existing roadways, these proposals could have impacts on existing development which are- severe enough to outweigh any benefits related to increased circulation efficiency. b)
!!tigK!_!!!2!!~!~!!l1: In considering the bridge ,replacement alternatives which have been proposed by the County, it is clear that a four-lane facility will be required. Existing peak traffic volumes already equal (or exceed) the carrying capacity of the present two-lane brid ge • Mo reo ver , add it iona I car ryin g cap acit y w i II be needed to accomodate increases in traffic generated by new development in the Summerville/White City area.
A Itho ugh the p Iann in g s t rat eg y are a sub e omm itt e e has expressed a preference for a replacement bridge location which coincides with the alignmen,t of the Ontario State Parkway, it is important to note that relocation of the existing crossing will cause some dislocation of existing uses to the south of Pattonwood and west of Thomas Avenue. More detailed information concerning the amount of property acquisition which is required to implement this alternative is needed to evaluate its potential impact on existing waterfront development before a final position is taken. The Town must continue to work closely with the County and the Regional Transportation Council to weigh the costs and benefits of the bridge replacement alternatives and to ensure that the alternative which is selected is in the Town's best interest.
of the Stutson Street bridge, and the success of past neighborhood revitalization efforts in improving the character of the area, have enhanced the climate for private investment in Summerville/White City, making the potential for a new mixed use development project on the Town controlled treatment plant site increas ingly attractive. Indeed, the owners of Shumway marina, located adjacent to the treatment plant site, have
M!tl1i~!_Ml!!g_Y!!_Q!!l1!t: the planned replacement Both
already expressed an interest in purchasing the property, proposing. a development program which includes the expansion of marina uses, other retail activities, and new housing. The Town should (1) work with interested parties in negotiating a land dispostion agreement or (2) soliciting a broader range of development proposals. The Town will have to investigate the extent to which development incentives are needed to leverage a firm development eornmItment. These incent ives might take the form of an attractive land purchase/lease price, the selective use use of general business assistance program, and/or publicly financed site preparation activities (e.g., soils testing and stabilization; demolition of ex Is t Ing structures). In addition, the Town must consider the nature of development controls which should be incorporated into the land disposition agreement. The major objectives in specifying these controls are to (1) promote a development program which includes a wellintegrated mixed uses; (2) encourage a high quality of architectural design and site planning; and (3) ensure ·that new development presents an "edge" which is compatible with eXisting residential uses on Timrod Drive.
fi!:.!l.L_~!~2.!l!!_!hi!:.!!_~!!:.!!l_~!:.!!.: w mu It ifam_i_!I_ Ne residential development in this waterfront area would require land assembly, clearance .and redevelopment. The Town has the option of taking the initiative in encouraging early action on this opportunity, or the Town may prefer to approach the implementation of this planning proposal in a less aggress ive manner by simply re-zoning the area to permit eventual multifamily residential redevelopment and allowing the private sector to follow through. In any event, care should be taken to provide 2~~i~_!~~ess to open areas and the waterfront. ~!:.2.22.!!!!_~2.!.!_~!.~!l~h_~i!!!: Construction of the riverfront boat launch proposed in the area to the north of St. Paul Boulevard has been completed, while implementation of the Thomas Avenue boat launch has been deferred in view of community opposition and the negative impact of such facilities on adjacent residential areas. School: Options for the re-use of this sale or lease for communityoriented private educational activities or conversion to office use. However, until the Town has had the opportunity to review re-use options and preferences with the Schoo I Boar d, the mos t pruden t appr oach is to maintain this site's public land use designation. Re-use of Lakeview
La nd Par ee I W -5 : Itis reeomm end edt hat this par e e I rema'in-ii=f;-as-present ly zoned, because it projects to deeply into a residential zone and because its shape,
s iz e and 10 cat ion d~velopment.
D. RECCl\1MENDED IMPLEMENTATION
sui tab 1 e
c omm ere ia 1
~2!!~I_~it!~li2U! The master planning policies which have been recommended in the preceeding pages for the Summerville/White City planning strategy area are summarized below. a) ~t2m21!_Q2UliU~!g_~!!Kh~2th22g_~!!i1i!i!!li2U: Continue neighborhood revitalization efforts -- in the form of COBO rehabilitation loan assistance, public improvements, and strict building code enforcement -- to ensure that private re-investment momementum, and area upgrading, continues. ~U~2~t!K!_lh!_~!!!!22m!u1-2f_!JM!tilim!JMi!!g_~!!_Q!Ul!t: Promote the private development of a waterfront mixed use center featuring a maritime theme on the Town treatment .p lan t site to capitalize more effectively on the area's eXisting marine orientation; increase public use and enjoyment of the waterfront; and expand the assessable tax base. ~!!2~_~!!£!!t2Ul_!!2~!!UK_!!!g!!!!22m!ul: Pr omo te the redeve lopmen t of the lakefront area in the vic in i ty of First, Second and Third Streets for multifamily residential use to take advantage of one of the limited opportunities which exists for new higher density development in a prime waterfront location; work to ensure that public visual and functional access to the lakefront is provided. Br!gK!_~!2!!~!m!Ul: Continue to work with the County and the Regional Transportation Council in evaluating replacement alternatives for the Stutson Street bridge to select an alternative which meets local traffic needs while minimizing impacts on eXisting development. !!2!1_1!~U~h_~!!!!22m!nt: Carefully evaluate the impact of the new public boat launch as a basis for determining whether additional riverfront boating access facilities are in the Town's best interest.
!22!!_!Ug_!!~hu!~!! a) ~2UiUg_QtgiU!U~!_!Ug_M!2_~!!i!i2U!: Proposed preliminary draft revisions to the Town's zoning ordinance and the proposed Local Waterfront Revitilization Program (L.W.R.P.) include several classifications with particular potential for application in the Summerville/White City planning strategy area.
Waterfront Development District: This draft section of the zoning ordinance would revise the Town's ex i s tin g Comm e r cia 1 Wa te r fro n t z 0 net 0 m 0 r e specifically define the range of water-and recreation-oriented uses which are appropriate in waterfront areas. The revised section would also provide increased public review' authority over proposed waterfront developments by requiring site plan and special use permit approval for all uses except single family homes. Special site plan review criteria for development along Lake Ontario are also included in the ordinance revisions being proposed in .the Town's LWRP, including minimum setbacks from the wa t e r' sed g e , a est h e tic and arc hit e e t u r a 1 considerations, and the preservation of water views. The proposed ordinance'revisions also offer some added development flexibility by a)lowing minimum lot dimensions for most permitted non-residential uses to be determined through the special permit review process • Neighborhood Business Classification: This new zoning classification permits a range of office and retail uses which are of an appropriate scale for residential neighborhoods. In Summerville/White City, this zoning classification can be applied to the small commercial area at Washington and Rock Beach Road to provide improved control of the character of future use and development. Environmental Protection Overlay Districts: Proposed prel·iminary revisions to the existing zoning ordinance and the proposed LWRP also include the e re a t ion 0 f 0 v e ria y dis tric ts for are a s 0 f s tee p slopes, woodlots, wetlands, floodplains and watercourses. These districts specify development controls and regulations -- which must be observed in addition to those of the underlying zoning district -- to ensure the protection of valuable environmental resources. The special permit review process which will apply to these districts and enhance the Town's abi I ity to control the character and qual ity of future development, especially on the lakefront. Landscaping and Buffering Requirements: Proposed preliminary revisions to the eXisting zoning ordinance require landscape buffers between residential and non-residential uses. These buffering requirements will help to ensure that existing residential uses are protected in the development of the proposed mixed use maritime e e n te r• 80 w eve r , the rev ised 0 r din a n e e sh 0 u 1d include more detailed standards including, for example, a minimum buffer width and requirements for screening effectiveness.
Zoning Map Revisions: Zoning changes which are needed to implement master plan policies for the Summerville/White City area include: - redesignation of the Manufacturing district located along the riverfront as a Waterfront Development District to more accurately reflect the character of ex isting deve lopment and to allow future land use flexibility, while maintaining substantial public review authority and control - redesignation of the Commercial district located at the mouth of the Genesee River for multifamily residential development to more accurately reflect eXisting land use and to encourage the eventual redevelopment of the lakefront area in the vicinity of First, Second, and ~hird Streets - redesignation the southeast intersection Business) to of the Manufacturing zones located to of the Pattonwood Drive/Thomas Avenue for commercial development (General provide improved development controls
- redesignation of the small commercial parcels loca ted wi th in the ar ea for Ne ighborhood Bus i nes s to ensure an appropriate scale of development b) Q!!22!ili2n_2i_§~!2!~!_~~~!!~~!~~: Town ownership of ithe tr~atment plant site can be use as an effective jdevice for "leveraging" new private development which is !desired by the community. This surplus public property [ean be sold or leased to a private developer with land ie o s t s negotiated to serve as an incentive for !,deveopment • 1
lIn negotiating the disposition agreement, the Town also Ihas the opportunity to specify the preferred program of luses and character of development more precisely than is Ipossible in the Town-wide zoning ordinance. Public lownership will allow the Town to actively solicit 'development proposals an to control the timing of development. The Town also has the ability to acquire the lakefront Property in the vicinity of First, Second, and Third IStreets for redevelopment. Although the Town may prefer rot to excercise this option, public acquisition and resale of this area would enable the Town to speci fy requirements for open space and public access which might ~therwise be impossible to guarantee.
1~~bli~L~!i!!1!_Q222!!!1.!.2~: The Town must work closely ~ithpotential developers with an interest in acquiring and developing the treatment plant site and to determine what, if any, development incentives and assistance may
be required. The Town might also establish an Area d eve lop men t Com mit t e. e mad e . u p 0f Summerville/WhiteCity businessmen and residents -- to work with the Town and the mixed use center developer in formulating appropriate development criteria and controls. Early negotiation of such agreements can help to establish area-wide support for the project and avoid "last minute" opposition and delays. The Town may also want to work with area businesses and residents who would be affected by the replacement of the Stutson Street bridge to formulate a local position on the alternatives which are being considered. Finally, the Town might invite eXisting property owners in the First, Second, Third Street area to assist in evaluating alternative redevelopment, approaches to establish a mutually acceptable frame-work for the re-use of this prime waterfront opportunity site. d) The Town s h 0 u I d con tin u e to use CDBG fun d s top r 0 v ide ,rehabilitation financing assistance to eligible Summerville/White City residents. Eligibility for the use of these funds might also be extended to commercial pro per tyow n e r s t 0 e rea tea pro gram for up g rad in g and revitalizing area businesses. The Town can also cons ider us ing CDBG funds in leverag ing the deve lopmen t of the mixed use maritime center and in assisting in the redevelopment of the lakefront in the vicinity of First, Second, and Third Streets. Additional business assistance programs, provided by County, State, and Federal agencies, can also be used, to encourage implementation of master plan objectives in the Summerville/White City area. A list of these programs is provided below; more detailed information is provided in the final chapter of the master plan report. - Industrial Revenue Bonds Tax Credits - Job Incentive - Investment - Property
Tax Exemption/abatement Authority Financing Programs
- Job Development - Federal e)
The Town's continued participation in the evaluation and selection of a replacement alternative for the Stutson Street bridge will be essential in ensuring that this major traffic imp r 0 vem en t pro j ee t sup p 0 r ts I0 ea I p Iann ingob j ee t i ve s•
Although no improvements to Pattonwood Drive or Thomas Avenue are now included in the bridge replacement pro j e e t, the Co u n t y may a g r e e tom in 0 rim pro vern e n t s (e.g., pavement restriping, minor widenings) which will facilitate access to and from the new bridge. The Town must also work with the West Irondequoit School District to evaluate options for the re-use of Lakeview School to ensure that appropriate re-zoning e a n be provided to assist in its effective recycling.
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