Frances Uku, Trustee
Making the Land Use Study Amateur Friendly
Proposed amendments before adoption as a comprehensive plan amendment
The Board is preparing to adopt the 2024 North Broadway Corridor Land Use and Zoning Study as a comprehensive plan amendment under Village Law § 7-722. Once adopted, the Study becomes the legal foundation for every land use decision in the Gateway North corridor. Planning Board members will apply it when reviewing site plans. Applicants will read it to understand what’s expected. Attorneys will cite it in challenges.
The question for each provision is not whether it can be read correctly by someone who already knows what the Board intended. It is whether it can be read differently by someone who doesn’t — a Planning Board member in 2031, an applicant’s attorney, a neighbor opposed to a project. Language that is ambiguous, internally contradictory, or that points in two directions at once will be read in whichever direction serves the reader’s interest. The Board’s intent will not be in the room.
A comprehensive plan is an amateur’s document. It will be applied by Planning Board members, read by applicants’ attorneys, and cited by neighbors — none of whom were in the room when it was written. The provisions I’ve flagged below are ones I can read two ways. If I can, they will too. That’s the test: not whether the planner knows what it means, but whether the document communicates it without the planner in the room.
This memo identifies provisions that can be read more than one way and proposes amendments that say what the Board means clearly enough that the document works without the Board in the room.
Provisions That Can Be Read in Two Ways at Once
The Study incorporated resident input, and many of its goals reflect what residents expressed. That is appropriate. But some provisions try to accommodate competing concerns by using language broad enough to satisfy everyone involved — and that language, once adopted, is broad enough for anyone to read it however they want.
1. “Preserve the traditional neighborhood scale” (p. 4)
“preserve the traditional neighborhood scale and historical aspects of the area” — Shared Values, p. 4
HOW THIS CAN BE READ
A Planning Board member reviewing a multifamily proposal reads “preserve the traditional neighborhood scale” and denies the application — the traditional scale is single-family on 10,000–20,000 sf lots, and multifamily doesn’t preserve it. The applicant’s attorney reads the same Study and finds that it adopts Smart Growth principles (p. 2) including “compact building design” and “range of housing,” and that the Study documents a 291% housing price increase (p. 9) and a housing stock that is 69.7% single-family detached (p. 5). Both readings are defensible. The provision points in two directions.
BUT THE STUDY ALSO SAYS
“Compact building design” and “range of housing choices and opportunities” (Smart Growth principles, p. 2).
PROPOSED AMENDMENT
Replace with: “respect the historical aspects of the area while accommodating the range of housing types and densities needed to serve current and future residents.” This says what the Board means — character matters, and so does housing — without language that can be read as “keep things the way they are.”
2. “Compatible with historic Village lot sizes” (p. 5)
“ensure developments are compatible with historic Village lot sizes, housing sizes and varieties, and building patterns, and will create a strong sense of community identity and neighborhood feeling experienced in traditional rural settlements” — Shared Values, p. 5
For discussion purposes only. Not official Board policy.
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Frances Uku, Trustee
HOW THIS CAN BE READ
An applicant proposes townhouses at 20 du/acre. A neighbor objects: the comprehensive plan requires compatibility with “historic Village lot sizes” — which are 10,000–20,000 sq ft, or 2–4 du/acre. The Planning Board has to decide whether townhouses are “compatible” with single-family lots. The Study doesn’t say. An opponent’s attorney reads “traditional rural settlements” and argues the plan envisions something closer to a hamlet than a mixed-use corridor. A proponent’s attorney reads the same Study’s Smart Growth principles and argues the opposite. The provision doesn’t resolve the question — it creates it.
BUT THE STUDY ALSO SAYS
“The housing stock needs to expand” and buyers are “being priced out entirely” (p. 9).
PROPOSED AMENDMENT
Replace with: “ensure that new development contributes to the physical definition of streets as public spaces and reflects the building-to-street relationships characteristic of the Village’s historic core, while accommodating contemporary housing forms and densities.” This keeps the character goal — buildings could relate to the street the way historic buildings do — without anchoring it to lot sizes that preclude the housing the Study calls for.
3. “Protect the existing residential uses and character on the west side” (Goal 1d)
“Protect the existing residential uses and character on the west side of North Broadway” — Goal 1d, p. 27
The west side is not being rezoned. It remains R-20,000. So what does “protect” mean as an operative instruction to a Planning Board reviewing a site plan on the east side?
HOW THIS CAN BE READ
A developer proposes a three-story mixed-use building on the east side of Route 9. A west-side neighbor cites Goal 1d: the comprehensive plan says “protect” their neighborhood’s character, and a three-story building across the street doesn’t do that. The Planning Board has to decide what “protect the west side” means for an east-side application. Does it mean a height limit? A setback? A screening requirement? The Study doesn’t say. “Protect” is a result, not a standard. The Planning Board either invents a standard on the spot or denies the application on a word that has no operative content.
BUT THE STUDY ALSO SAYS
“Encourage a diverse mix of single-family, two-family and multifamily uses on the east side” (Goal 2a, p. 27).
PROPOSED AMENDMENT
Replace with: “Ensure that new development on the east side of North Broadway is designed to complement the residential streetscape on the west side through appropriate building orientation, landscaping, and pedestrian connections.” This gives the Planning Board something to apply: orientation, landscaping, connections. It addresses the west side through how the east side is built , not through a word — “protect” — that means whatever the reader wants it to mean.
4. “Limited mixed use” (Goal 1b)
“Allow for limited mixed use (apartments above stores) along the easterly frontage” — Goal 1b, p. 27
The parenthetical already defines the format: apartments above stores. “Limited” adds nothing to the description — but it adds a constraint that a reader can use.
HOW THIS CAN BE READ
For discussion purposes only. Not official Board policy.
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Frances Uku, Trustee
An applicant proposes a building with ground-floor commercial, second-floor offices, and third-floor apartments. A Planning Board member reads “limited mixed use” and asks: is three uses still “limited”? What about a live-work unit — is that “mixed use” or something else? The word “limited” invites the question without answering it. A board that wants to deny has a word to cite. A board that wants to approve has to explain away the word.
BUT THE STUDY ALSO SAYS
“Mixed land uses” (Smart Growth principles, p. 2).
PROPOSED AMENDMENT
Replace with: “Allow mixed use (apartments above stores) along the easterly frontage.” Removing “limited” changes nothing about what the Study envisions — it still describes apartments above commercial ground floors. It removes a word that can only be used to narrow the permission.
5. Affordable housing: “consider allowing incentives” (Goal 2c)
“Consider allowing incentives to ensure that some percentage of new housing within the Study Area remains affordable for a defined period of time” — Goal 2c, p. 27
HOW THIS CAN BE READ
A future Board considers adopting a mandatory inclusionary zoning provision for the corridor. An opponent cites the comprehensive plan: it says “consider allowing incentives ” — voluntary mechanisms, not mandates. The plan’s own language becomes the argument against the stronger tool. A developer challenged on affordability cites the same language: the plan says “some percentage” for “a defined period of time” — the weakest possible commitment. The comprehensive plan, meant to support affordable housing, becomes the ceiling rather than the floor.
BUT THE STUDY ALSO SAYS
Housing prices have increased 291% and buyers are “being priced out entirely” (p. 9).
PROPOSED AMENDMENT
Replace with: “Require that the Cookingham property be developed entirely as affordable housing, with income targeting and an affordability period of not less than twenty years established in the zoning.” The Cookingham parcel is the only significant development site in the corridor where affordable housing is realistic. A corridor-wide inclusionary program requiring 10% affordable units would yield perhaps 4–5 workforce units total — scattered across multiple projects, each requiring its own income verification, compliance monitoring, and affordability covenant administration. Dedicating the one site that can deliver meaningful volume — and that is already under discussion for exactly this purpose — is a stronger commitment than “consider allowing incentives,” and far simpler to administer.
Summary
These five amendments do not change the Study’s vision. Each one replaces language that points in two directions with language that points in one. The proposed replacements achieve the same planning objectives — character, compatibility, affordability — in terms that a Planning Board member, applicant, or reviewing court can apply without guessing what the Board meant.
For discussion purposes only. Not official Board policy.
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Frances Uku, Trustee
Historic Resource Inventory
The same problem — can the document be used by someone who wasn’t in the room? — applies to the historic resource inventory.
Once adopted, the inventory becomes the reference document for every land use decision involving or adjacent to a historic property in the corridor. A Planning Board member reviewing a site plan near the Old Post Road houses will open the Study and look for information about those buildings. A developer proposing adaptive reuse of the Cookingham barn will check whether the Study recognizes it as a historic resource. An applicant near the cemetery will want to know what the Village considers significant about it.
The inventory needs to answer these questions. Right now, it answers some of them for some properties and none of them for others.
What the Inventory Currently Contains
Table 10 lists seven properties: name, address, and SHPO designation code. No descriptions. The descriptions are in the narrative text that follows the table — but they vary enormously:
| Property | Detail | What a Planning Board member learns |
|---|---|---|
| Martin Homestead | 1,500 words | |
| across | ||
| 2 | ||
| pages | Construction date, builder, architectural features down to door knocker and oven, | |
| HABS documentation, full ownership chain 1776–2020, family histories, farm opera- | ||
| tions | ||
| Elmendorph Inn | 150 words | Date range, original function, ownership, register status. Possibly the oldest building |
| in the Village — but less than a tenth the detail of the Martin Homestead | ||
| Halfway Diner | 200 words | Manufacturer, serial number, type, provenance. Competent. |
| Old Post Rd (4 houses) | One | |
| line | ||
| each | ||
| in | ||
| Table 10 | Construction date (approximate). Nothing else. “Not individually documented in | |
| CRIS.” | ||
| Cemetery | Not | |
| in | ||
| Table 10 | Discussed in narrative: 1848, graves 1844–1941, Alexander Gilson. But not inventoried | |
| as a resource. | ||
| Cookingham barn | Not | |
| in | ||
| Table 10 | Mentioned in narrative. Study recommends adaptive reuse (Goal 3b). But not inven- | |
| toried. | ||
| Cherry/Graves pattern | Not | |
| inven- | ||
| toried | Described in narrative (pp. 20–21): 40–50 f lots, 150 f depth, pre-automobile, gridded. | |
| This is what Goal 7e is trying to protect — but it’s not in the inventory. |
The inconsistency matters because the inventory is about to become the legal record. A Planning Board member who wants to impose conditions on a project near the Old Post Road houses has nothing in the adopted plan to cite — no description of what’s significant about those buildings, no basis for determining what “consideration” of their historic nature requires. A developer who proposes something near the cemetery can point out that the Study doesn’t even list it as a historic resource. The document can be read to mean these properties don’t matter — because it says almost nothing about them.
The Poughkeepsie Format
The Town of Poughkeepsie’s Comprehensive Plan Existing Conditions Report (Appendix F) provides the regional model for this kind of inventory — a model Bonnie has cited. Its historic resource section (Chapter 5) uses a threecolumn table — Name , Address , Description — with each description written as a structured prose paragraph following a consistent formula:
Construction date → Building type → Location/hamlet → Architectural style → Specific features and materials → Contributing structures → Architectural significance → Historical significance → Notable associations
Every entry gets the same structure. The reader can find the construction date (always first), the style (always after the building type), and the significance statement (always at the end). The format is both readable and systematic. It works as a reference document because it’s consistent — the level of detail reflects the nature of the resource, not who advocated for it.
For discussion purposes only. Not official Board policy.
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Frances Uku, Trustee
Proposed Redraft of Table 10
The following table replaces the current Table 10 and the narrative descriptions that follow it. The content is drawn from the Study’s existing text, reorganized into the Poughkeepsie format with planning implications added. Source citations are to SHPO CRIS, Historic Red Hook, and the Study’s own research.
| Name | Address | Description |
|---|---|---|
| Martin Homestead | 7605 N. Broad- | Constructed ca. 1776 by Gottlieb Martin, a one-and-one-half story |
| NRE; SR | way | Palatine German vernacular stone residence eligible for the National |
| USN 02749.000001 | - | Register under Criterion C. Side-gable roof, fve-bay facade with full- |
| - | - | length porch, divided Dutch door, 2-f-thick stone walls on rubble |
| - | - | foundation with hewn timber frame; ca. 1880 clapboard addition to the |
| - | - | rear. The basement kitchen with open hearth and beehive oven refects |
| - | - | German building traditions distinct from the predominantly Dutch |
| - | - | stone houses of the region. HABS documentation (1936) confrms the |
| - | - | exterior has changed very little. The Martin family resided here 1776– |
| - | - | 1933; the Cookingham family 1933–2020. |
| Elmendorph Inn | North Broadway | Constructed ca. 1750–1770, possibly the oldest existing building in the |
| NR; SR | (east side, | Village and the only remaining gambrel-roofed structure. Originally a |
| 90NR00450 | at Cherry St) | simple farmhouse; by 1785 an inn on the four-day stagecoach route |
| - | - | between New York City and Albany. George Sharp, son of a Palatine |
| - | - | leader from the East Camp settlement (modern Germantown), sold the |
| - | - | inn in 1796 to Cornelius Elmendorph, its namesake. Served over two |
| - | - | centuries as stagecoach stop, courtroom, tavern, Town Board meeting |
| - | - | site, and kindergarten. Augustus Martin, son of Gottlieb Martin of the |
| - | - | Martin Homestead, later owned the building and converted it back to |
| - | - | residential use (per 1867 Beers Map). Listed on National and State |
| - | - | Registers. |
| Halfway Diner | North Broadway | Constructed 1951 by the Paterson Vehicle Company of Paterson, New |
| (Village Diner) | (east side) | Jersey. Silk City prefabricated metal diner, serial #5113 (13th diner |
| NR; SR | - | built in 1951). Intact example of the streamlined stainless steel type |
| 90NR00449 | - | introduced in 1949 and manufactured until 1952; Silk City changed |
| - | - | designs roughly every four years in the post-war period. Welded steel- |
| - | - | frame construction with arched roof and exterior monitor not refected |
| - | - | on the interior. Originally commissioned for a location on U.S. 9 in |
| - | - | Rhinebeck; moved twice locally before installation at its current site ca. |
| - | - | 1957. Listed on National and State Registers. |
| Residence | ||
| NRE; SR | ||
| USN 02749.000072 | 7581 Old Post | |
| Rd | Constructed ca. 1937 on the west side of Old Post Road. National | |
| Register eligible. Not individually documented in CRIS. Part of a cluster | ||
| of four NR-eligible properties along Old Post Road. | ||
| Residence | ||
| NRE; SR | ||
| USN 02749.000071 | 7579 Old Post | |
| Rd | Constructed ca. 1850 on the west side of Old Post Road. National | |
| Register eligible. Not individually documented in CRIS. Part of the Old | ||
| Post Road cluster. | ||
| Residence | ||
| NRE; SR | ||
| USN 02749.000070 | 7575 Old Post | |
| Rd | Constructed ca. 1890 on the west side of Old Post Road. National | |
| Register eligible. Not individually documented in CRIS. Part of the Old | ||
| Post Road cluster. | ||
| Grand Dutchess B&B | ||
| NRE; SR | ||
| USN 02749.000069 | 7571 Old Post | |
| Rd | Constructed ca. 1880 on the west side of Old Post Road. National | |
| Register eligible. Not individually documented in CRIS. Currently or | ||
| formerly operated as a bed-and-breakfast — the only commercial use in | ||
| the Old Post Road cluster. | ||
| United Methodist | ||
| Church Cemetery | ||
| Status undetermined | Cherry Street | Established ca. 1848; land sold to the church by Gilbert Fraleigh and |
| others for $1.00. Graves date from 1844 to 1941. Historic marker present | ||
| but register eligibility undetermined. Notable interment: Alexander | ||
| Gilson (1824–1889), African American horticulturist and head gardener | ||
| at Montgomery Place for approximately 50 years, credited with culti- | ||
| vating Begonia Gilsonii, Aschyranthus Gilsonii, and other varieties. | ||
| Cookingham Farm | ||
| Barn | ||
| Not separately | ||
| evaluated | North Broadway | |
| (east side, opp. | ||
| Martin | ||
| Home- | ||
| stead) | Agricultural barn on the east side of Route 9, directly opposite the | |
| Martin Homestead. Part of the historic Martin/Cookingham farm prop- | ||
| erty for nearly 250 years. Not separately evaluated for register eligibility. | ||
| The Study recommends adaptive reuse for commercial purposes (Goal | ||
| 3b). |
For discussion purposes only. Not official Board policy.
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Frances Uku, Trustee
Source: NYS Historic Preservation Office (SHPO) Cultural Resource Information System (CRIS), 2024; Historic Red Hook (historicredhook.org); Study field research. Format modeled on Town of Poughkeepsie Comprehensive Plan, Appendix F, Existing Conditions Report, Chapter 5.
Cherry Street / Graves Street Building Pattern
The Study describes this pattern in detail (pp. 20–21): 40–50 ft lot widths, 150-ft lot depths, small front porches, pre-automobile construction, gridded street pattern, 22–23 ft road widths. This is what Goal 7e — “protect and acknowledge the remaining historic building patterns” — is trying to protect. But the pattern is not inventoried as a resource. A Planning Board member applying Goal 7e has a goal with no reference point in the inventory. It could be added as a district-level entry, following Poughkeepsie’s practice of documenting historic districts alongside individual properties.
The Board can make these changes before adopting the Study. Once adopted, the Study becomes the legal baseline. Language that can be read two ways will be.
For discussion purposes only. Not official Board policy.
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