LAND USE PLAN
The Borough of Upper Saddle River Land Use Plan and Land Use Plan Map describes and
delineates the proposed location, extent and intensity of development ofland to be used in the future
for various types of residential, conunercial, industrial, public, and quasi-public purposes.
The Land Use Plan consists of two sections. The first section sets forth a series of general planning
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objectives guiding the Upper Saddle River's growth and development, along with borough-specific
planning goals and policy statements. These objectives, goals and policy statements form the basis
for the land use recommendations, which comprise the second part of this section of the document.
This satisfies the MLUL requirement that all municipal master plans set forth a statement of goals,
principles, assumptions, policies and standards upon which the master plan reconunendations are
based.
The second part of the Land Use Plan describes the individual land use categories delineated in the
Land Use Plan Map. These land use categories enumerate the type and intensity of residential and
non-residential land uses that are recommended for the borough. The purposes and intent of each
land use category are described in relation to the overall goals and objectives of the plan.
The Land Use Plan is intended to guide future development in Upper Saddle River for the next six­
year period in accordance with the applicable provisions ofthe MLUL,.in a manner that protects the
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public health, safety and general welfare ofthe borough. The Land Use Plan. is also designed to serve
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as the foundation for revisions to the borough's zoning and land use ordinances.
The land use recommendations included herein are intended to support and reaffirm the established
development pattern that characterizes most of the borough and, in particular, its residential
neighborhoods. In general, the plan does not substantially alter the municipality's previous land use
plan as depicted in the prior master plan reports, although some modifications are suggested. Most of
these changes are along the Route 17 corridor in the borough and reflect refinement ofthe borough's
overall goals and objectives.
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GENERAL OBJECTIVES
The Upper Saddle River Land Use Plan is predicated on the following general objectives.
1.
To encourage borough actions to guide the appropriate use or development of all lands in
Upper Saddle River which will promote the public health, safety, morals and general
welfare.
2.
To secure safety from fire, flood, panic and other natural and man-made disasters.
3.
To provide adequate light, air and open space.
4.
To ensure development within the borough does not conflict with the development and
general welfare of neighboring municipalities, Bergen County and the state as a whole.
5.
To promote the establishment ofappropriate densities and concentrations that will contribute
to the well being of persons, neighborhoods, communities and regions and preservation of
the environment.
6.
To encourage the appropriate and efficient expenditure ofpublic funds by the coordination of
public development with land use policies.
7.
To provide sufficient space in appropriate locations for a variety of uses and open space,
both public and private, in a manner compatible with the character of the borough and the
environment.
8.
To encourage the location and design of transportation routes which will promote the free
flow of traffic while discouraging the location of such facilities and routes which would
result in congestion, blight or unsafe conditions.
9.
To promote a desirable visual envirorunent through creative development techniques and
good civic design and arrangements.
10.
To promote the conservation ofhistoric sites and districts, open space, energy resources and
valuable natural resources, and to prevent urban sprawl and degradation ofthe environment
throu im ro er use of land.
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GOALS AND POLICY STATEMENTS
Goall
To reaffirm and enhance the existing low-density residential character of the community, which
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consists primarily of single-family detached dwellings on large lots with mature vegetation. A
principal goal of this plan is to preserve and protect the residential character and existing density of
the community by restricting incompatible land uses from established residential areas, ~d limiting
residential ..densities
to the levels and locations prescribed herein.
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Policy Statement: The Borough ofUpper Saddle River recognizes that its most significant positive
attribute is the established character of its residential neighborhoods, with quiet streets and natural
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homes. The recommendations contained in the land use plan are designed
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to protect and reinforce the borough's prevailing single-family residential development pattern. In
addition, it is the intent of the plan to prevent incompatible land use arrangements and the
introduction of non-residential land uses into areas proscribed for residential uses. Residential
densities are limited to those specified in the accompanying land use plan map and land use plan.
Goal 2
To limit multi-family development to those sites serving as part of the borough's housing plan.
Policy Statement: The borough's primary developed character is that of a detached single-family
residential community. Consequently, the borough policy is designed to acknowledge and reinforce
this existing pattern and not to allow any multi-family housing and townhouses other than those sites
designated in the adopted Housing Element and Fair Share Plan. The borough has affirmatively
addressed its low and moderate-income housing obligation, as defined by the New Jersey Council
On Affordable Housing (COAH), through the preparation and adoption of a Housing Element and
Fair Share Housing Plan, which was adopted by the Planning Board. in June 1998 and received
substantive certification from COAH in 2000. No new multi-family residential zones are proposed.
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Goal3
To ensure that any prospective development is responsive to the borough's environmental features,
and can be accommodated while preserving these physical characteristics.
Policy Statement: All new development in Upper Saddle River should be designed in a manner that
is sensitive to the borough's particular physical characteristics and preserves the borough's sensitive
environmental features. In particular, the borough seeks to direct and control development in a
manner that minimizes development in areas with slopes of 15 percent and greater and preserves
wetlands, and flood plains, and retains existing vegetation and wooded areas (particularly trees ofa
caliper of six inches or more and clusters of trees which may be of lesser caliper if determined
appropriate). All subdivisions and site plans should be designed and approved in accordance with
federal, State and local regulations designed to protect these areas.
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Goal 4
To encourage any new development, especially single family detached residential construction, to
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take into account the aesthetic character of the community.
Policy Statement: The borough recognizes that the visual and aesthetic beauty of Upper Saddle
River relates to the large lot zoning which enables the retention of large stands of trees to provide
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natural buffers between homes. The retention of mature vegetation is integral to the character of a
community. The borough's review process shall actively encourage developments that incorporate
the highest quality of aesthetic elements to enhance the visual character of the community.
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GoalS
To provide adequate buffer zones to separate incompatible land uses.
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Policy Statement: The current zoning ordinance has landscaped buffer requirements for the IP
Industrial Park, H-l Highway Commercial and H-IR Highway Retail Commercial Districts
(Designated as Office Research, Limited Business and Highway Business, respectively, in the Land
Use Plan). The required buffers vary from a 1OO-foot minimum width in the IP District to 10 feet for
the H-I District and a minimum of five feet for the H-IR District. It is recommended that buffer
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requirements be increased in the H-IR Highway Retail Commercial District, since many properties
in this district adjoin existing residential properties. Currently, a 35-foot side and rear building
setback is required to adjacent residentially zoned properties. The Planning Board recommends that
this setback be increased to fifty feet with a 25-foot buffer area. This recommendation is made
commensurate with the recommendation for rezoning ofthe Route 17 corridor as set forth in Goal #7
below.
All development in the borough should include appropriate and professionally accepted buffer and
screening techniques to separate incompatible land uses and minimize adverse impacts on existing
residential properties. Buffer area widths should be sufficient to achieve the desired screening effect
and include such landscape plan elements as multiple rows ofplant material, planting clusters, etc. as
a means to provide suitable buffer protection. Supplemental and aesthetically pleasing fencing
should be provided when necessary.
Goal 6
To encourage the redevelopment of commercially zoned properties located along Route 17.
Policy Statement: The borough seeks to encourage the redevelopment of the Route 17 corridor in a
manner beneficial to the overall community. The type ofdevelopment chosen should be that which
generates the least development impacts and the greatest ratable value. Proposed redevelopment
plans for individual sites within the Route 17 should be undertaken in coordinated manner consistent
with a comprehensive planning approach combining site and building design, distribution ofland use
types and circulation. Potential strategies to be utilized by the borough should include anyone or
combination ofthe following strategies: (1) enhanced design standards for commercial development
along the Route 17 corridor; (2) the utilization ofoverlay zoning and incentives to encourage private
redevelopment efforts; or (3) the use ofredevelopment powers authorized under the provisions ofthe
Local Redevelopment and Housing Law (LRHL). The Planning Board recommends that the borough
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develop a comprehensive development plan for the Route 17 corridor. As part of this planning
process, consideration should be given to the benefits of designating all or a portion of properties
fronting on Route 17 in Upper Saddle River as an area in need of redevelopment pursuant to the
LRHL. Such an analysis should consider infrastructure capacities in this area and the impacts of
redevelooment on the borough's certified Housing Element and Fair Share Plan.
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Goal7
To ensure that new development on Route 17 is sensitive to nearby re.sidential areas.
Policy Statement: The current zoning for properties along Route 17 consists of a highway
commercial zone with a uniform 460' depth from Route 17. This uniform width results in split -. /
zoning for many parcels, and in effect, brings the highway zone into residential areas. The Planning
Board recommends that the current split zoning be eliminated. The boundaries ofthe H-IR District
(designated Highway Business in the Land Use Plan) should be revised to include those properties in
the Route 17 corridor that are currently developed with non-residential uses with the exception ofthe
following parcels:
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1.
Block 1002, Lot 4. The four-acre portion in the rear ofthe property that is known commonly
as the Efscher site is zoned AH-2 inclusionary development as per the borough's COAH
certified Fair Share Plan, with the remaining portion of the tract zoned H-IR. It is the intent
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of the plan to reaffirm the current zoning and clarify the boundaries of the two zone districts
on the site.
2.
Block 1014, Lot 1. This lot fronts onto Brookside Court, which is a residential street. The lot
contains an automobile repair use. To prevent encroachment of commercial development
into this residential area, the Planning Board recommends that this portion of the lot be
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retained in the R -1 Residential District.
The remaining parcels in this area should be rezoned to the R-l residential designation in recognition
of the existing residential land uses on these sites. The proposed Highway BusinessIR-1 Residential
boundary is shown on the accompanying Proposed Route 17 Zoning Map (Map ZON).
Proposed Redevelopment Areas. In concert with the rezoning of this portion of the Route 17
corridor, the Planning Board recommends that the following areas be reviewed as possible
redevelopment areas pursuant to the Local Redevelopment and Housing Law (LRHL):
Lot 29 in Block 1012 currently contains a light manufacturing use. Currently the front
portion of the lot is in the H-IR District and the rear of the lot is in the R-l District. The
Planning Board recommends that the entire property be rezoned to a highway business
designation to encourage its redevelopment with adjacent parcels. At the same time, the
board is concerned about the further intrusion ofnon-residential uses into existing residential
areas. Consequently, the Planning Board recommends that this site be reviewed and
evaluated, along with adjacent Lot 30 (a.k.a. the Speedway property) and Lot 1, for a
redevelopment area designation pursuant to the LRHL. The intent of such a designation
would be to establish adopt a redevelopment plan for these parcels that would provide for the
coordinated and comprehensive redevelopment of these properties in a manner consistent
with the borough goal of revitalizing the Route 17 corridor. Key components of such an
approach would include access from Route 17 only, with no access onto Pleasant Avenue,
adequate buffering and screening to adjacent residential properties and the design standards
to regulate the architectural design and details of the development, building location and
massing, landscaping and lighting.
In addition, the Planning Board recommends that the commercially developed properties
located along northbound Route 17 between Pleasant A venue and the municipal boundary
with the Borough of Ramsey be reviewed for a possible redevelopment area designation.
These properties contain a mix ofvarious uses. It is the Planning Board's determination that
this area would benefit from a more coordinated development approach. The overall land use
planning approach would be the same as recommended in the first area discussed above.
Specifically, the intent of such a designation would be to establish adopt a redevelopment
plan for these parcels that would provide for the coordinated and comprehensive
redevelopment of these properties in a manner consistent with the borough goal of
revitalizing the Route 17 corridor. This would include limited and controlled access to Route
17, adequate buffering and screening to adjacent residential properties and the design
standards to regulate the architectural design and details of the development, building
location and massing, landscaping and lighting.
Goal 8
To permit the modernization ofthe gas station and commercial deli use known commonly as Elmer's
(Block 1203, Lot 16) in a manner consistent and compatible with the character of the borough and
surrounding area. The intent ofthe land use plan is to preserve and enhance the rustic charm ofthis
landmark, while enhancing its appearance and updating its site layout.
Policy Statement: One of the landmarks in Upper Saddle River is Elmer's gasoline station and
general store. The borough recognizes the highly visible role Elmer's plays in the identity of the
community. This is the result of its prominent location at the intersection of Lake Street and East
Saddle River Road, one of the major roadway intersections in the borough. At the same time, it is
recognized that the site exhibits an obsolete site layout and design. However, the Planning Board is
concerned that that the modernization would be inconsistent with the character of the surrounding
area. Consequently, the Planning Board reco'mmends the establishment of an overlay zone for this
property allowing for the modernization and upgrading of the Elmer's site with design standards that
will enhance the appearance of the property and provide safe and efficient on-site circulation and
sufficient parking. The design standards should include such features as architectural design and
building massing, parking lot layout, on-site circulation, ingress and egress, building materials,
signage, decorative lighting and landscaping.
Goal 9
To evaluate whether appropriate sites exist for assisted living.
Policy Statement: Given the growth in the senior citizen population of Upper Saddle River, the
borough should identify sites for future senior citizen assisted living. The Bendel scarce resource site
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and Efscher inclusionary zoning site should be given priority in this evaluation, with the
understanding that any change in their current zoning will require commensurate amendments to the
borough's Housing Element and Fair Share Plan and COAH approval.
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The Bendel site (Block 601 Lot 7, Block 602 Lot 11) occupies 4.22 acres and is situated on the
eastern side of East Crescent Avenue. The lot fronting on East Crescent Avenue is occupied by a
single-family dwelling. The Bendel site is a scarce resource site in the borough's housing plan.
Consequently, development of this site would increase the borough's affordable housing obligation
by five units.
The eastern four acres ofthe Efscher site (Block 1002, Lot 4) is designated as an affordable housing
site in the borough's housing plan. The four-acre site was designated for 40 multifamily units, of
which 8 were to be affordable units. Permitting assisted living development on this site would
require a rezoning and an amendment to the housing plan. In addition, eight of the units must be
affordable units in accordance with COAH requirements or accommodated elsewhere in the borough
or through the use of a regional contribution agreement (RCA).
GoalIO
To prepare a conservation and open space element of the master plan.
Policy Statement: Upper Saddle River's active recreation facilities consist of athletic fields in the
area surrounding the elementary schools, municipal complex and library, as well as various
municipal parks. Existing passive open space areas are located along the Saddle River and other
areas of the borough. However, the acquisition of additional municipally owned open space for
active and passive recreation might be warranted. The borough should undertake a study of future
open space and recreation needs of the community and identify additional lands to be acquired, if
necessary. Any plans for future lands to be acquired for active open space must also address
concerns relating to buffering and lighting, as it affects adjoining residences.
The future land use of the Apple Ridge Golf Course, as it relates to the portion located in Upper
Saddle River, also needs to be evaluated. An analysis of open space must take into account the
standards limitations established by the Council on Affordable Housing as part of the borough's
vacant land adjustment.
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The recreation and open space element should also evaluate the need for a community center. One
location to be evaluated as a potential community center site is the tree fann at the northwest comer
of Lake Street and West Saddle River Road.
Goal 11
To ensure that Upper Saddle River's zoning and land use ordinances reflect the most current state of
the art, promotes new development that is in keeping with the character of the community and
protects the health safety and welfare of the residents of the borough.
Policy Statement: The Planning Board recommends that the borough's current land use ordinances
be amended to address various land use issues that have arisen in the development review process.
The following new regulations should be established:
(I) Minimum setbacks for residential driveways from a side lot line.
(2) Provision for a minimum building envelope area on a residential lot sufficient to adequately
accommodate a residence and septic system. This issue is of particular concern on lots with,
environmental constraints.
(3) Discourage subdivision design that converts existing adjoining residential lots into through
lots that have street frontage at the front and rear of the lot.
(4) Increase the rear yard setback for single-family residential properties to 50 feet for principal
buildings and 35 feet for accessory structures.
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[0 preserve the mature vegetation and wooded areas in Upper Saddle River, which is an integral part
)fthe aesthetic character of the community.
>olicy Statement: The wooded areas ofUpper Saddle River are an important part ofthe desirability
)f properties in the community. The Planning Board recommends that the borough governing body
ldopt a tree preservation ordinance that mandates the retention of natural wooded buffers between
)roperties. A proposed tree removal ordinance has been reviewed and endorsed by the Planning
30ard.
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Goal 13
To preserve the integrity ofthe individual wells which provide the potable water supply to virtually
all of the dwellings in Upper Saddle River.
Policy Statement: Consideration should be given to evaluating non-residential land uses pennitted
along the highway corridor for their potential contamination to wells on nearby residential lots. Any
new commercial development along the Route 17 corridor should contribute towards the extension
ofpublic water to adjacent residential properties. Currently gasoline service stations are a pennitted
use in the H-IR District. However, the borough Zoning Ordinance should be revised to eliminate
gasoline service stations as a pennitted use along the Route 17 corridor in Upper Saddle River. At
the same time, the upgrading of existing stations should only be pennitted when proposed with
increased open space, enhanced landscape amenities and buffering to protect adjacent residential
areas against well contamination and provide aesthetic enhancements to the Route 17 corridor
Goal 14
.To adequately address stonnwater runoff impacts from development.
Policy Statement: Portions ofUpper Saddle River experienced severe flooding and damage in 1999
as a result of Hurricane Floyd. Stonnwater management is a key concern as more development
occurs within the borough. In order to address these issues, the community should develop a
stonnwater management plan and adopt a stonnwater management ordinance consistent with NJDEP
requirements.
Goal 15
To limit the extension of sewers into areas of the borough that are not located within existing or
plarmed sewer service areas.
Policy Statement: With the exception of the commercial properties located along the Route 17
corridor and the borough's inclusionary housing sites, as set forth in the borough's Housing Element
and Fair Share Plan, no other portion ofthe borough is currently or planned to be serviced by sewers.
These non-sewered areas include the borough's three scarce resource sites as described in the
Housing Element and Fair Share Plan. The borough does not intend to extend sewers or encourage
the extension of sewers into any area of the borough that is not currently or planned to be sewered.
Goal 16
To encourage roadway design in new residential development that utilizes cul-de-sacs and limits the
creation of through streets.
Policy Statement: The borough's road system and residential pattern of development includes a
substantial number of cul-de-sac streets and not grid pattern development. In order to limit traffic
volumes and vehicular speeds on the residential access streets in the borough, the Planning Board
has historically favored the creation ofcul-de-sac streets in new residential development rather than
create new through streets. The Planning Board reaffirms this policy.
Goal 17
To support the overall philosophy of the State Development and Redevelopment Plan (SDRP) as a
means ofproviding growth management on a statewide basis while retaining the principles of.home­
rule.
Policy Statement: The borough maintains that the general intent of the SDRP, to manage growth
within the framework of an assessment of needs and infrastructure capabilities, and the SDRP's
specific planning area designation for Upper Saddle River, represents a reasonable approach to
growth management.
LAND USE PLAN CATEGORIES
The Borough Plan is based on 13 land use categories for development. They do not substantially
alter the community's previous land use plan as depicted in the prior master plan reports, although
some modifications are suggested. The categories are described as follows:
1.
Low Density Residential (R-I): This land use designation encompasses the vast majority
land in the borough. Virtually all the existing residential development falls within land
within the low-density residential land use category, which provides for a density of
approximately one detached dwelling unit per acre. The minimum lot area for residential
building lots in this land use category is 37,500 square feet. The land use category is
intended primarily as a residential designation, but it permits borough owned open space,
public and board ofeducation facilities and associated accessory uses. Schools and houses of
worship are conditional uses.
2.
Moderate Density Residential (R-2): This designation encompasses a number ofilfeas,
generally situated in the northern portion of the borough. The three areas in the community
located in this category are along Parker Place, Lake Road and Cottage Lane. These areas are
characterized by residential development on minimally 10,000 square foot lots and the
purpose ofthis land use designation is to acknowledge the existing development pattern. The
moderate density category defines a housing density of approximately 4.3 dwelling units per
acre.
3.
Affordable Housing I (AH-I): This land use category encompasses land in the northeast
portion of the municipality known as the Dynasty site. This site is designated as an
affordable housing site in the borough's housing plan. A settlement agreement between
Dynasty and the borough permits 42 market rate units on the site. Dynasty agreed to fund a
nine-unit regional contribution agreement. In the event no units are transferred Dynasty can
build 52 units on-site, including 10 affordable units.