Consultants:
INTERFACE STUDIO – City Planning & Urban Design
340 N 12th Street #419
Philadelphia, PA 19107
215.925.5595
REAL ESTATE STRATEGIES – Commercial & Residential Market Analysis
63 Chestnut Road, Suite 6
Paoli, PA 19310
610.240.0820
CIVIC ECONOMICS – Retail Market Analysis
1425 West Summerdale Avenue #3A
Chicago, IL 60640
773.251.5926
SAM SCHWARTZ ENGINEERING – Transportation Planning
505 N LaSalle, Suite 300
Chicago, IL 60654
773.305.0800
SHUMAKER CONSULTING ENGINEERING & LAND SURVEYING – Civil Engineering &
SEQRA
143 Court Street
Binghamton, NY 13901
607.798.8081
CODE STUDIO – Form-Based Code
East Village #107
1200 East 11th Street
Austin, TX 78702
512.478.2200
VIBRANT CREATIVE – Web Design
199 State Street
Binghamton, NY 13902
607.433.8837
List of Involved Agencies:
Binghamton City Council
Binghamton City Hall
38 Hawley Street
Binghamton, NY 13901
607.772.7165
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List of Interested Agencies:
New York State Department of Transportation (NYSDOT)
Jack Williams, Regional Director
New York State Department of Transportation, Region 9
44 Hawley Street
Binghamton, NY 13901
607.721.8116
Binghamton Metropolitan Transportation Study (BMTS)
Cyndi Paddock, Director
Fifth Floor
Broome County Office Building
60 Hawley Street
PO Box 1766
607.778-.443
Broome County Department of Public Works
Highway Building
47 Thomas Street
Chenango, NY 13901
(607) 778-2228
Binghamton Johnson City Joint Sewage Treatment Facilities
Catherine P. Aingworth, Superintendent
Binghamton-Johnson City Joint Sewage Treatment Facilities
4480 Vestal Road
Vestal, New York 13850
(607) 729-2975
New York State Department of Environmental Conservation, Region 7
Kenneth Lynch, Regional Director
615 Erie Blvd. West
Syracuse, NY 13204-2400
(315) 426-7403
New York Department of State, Office of Planning and Development
Suite 1010
One Commerce Place, 99 Washington Avenue
Albany, New York 12231-0001
(518) 474-6000
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TABLE OF CONTENTS
1.0
1.1
1.2
1.3
1.4
1.5
1.6
EXECUTIVE SUMMARY ..............................................................................................1
Introduction ...............................................................................................................1
Description of the Proposed Action .........................................................................5
Alternatives................................................................................................................5
Significant Impacts and Mitigation Measures ........................................................6
Interested/Involved Agencies ..................................................................................7
Required Reviews and Approvals ............................................................................7
2.0
2.1
2.2
2.3
2.4
2.5
2.6
2.7
PROPOSED ACTION: COMPREHENSIVE PLAN UPDATE ADOPTION ........................8
Project Location ........................................................................................................8
Project History ...........................................................................................................8
Project Purpose and Need .......................................................................................10
Goals of the Plan .......................................................................................................10
Recommendations ....................................................................................................10
Involved & Interested Agencies ...............................................................................11
Required Reviews and Approvals ............................................................................12
3.0
3.1
ENVIRONMENTAL SETTING, IMPACTS AND MITIGATION ........................................13
Economic Development ............................................................................................13
3.1.1 Existing Conditions ........................................................................................13
3.1.2 Potential Impacts ..........................................................................................16
3.1.3 Mitigation Measures .....................................................................................18
Housing ......................................................................................................................20
3.2.1 Existing Conditions ........................................................................................20
3.2.2 Potential Impacts ..........................................................................................22
3.2.3 Mitigation Measures .....................................................................................28
Transportation ...........................................................................................................28
3.3.1 Existing Conditions ........................................................................................28
3.3.2 Potential Impacts ..........................................................................................34
3.3.3 Mitigation Measures .....................................................................................38
Infrastructure and Water Resources .......................................................................38
3.4.1 Existing Conditions ........................................................................................38
3.4.2 Potential Impacts ..........................................................................................48
3.4.3 Mitigation Measures .....................................................................................48
Environment, Open Space and Recreation .............................................................49
3.5.1 Existing Conditions ........................................................................................49
3.5.2 Potential Impacts ..........................................................................................54
3.5.3 Mitigation Measures .....................................................................................55
Land Use and Zoning ................................................................................................56
3.6.1 Existing Conditions ........................................................................................58
3.6.2 Potential Impacts ..........................................................................................58
3.6.3 Mitigation Measures .....................................................................................62
3.2
3.3
3.4
3.5
3.6
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3.7
Historic, Cultural and Visual Resources ..................................................................62
3.7.1 Existing Conditions ........................................................................................62
3.7.2 Potential Impacts ..........................................................................................65
3.7.3 Mitigation Measures .....................................................................................67
4.0
4.1
4.2
4.3
4.4
OTHER ENVIRONMENTAL IMPACTS .........................................................................68
Unavoidable Adverse Environmental Impacts ........................................................68
Irreversible and Irretrievable Commitment of Resources ......................................68
Growth-Inducing, Cumulative and Secondary Impacts ..........................................68
Effects on the Use and Consumption of Energy .....................................................68
5.0
5.1
ANALYSIS OF ALTERNATIVES ...................................................................................70
Comprehensive Plan Update with Form-Based Code .............................................70
for Main/Court Streets
No Action ...................................................................................................................74
5.2
6.0
6.1
SUBSEQUENT SEQR ACTIONS ..................................................................................76
Recommendations Proposed by the Comprehensive Plan ....................................76
and Form-Based Code Potentially Requiring Future
Site-Specific SEQR Review
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LIST OF FIGURES
1-1
2-1
3.1-1
3.1-2
3.2-1
3.2-2
3.3-1
3.3-2
3.3-3
3.3-4
3.4-1
3.4-2
3.4-3
3.5.4-1
3.6.1-1
3.6.1-2
3.6.1-3
3.7-1
5-1
Main and Court Concept Map
Regional Location Map
Brownfield Opportunity Areas (BOAs) Map
Industrial Preservation Areas Map
Neighborhood Strategy Map
Rental Housing Zones Map
Streets Map
Broome County Bus Transit Map
Off -Campus College Transport Map
Proposed Circulation Interventions
FEMA Proposed Floodplain
Existing Floodplain
Water and Sewer Infrastructure
Open Space and Trails Map
Land Use Map
Zoning Map
Proposed Land Use Map
Historic Resources
Form Based Code for Main Street/Court Street Corridor
LIST OF APPENDICES
Appendix A
NYSDEC Natural Heritage Response Letter
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1.0
EXECUTIVE SUMMARY
1.1
Introduction
This Draft Generic Environmental Impact Statement (DGEIS) will be used to evaluate
potential impacts resulting from the adoption of the City of Binghamton
Comprehensive Plan Update, Blueprint Binghamton, herein referred to as
Comprehensive Plan Update, Comprehensive Plan or Blueprint Binghamton. The
Draft Comprehensive Plan Update dated March 24, 2014, which was prepared for
and is under consideration by Binghamton City Council, is available upon request.
Under State Environmental Quality Review (SEQR), a “Generic” EIS, or GEIS, is
prepared when a proposed action represents a comprehensive program having wide
application and does not involve site-specific land development projects. This DGEIS
has been prepared in accordance with the New York State Environmental Quality
Review Act (SEQRA) and its implementing regulations (6 NYCRR Part 617).
Binghamton City Council is the Lead Agency for this environmental review.
The City of Binghamton Comprehensive Plan Update, Blueprint Binghamton: Forward
Together is the 2014 update of the City of Binghamton’s Comprehensive Plan, a
citizen-driven effort to plan for Binghamton’s future and move the city forward
together. In 2011, the U.S. Department of Housing and Urban Development awarded
the City of Binghamton a Community Challenge Planning Grant to update the
comprehensive plan and develop a corridor plan focused specifically on the design
and redevelopment of Court and Main Streets. The planning process began in the
fall of 2012, and over the next year and a half thousands of people shared their
thoughts on how Binghamton should move forward over the coming decade. Their
input, combined with an analysis of current and historic conditions in the city, form
the vision for the city’s future and the basis for the action areas of the plan.
This DGEIS summarizes issues associated with existing conditions and No-Action
Alternative as well as the potential city-wide impacts associated with the adoption of
the Comprehensive Plan which includes strategies such as creating a Business
Improvement District; development of a new urban village/mixed use zoning
classification to legalize and more effectively regulate student housing; and
improving transit, pedestrian, and bicyclist accommodations. The Main Street/Court
Street Form-Based Code is included as an Appendix to the Comprehensive Plan. A
Concept Map is included as Figure 1-1. Broad based impacts associated with the
adoption of the Form-Based Code are also evaluated in Section 5.1 as an Alternative
to the Proposed Action in this DGEIS.
A detailed discussion of the potential impacts of the Proposed Action and an
alternative to the Proposed Action that also includes the Form-Based Code are
provided in Chapter 3 of the DGEIS. An analysis of the No Action Alternative, which
assumes that the Comprehensive Plan would not be adopted, is briefly discussed in
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Section 1.3 and in more detail in Section 5.2. This SEQR process is intended to
provide a review of potential impacts of the Comprehensive Plan and Form Based
Code on a generic level and will not result in any site-specific review of approvals
related to specific development projects discussed in the Comprehensive Plan.
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LEGEND
Figure 1-1
Main & Court Concept Map
City of Binghamton
Comprehensive Plan Update
SEQR Draft Generic Environmental Impact Statement
Broome County, New York
County Coverage: Broome
Quad Coverage: Binghamton West; Binghamton East; and Castle Creek
Not to Scale
Client Name: City of Binghamton
The DGEIS is intended to provide City Council, the public, and involved agencies with
an understanding of the type of potential environmental impacts that may be
associated with the adoption of the Proposed Action. Additionally, a critical
component of the SEQR environmental review process is that it incorporates
opportunities for public review and comment.
The steps required to prepare and finalize the GEIS include:
Lead Agency Determination – Declaration of City Council as Lead
Agency.
Positive declaration and Notice of Intent - City Council accepted the
positive declaration with the notice of intent to prepare a DGEIS.
Scoping – An optional process that allows the Lead Agency to review
potentially significant adverse impacts and to eliminate consideration
of impacts that are irrelevant. If scoping is conducted, it must also
include an opportunity for public participation. Scoping for the
Proposed Action was conducted on January 22, 2014, and written
comments on the draft scoping document were accepted by the Lead
Agency through February 5, 2014.
DGEIS – A draft document accepted by Binghamton City Council and
released for public and agency review and comment.
Public Review – of a least 30 days including a public hearing at which
an individual, group, or agency may comment on the DGEIS. This will
be conducted concurrently with the hearing for the Draft
Comprehensive Plan.
Final GEIS (FGEIS) – Acceptance of this document and associated
notification will be made by Binghamton City Council as Lead Agency.
This document will incorporate relevant comments and responses, if
any, made during public review of the DGEIS.
Findings Statement – Adopted and passed by City Council as Lead
Agency no sooner than ten (10) days, nor more than 30 days after
publication of the FGEIS. The Findings Statement must: consider the
relevant environmental impacts, facts and conclusions disclosed in the
final EIS; weigh and balance relevant environmental impacts with
social, economic and other considerations; provide a rationale for the
agency's decision; certify that the requirements of this Part have been
met; certify that consistent with social, economic and other essential
considerations from among the reasonable alternatives available, the
action is one that avoids or minimizes adverse environmental impacts
to the maximum extent practicable, and that adverse environmental
impacts will be avoided or minimized to the maximum extent
practicable by incorporating as conditions to the decision those
mitigative measures that were identified as practicable.
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1.2
Description of the Proposed Action
The Proposed Action is the adoption of the City of Binghamton Comprehensive Plan
Update, Blueprint Binghamton, by Binghamton City Council.
While the
Comprehensive Plan identifies a vision, as well as goals and strategies to achieve the
desired outcome, it is a city-wide plan and; therefore, more generic in nature than a
site specific plan. Since the Comprehensive Plan is generic in nature, future
development projects which are not specific to the Comprehensive Plan will be
subject to site specific review under SEQR and will be handled by the City as part of
the Site Plan review (See Section 6.0 Subsequent SEQR Actions).
The City of Binghamton Comprehensive Plan Update is a blueprint for the city’s future
that will provide guidance for future planning and zoning actions for the next ten (10)
years. The Comprehensive Plan Update is comprised of seven (7) mini plans related
to the following topics: Economic Development, Housing, Transportation,
Infrastructure, Environment and Open Space, Land Use, and Zoning and Community
Building. Each mini plan as presented in Blueprint Binghamton includes an analysis
of existing conditions, summary of input received during the outreach phase, goals
and objectives, and recommendations or strategies.
For purposes of this Draft Generic Environmental Impact Statement (DGEIS), the
proposed adoption of the Comprehensive Plan Update by Binghamton City Council
constitutes the Proposed Action.
1.3
Alternatives
The alternatives to the Proposed Action analyzed in this DGEIS include the adoption
of the Comprehensive Plan Update with the Form-Based Code (FBC) for the Main
Street-Court Street Corridor and the No-Action Alternative.
Adoption of the Comprehensive Plan Update with the Form-Based Code
This action would involve adoption of the Comprehensive Plan with the FBC for the
Main Street/Court Street Corridor. The context of this alternative is the same as the
Proposed Action except that it assumes that the Main Street/Court Street FBC is also
adopted. The intent of the Main Street/Court Street FBC is to guide the design and
redevelopment of Court and Main Streets. Conflicts between the FBC and existing
city ordinances and regulations would have to be resolved.
The FBC would result in the establishment of four (4) new zoning districts within the
corridor. And, contrary to existing zoning where the main focus is on use and with a
small focus on building and property form, the FBC focuses largely on building form
and layout with a much smaller focus on allowable use. If adopted, amendments to
the existing zoning will be required and discrepancies between the FBC and existing
city ordinances and regulations would have to be resolved. The Main Street/Court
Street FBC is provided as an Appendix to the Comprehensive Plan Update and
discussed in more detail in Section 5.1 of this DGEIS.
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No Action
The No-Action Alternative assumes that the Update to the Comprehensive Plan would
not be adopted. Under this alternative, current land use patterns would continue as
they are today and in accordance with the 2003 Comprehensive Plan and existing
zoning regulations.
If the city chooses not to adopt the Comprehensive Plan Update, future actions would
be guided by an outdated plan. The city would lose the benefits of recent studies,
public input, vision, refined objectives and focused strategies, and recommendations
that have been realized as a result of the extensive outreach and planning process
conducted for this update.
1.4
Significant Impacts and Mitigation Measures
The adoption of the Comprehensive Plan and FBC will not generate adverse impacts
and the need for mitigation measures. The goals and objectives identified in the
Comprehensive Plan are anticipated to strengthen the City of Binghamton’s
environment and natural resources by minimizing development in the floodplain,
targeting flood risk properties for open space, encouraging trail connections,
promoting walkability, and enhancing community character. Mitigation measures
may be required for individual projects that are proposed for development in
accordance with the visions outlined in the plan. The need for such measures will be
evaluated on a site specific basis during the site plan and SEQR review processes.
Chapter 3.0 presents a summary of existing conditions and an analysis of potential
impacts of the Proposed Action on the following elements of the Comprehensive Plan
Update: Economic Development, Housing, Transportation, Infrastructure and Water
Resources, Environment, Open Space and Recreation; Land Use and Zoning; and
Historic, Cultural, and Visual Resources. Additional detail regarding each element of
the Comprehensive Plan can be found in the respective sections of the 2014
Comprehensive Plan Update, Blueprint Binghamton.
The adoption of the Comprehensive Plan is expected to have an overall beneficial
impact on the city as a whole; therefore, site-specific and neighborhood-wide
mitigation measures are not necessary. Future projects, such as development within
the Brandywine Brownfield Opportunity Area, will require site plan review by the city
as well as SEQR review. Mitigation measures may be required to address potential
concerns associated with the development of individual projects. Potential impacts
and mitigation measures for features including, but not limited to, stormwater, traffic,
and historic resources will need to be evaluated as appropriate for individual
development projects. These projects are not associated with the adoption of this
Comprehensive Plan.
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1.5
Involved/Interested Agencies
Involved Agencies
For this DGEIS, Binghamton City Council is the Lead Agency as well as an Involved
Agency. Under SEQR the Lead Agency is responsible for coordinating the SEQR
review process as well as decision making relative to the Proposed Action. As Lead
Agency, City Council is also responsible for preparing a Determination of Significance,
determining the scope and adequacy of the DGEIS, coordinating the preparation of
the Final GEIS, and preparing SEQR findings. The Lead Agency and Involved Agencies
have the authority to fund, approve, or directly undertake some aspect of the
Proposed Action. For this DGEIS, the City of Binghamton Mayor’s Office is also an
Involved Agency.
The contact information for the Involved Agencies is as follows:
Binghamton City Council
Binghamton City Hall
38 Hawley Street
Binghamton, NY 13901
607-772-7615
Office of the Mayor
Binghamton City Hall
38 Hawley Street, 4th Floor
Binghamton, NY 13901
607-772-7001
Interested Agencies
Interested Agencies do not have the authority to fund, approve, or directly undertake
an aspect of the Proposed Action. Interested Agencies may contribute relevant
scoping topics, submit written comments during the DGEIS comment period, and
comment on the DGEIS at public hearings. A list of the Interested Agencies for this
DGEIS is presented on the title page, ii.
1.6
Required Reviews and Approvals
Under Section 28-a of the New York State General City Law, City Comprehensive
Plan, Binghamton City Council will consider the plan for adoption.
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2.0
PROPOSED ACTION: COMPREHENSIVE PLAN UPDATE ADOPTION
Blueprint Binghamton is the 2014 update of the City of Binghamton’s
Comprehensive Plan, a citizen-driven effort to plan for Binghamton’s future and move
the city forward together. The plan builds off and expands upon the work of the
previous 2003 comprehensive plan and several other plans and studies conducted
over the last 15 years. The plan provides a vision for the city’s future and the basis
for the action areas of the plan.
The plan provides a discussion of existing conditions, goals, and objectives and
recommendations/strategies in the form of seven (7) mini plans. The mini-plans are
included in Chapter V of the Comprehensive Plan Update and describe the city’s
policies and actions related to Economic Development, Housing, Transportation,
Infrastructure, Environment and Open Space, Land Use and Zoning, and Community
Building.
Binghamton City Council proposes to adopt the City of Binghamton Comprehensive
Plan Update, Blueprint Binghamton. The Comprehensive Plan Update constitutes the
“Proposed Action” for purposes of this DGEIS.
2.1
Project Location
The City of Binghamton lies in the southwestern portion of Broome County, which is
one of about eight counties west of the Catskill Mountains, that shares its southerly
boundary with the New York-Pennsylvania State Line otherwise referred to as the
Southern Tier (Reference Figure 2-1). Broome County shares its borders with these
other New York counties: Delaware, Tioga, Cortland, and Chenango. The city shares
its borders with the Towns of Binghamton, Vestal, Kirkwood, Conklin, Dickinson, and
Union and the Villages of Johnson City and Port Dickinson. The City of Binghamton
occupies a land area of approximately 11-square miles and is situated about the
confluence of the Chenango and Susquehanna Rivers. 1 The Chenango River is a
tributary of the Susquehanna River and it flows north to south through the city’s
landscape. The Susquehanna River flows east to west through it. In 2010, the
United State Census Bureau estimated the city’s resident population at 47,376
people.
2.2
Project History
Since the last comprehensive plan in 2003, new businesses and housing have
brought new life to downtown, the city’s population has stabilized, and the waterfront
trail and parks have given a boost to the quality of life and regional image of
Binghamton. However, a plan is needed to guide planning and development, while
capitalizing on existing assets. The devastating floods of the last few years and the
resulting impacts reinforce the fact that the city must think proactively and prepare
for tomorrow today.
1
http://en.wikipedia.org/wiki/Binghamton,_New_York
City of Binghamton Comprehensive Plan Update DGEIS
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8
Ê
Town of Triangle
Town of Lisle
Village of Lisle
Village of Whitney Point
Town of Nanticoke
Town of Barker
Town of Maine
Town of Fenton
Town of Chenango
Town of Colesville
Town of Dickinson
Town of Union
Village of Johnson City
Village of Port Dickinson
Town of Dickinson
Town of Kirkwood
Town of Sanford
Village of Endicott
Village of Windsor
Village of Deposit
Town of Windsor
Path: E:\2012\12224 Bing Comp Plan\Graphics\GIS\12224.00_Regional_Location_Map.mxd
Town of Vestal
Legend
City of Binghamton
Villages
Towns
County Coverage: Broome
Town of Binghamton
Town of Conklin
Figure 2-1
Regional Location Map
City of Binghamton
Comprehensive Plan Update
SEQR Draft Generic Environmental Impact Statement
Broome County, New York
Quad Coverage: Binghamton West; Binghamton East; and Castle Creek
0
10,000 20,000
1:360,000
1 in = 30,000 ft
Feet
Client Name: City of Binghamton
That is where a Comprehensive Plan comes in. A Comprehensive Plan is a document
that describes the city’s policies and actions related to Binghamton’s land use,
neighborhoods, transportation, infrastructure, the economy, the environment, and
quality of life. Updating the Comprehensive Plan now provides the opportunity to
build on the positive initiatives already in full swing in Binghamton while proactively
tackling ongoing challenges.
Blueprint Binghamton: Forward Together is the culmination of a year and a half-long
planning process that sought to involve everyone with a stake in the City of
Binghamton. This citizen-driven plan will guide the growth and development of the
city over the next 10 years. Its complement is a FBC corridor plan that focuses
specifically on the design of Court and Main streets as future redevelopment occurs.
The adoption of the FBC is evaluated as an alternative to the proposed action.
Blueprint Binghamton employed a range of strategies to meet the people of the city,
learn from their unique perspectives, and use their local knowledge to support the
creation of the plan. Opportunities for learning and sharing, involvement and action
included: meetings with the public, community groups, and the steering committee;
city-wide survey; interviews and focus groups; community discussions; and interactive
exhibits and a web application. Detail regarding these opportunities is presented in
in Chapter 3 of the Comprehensive Plan
2.3
Project Purpose and Need
The purpose of the Comprehensive Plan is to provide a framework for moving
forward, a vision for the city’s future, and recommendations on how to accomplish
the goals of the plan. Furthermore, the plan focuses on preserving and enhancing
city assets including trails, parks, waterfront, and historic/cultural resources while
addressing concerns associated with neighborhood blight, student housing, and
flooding.
2.4
Goals of the Plan
As identified in Chapter 4 of the Comprehensive Plan, the plan for moving forward
together calls for a blueprint for a Binghamton that is:
Thriving
Resilient and sustainable
Healthy
Proud
Alive
2.5
Recommendations
The City’s Comprehensive Plan Update is comprised of seven (7) topic-specific
sections or mini-plans. Each mini plan speaks to the elements of the city’s vision,
City of Binghamton Comprehensive Plan Update DGEIS
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10
goals, and objectives and provides recommendations or strategies including policy
changes and action steps that will help make the community’s vision a reality in the
years to come.
The seven (7) mini plans are:
Economic Development: a plan for a city that prospers
Housing: a plan for those at home in the city
Transportation: a plan for a city that walks, bikes, rides transit, and drives too
Infrastructure: a plan for where the rivers meet the city
Environment & Open Space: a plan for preservation and play
Land Use & Zoning: a plan for the land
Community Building: a plan for neighbors and neighborhoods
Each mini-plan as presented in Chapter V (A-G) of the Comprehensive Plan Update
identifies recommendations proposed to support the goals identified in 2.4 above.
The recommendations are summarized in Section 3 of this document.
2.6
Involved & Interested Agencies
Involved Agencies
For this DGEIS, Binghamton City Council is the Lead Agency, as well as the Involved
Agency. Under SEQR the Lead Agency is responsible to coordinating the SEQR review
process and decision making relative to the Proposed Action. As Lead Agency,
Binghamton City Council is also responsible for preparing a Determination of
Significance, determining the scope and adequacy of the DGEIS, coordinating the
preparation of the Final GEIs, and preparing SEQR Findings.
The contact information for the Involved Agency is as follows:
Binghamton City Council
Binghamton City Hall
38 Hawley Street
Binghamton, NY 13901
Contact: Ms. Teri Rennia
T. 607.772.7615
Interested Agencies
Interested agencies to not have the authority to fund, approve, or directly undertake
some aspect of the Proposed Action. Interested Agencies may contribute relevant
scoping topics, submit written comments during comment periods, and comment on
the DGEIS at public hearings. Interested Agencies for this project are included on the
title page, ii.
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2.7
Required Reviews and Approvals
Under New York State General City Law Section 28-a, a city may prepare a city
comprehensive plan. For the City of Binghamton Comprehensive Plan, City Council
will consider the Plan for adoption.
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3.0
ENVIRONMENTAL SETTING, IMPACTS, AND MITIGATION
3.1
ECONOMIC DEVELOPMENT
The Economic Development Chapter or Blueprint Binghamton Mini-Plan on Economic
Development (Comprehensive Plan, Chapter V.A) speaks to residents’ primary
concerns about local jobs and businesses. The plan addresses the need to create
jobs (and training) for workers of varied skill and education levels, the importance of
encouraging new jobs at big companies that require big sites as well as small
businesses and start-ups, strategies for promoting businesses that restore vibrancy
downtown, and the benefits of expanding connections between businesses and
major institutional anchors. This plan strives to position Binghamton as a city that
businesses choose for its business-friendly environment, creative vibe, and high
quality of life offered to employees.
3.1.1 Existing Conditions
Employment Centers/Jobs
Binghamton has a long tradition as a center of transportation and industry dating
back to the 1830’s and the completion of the Chenango Canal. More recently;
however, reductions in jobs in the city as well as in Broome County and the broader
region have been major issues.
In the period between 2002 and 2011 the city lost 66 percent of its manufacturing
jobs. More recently, declines in employment by local government as a result of
essential fiscal austerity measures has added to the slow pace of economic recovery.
Data from the New York Department of Labor (NYSDOL) showed unemployment (not
seasonally adjusted) in the City of Binghamton was 8.1 percent in September 2013
and 7.9 percent during October 2013.
Employment has increased in a few sectors of the city’s economy. The largest growth
has been in the Health Care and Social Assistance sector. There have also been
smaller increases in other sectors.
Employment projections for the Southern Tier Region and Broome County indicate job
growth during the time frame from 2010 to 2020. The NYSDOL forecasts that total
employment in the Southern Tier Region will increase by 6.2 percent. The number of
jobs in Broome County is also expected to increase during the ten-year time frame.
Approximately 70 percent of the additional jobs are expected to be in the following
sectors: Health Care and Social Assistance; Professional and Business Services;
Educational Services; and Accommodation and Food Services.
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Brownfield Opportunity Areas (BOAs)
Multiple Brownfield Opportunity Areas (BOA) sites exist within the city. These sites
offer mixed use redevelopment opportunities (Reference Figure 3.1-1). The
Brandywine Corridor and North Chenango River Corridor have been previously
studied for redevelopment scenarios. The First Ward BOA is being conducted in
coordination with the Comprehensive Plan. Additional detail regarding each of these
sites and potential development options is provided in Chapter V - A of Blueprint
Binghamton.
Business Districts/Retail
Data from the Economic Census shows that Binghamton’s share of Broome County’s
retail sales has been steadily declining over the last 25 years. Binghamton’s retail
market share has shifted to Vestal and Johnson City. Vestal has been attracting
large chain merchants in power centers for over 20 years that bring large footprints
and sales in their direction. Johnson City has the Oakdale Mall and its nearly 1
million square feet of leasable space along with other big box retail.
However, Binghamton’s share of restaurant and bar sales has been growing in recent
times. This is a positive indicator for Binghamton moving forward. If the city can
capitalize on its strength of restaurants and nightlife, the long-term goal should be to
shift more sales to the large portion of independent merchants in the city.
Currently, sales at retailers in the City of Binghamton slightly exceed the expected
demand of its citizens, indicating a modest draw of shoppers from outside the city.
While this surplus of retail sales is encouraging, the urban core in most markets
typically performs better capturing sales from area residents and visitors drawn to
the city to work, shop, and recreate.
For various reasons, the City of Binghamton has been unable to attract or
accommodate large-scale retail projects so its place in the regional retail market is
largely driven by local or regional merchants requiring smaller footprints. For retail in
the city proper, some sectors stand out as regional draws while others are
underserved forcing residents to shop elsewhere in the county. Some categories
such as automotive parts, furniture, health and personal care stores, sporting goods,
hobby, book, and music stores are drawing people into the city with sales that exceed
demand by at least 10 percent. Other categories such as building materials,
clothing, and miscellaneous retailers are not meeting retail demand for Binghamton
residents and may present opportunities for new and existing merchants.
In eating and drinking establishments, Binghamton does not meet expected demand
for its own residents despite the growing restaurant and bar business in downtown
Binghamton. Among full-service restaurants, the city meets only ¾ of local demand
and even less of the fast food market which indicates potential opportunities for
more food-related businesses into the City.
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BROWNFIELD OPPORTUNITY AREAS
LEGEND
Figure 3.1-1
Brownfield Opportunity Areas Map
City of Binghamton
Comprehensive Plan Update
SEQR Draft Generic Environmental Impact Statement
Broome County, New York
County Coverage: Broome
Quad Coverage: Binghamton West; Binghamton East; and Castle Creek
Scale As Shown
Client Name: City of Binghamton
To address these challenges, Blueprint Binghamton must address the opportunities
in downtown and different neighborhood commercial corridors.
Image/Marketing
Binghamton and the Southern Tier have long faced a challenge with regard to
perception and image. As stated in the 2003 City of Binghamton Comprehensive
Plan, “Many regional residents never visit downtown Binghamton, assuming the City
is unsafe and unpleasant. Many of these impressions are formed by the information
regional residents are receiving from local media.”
There are significant assets in Binghamton and downtown has clear momentum
represented by new housing and restaurants. It will be critical to promote these
investments while also instilling an image that Binghamton is open for business.
3.1.2 Potential Impacts
The key to a revitalized Binghamton is economic development and job growth. Since
the closure of the major industries that fueled regional growth, the lack of jobs has
remained a constant concern for residents and city leaders. Job losses have
continued over the course of the last decade which has only furthered negative
perceptions about Binghamton from potential businesses and many residents
throughout the region. The perceptions of the city, combined with the relatively low
incomes of local families, have also limited the opportunities for new retail
establishments. What were once vibrant retail corridors and an active downtown that
earned the city the name the “Parlor City” are now a reflection of the economic
challenges faced by the city. Although Binghamton was once an industrial town, the
ability to re-industrialize and create jobs for residents of all backgrounds is limited
due to the lack of market-ready, available land for large-scale industrial
redevelopment.
Despite these challenges, the city has the opportunity to reverse course and
capitalize on its inherent assets including its location, infrastructure (freight rail and
highways), and concentration of jobs downtown. The NYSDOL forecasts that four (4)
employment sectors - Health Care and Social Assistance; Professional and Business
Services; Educational Services; and Accommodation and Food Services are poised to
provide new jobs in the region. There is also momentum downtown with new
restaurants and services as well as a significant amount of new student housing to
support retail.
The recommendations that comprise Blueprint Binghamton’s Mini-Plan on Economic
Development [a plan for a city that prospers] are organized into seven (7) goal areas,
each titled by a key economic development goal:
Improve the image of the city as an excellent place to do business
Leverage rail and Brandywine BOA for job growth
Leverage the value of local anchor institutions for economic
development
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Create a mixed-use downtown that is a regional destination
Encourage local entrepreneurial activity and help small businesses
thrive
Create strong neighborhood commercial hubs
Foster the local arts
In support of the above goals, the Comprehensive Plan proposes the following
recommendations or strategies:
Develop professional branding strategy for the city to market
Binghamton assets and quality of life
Create an Industrial Preservation Area within the Brandywine industrial
corridor
Focus site acquisition efforts on the Brandywine BOA using land bank
program to assemble property
Seek “Shovel Ready” designation to enhance marketing of the new
Charles Street Business Park
Use tools such as BOAs and Infiltration and Inflow (I/I) credits for
redevelopment
Implement the Binghamton University Technology Incubator and
position the city to offer space for incubator “grown-ups” and ancillary
businesses supporting the incubator
Challenge anchor institutions to purchase 20% (with annual escalator)
of procured goods and services from local businesses
Create a Business Improvement District (BID) to build on the
successes and momentum in downtown Binghamton
Promote more activities downtown to encourage commuters to stay
after work
Create an aesthetically appealing and cohesive visual identity
Embrace the idea of pop-up shops and retail incubators to encourage
entrepreneurial activity
Support and grow the Buy Local campaign
Streamline the regulatory process for small, independent retailers
Allow the preservation of neighborhood commercial development to
give residents the option to shop and eat in their neighborhoods
Proactively guide the redevelopment of key areas such as Binghamton
Plaza and Chenango Street
Create a volunteer Public Art Commission to foster the local arts
Encourage visible and large-scale public art to promote the local arts
and downtown revitalization
Participate in local and regional efforts to boost tourism and heritage
tourism
Adoption of the Comprehensive Plan Update will provide an updated set of strategies
and actions that will proactively guide growth and development of the city including
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redevelopment of BOA’s and creation of an Industrial Preservation Area and Business
Improvement District (Reference Figure 3.1-2). The Economic Development plan also
identifies strategies to attract desired uses, enhance aesthetics and improve visual
identity, and provide more activities downtown to encourage commuters to stay
downtown after work. Implementation of these strategies will have potentially
beneficial effects on community character and quality of life.
Positive impacts include potential for new small businesses and greater diversity of
businesses providing increased employment, a cleaner improved downtown,
enhanced public art, improved perception, and ultimately a more attractive business
environment. While there are no adverse impacts identified relative to the economic
development component of the Comprehensive Plan, strategies identified in the plan
may lead to future rezoning or site-specific development. The zoning changes and
proposed site development may further affect the local community and would need
to be further considered and evaluated as changes and development are proposed.
3.1.3 Mitigation Measures
Since no adverse impacts have been identified for the economic resource component
of the Comprehensive Plan Update, no mitigation is necessary. However, strategies
that may lead to future rezoning may result in adverse impacts that would need to be
further evaluated. Furthermore, redevelopment projects would require site plan and
SEQR reviews.
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INDUSTRIAL PRESERVATION AREA
LEGEND
Figure 3.1-2
Industrial Preservation Area Map
City of Binghamton
Comprehensive Plan Update
SEQR Draft Generic Environmental Impact Statement
Broome County, New York
County Coverage: Broome
Quad Coverage: Binghamton West; Binghamton East; and Castle Creek
Scale As Shown
Client Name: City of Binghamton
3.2
HOUSING
3.2.1 Existing Conditions
Chapter V.B of Blueprint Binghamton, Housing: a plan for those at home in the city
addresses the needs of people affected by Binghamton’s housing stock and housing
market. Since the Community Building Plan (Chapter V.G) focuses on community and
neighborhood level conditions and opportunities, key considerations from that plan
have been incorporated into this discussion as appropriate.
Demographic Trends
Changes in the demographic characteristics in Binghamton, Broome County, and the
surrounding area have influenced residential development patterns and demand for
housing in the City of Binghamton. Population and household decline have leveled
since the 1990s but are projected to continue to decline in the city, county, and
surrounding area from 2010 to 2018. If actual losses are consistent with
projections, household growth in the city and the broader region will not drive
demand for new housing units.
A critical statistic influencing current and prospective demand for housing is the total
employment in the surrounding area, which continued on a downward trajectory
between mid-2008 and 2012. One positive economic factor in the area is the
presence of Binghamton University which is the region’s largest employer. The
economy in Broome County and the City of Binghamton is expected to continue
benefitting from the university’s growth.
The city’s aging housing stock, maintenance, and vacancy are of great concern. A
block-by-block survey of the residential areas in the city was conducted as part of the
comprehensive plan development to gauge the overall health and condition of each
block. The survey took into consideration factors such as vacancy, housing
conditions, property maintenance, infrastructure, and the public realm. About twothirds of the city’s residential blocks are trending up with many blocks exhibiting
average-good conditions. The blocks in the worst condition were observed to be
located near major infrastructure such as the rail and highways, close to commercial
corridors, and in the floodplain.
River and creek flooding in 2006 and 2011 had a major impact on homes in
Binghamton. FEMA’s new floodplain map and a reform of the National Flood
Insurance Program with higher flood insurance rates will greatly influence how and
where housing is concentrated in the future.
Neighborhoods
Binghamton’s neighborhoods are referenced in terms of eight (8) locations:
downtown, north side, east side, south side, west side, first ward, and Ely Park. A
figure that depicts the bounds of each neighborhood is provided in the Housing
Chapter of the Comprehensive Plan. Downtown is located in the central portion of the
city between the confluence of the two rivers. The north side extends north from
downtown and is bisected by Interstate 81/86, which extends east and west across
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the neighborhood. The east side borders downtown to the east, encompassing the
area north of the Susquehanna River and east of the New York Susquehanna and
Western rail line. The south side is divided into an eastern and western half. South
side east encompasses the eastern portion of the city’s south side. South side west
encompasses the western portion of the city’s south side, west of Mill Street and
south of the Susquehanna River. Binghamton’s west side is defined as the area west
of the First Ward, West Side Neighborhood Project (WSNP), downtown, north of the
Susquehanna River. The First Ward is sandwiched between the Conrail lines and the
Southern Tier Expressway. Ely Park is somewhat isolated from the rest of the city, by
Ely Park itself. It includes the small residential neighborhood beyond the Ely Park
Golf Course.
Real and perceived crime in Binghamton has inhibited revitalization efforts and
diminished the quality of life of residents that must contend with criminal behavior in
their neighborhoods.
Housing Demand
Since the number of households in Binghamton is not expected to increase,
household growth is not a driver of demand for housing units. While there is some
demand for new housing units generated by the need to replace older, obsolete
housing units, the need is not overly robust especially for newly constructed units to
be offered for-sale. Since household sizes also are trending downward, demand will
be higher for housing units to accommodate smaller families.
Three main household types are likely to drive the housing market: students, young
professionals, and seniors. Students currently live in the WSNP area, greater west
side, and downtown Binghamton neighborhoods, and have been a dominant force in
the revitalization of downtown. There are limited housing options in the city for
younger professionals.
An emphasis on providing additional employment
opportunities in the city and the broader region could increase housing demand by
retaining and attracting young adults. Data presented in the Comprehensive Plan
Update shows that large numbers of young households working in the city are living
in suburban areas outside Binghamton.
Increased opportunities for these
households to live in Binghamton are needed and estimated demand indicates that
there is likely market support. Increases in the number of people 65 and older will
also result in added demand for smaller housing units and housing to accommodate
middle- and higher-income seniors who are no longer able to cope with stairs and
home maintenance responsibilities.
Housing Supply
One of the often-cited advantages of the Binghamton area as a positive quality of life
consideration is the affordability of the housing stock in comparison with other
metropolitan areas in New York.
Sales of distressed properties, including foreclosed homes, have adversely affected
prices in Binghamton. The market for sales of existing homes continues to be weak in
City of Binghamton Comprehensive Plan Update DGEIS
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the city and the broader metropolitan area; a situation the National Association of
Realtors attributes to ongoing job losses and poor economic growth.
Of the sales recorded between 2011 and 2013, 56 percent were sold to owneroccupants and the remaining homes were sold to owners not occupying the homes.
The high number and percentage of 2013 sales to non-owner occupants may be a
result of an easing of financial requirements for investors, the general trend in U.S.
housing markets of additional investor purchases of homes that are offered for-rent,
or anticipated higher demand for student housing because of increases in enrollment
at Binghamton University.
Rental Housing
Rental housing is generally concentrated in the WSNP neighborhood, downtown, Ely
Park, and along Main Street. Rents at these larger multifamily complexes are very
affordable. While this is an advantage for renters and also contributes to the high
occupancy levels reported, the current rent levels are too low for new multifamily
residential construction to be financially feasible without subsidies. The exception is
new student housing with higher per-bed monthly rentals that can generate sufficient
rental income to be financially viable. Based on a rough estimate of supply and the
estimate of Binghamton University students living off-campus, there are sufficient
beds in Binghamton to house all of these students, and about 450 to 500 more.
Only one market-rate senior rental property, Good Shepherd Fairview Home, was
identified within the city. Waiting lists are long for affordable independent living
properties and there is a shortage of nursing homes.
Several assisted housing programs in Binghamton provide ongoing subsidies that
enable residents to pay gross rents (including utilities) that are based on 30 percent
of income. These include public housing, Section 8, Section 202 Elderly and
Handicapped Housing, and Housing Choice Vouchers. An estimated inventory of
assisted units indicates that occupancy is generally high and most have waiting lists
to fill vacancies.
3.2.2 Potential Impacts
Binghamton’s neighborhoods offer a range of choices from urban apartment living to
almost rural, secluded environments. The neighborhoods also vary significantly in
condition. Some neighborhoods are strong and thriving; others are affected by
vacancy, physical deterioration, transiency, and other issues that adversely impact
quality of life. The affordability of housing makes Binghamton attractive to
prospective buyers and renters but at the same time constrains new residential
construction. As identified in the Comprehensive Plan (see above and Chapter V.B),
key considerations relative to housing include: limited options for seniors coupled
with an anticipated increase in demand and challenges associated with student
rentals and aging housing stock. There are; however, opportunities to improve the
condition of housing and neighborhoods in the city for existing residents and attract a
City of Binghamton Comprehensive Plan Update DGEIS
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broader variety of residents. As depicted on Figure 3.2-1, neighborhoods have been
identified for maintenance, stabilization, or renewal.
The recommendations that comprise Blueprint Binghamton’s Mini-Plan on Housing
[a plan for those at home in the city] are organized into five (5) goal areas each titled
by a key housing goal:
1.
2.
3.
4.
5.
Preserve the existing housing stock
Expand housing choice in Binghamton
Manage the quality of rental and student housing
Revitalize downtown with a mix of housing options
Market Binghamton housing to attract diverse residents
In support of the above goals, the Comprehensive Plan proposes the following
recommendations:
Work with the Binghamton Housing Authority (BHA), private developers,
and community development corporations to preserve and expand
quality affordable rental housing
Assist residents in need (low-income, seniors) with maintenance and
repairs
Develop "Fix to Own" program for city-owned properties to transition to
owner-occupied properties
Work with Broome County Land Bank to assemble land for
redevelopment of new for-sale housing units
Develop new rental housing for general occupancy with a component
(20%) of affordable units
Develop affordable housing and mixed income developments adjacent
to services and transportation
Devise new urban village/mixed use zoning classification to legalize
and better regulate rental housing
Identify opportunity sites and incentives for new student housing
development
Work with BHA to ensure that properties leased to families with
Housing Choice Vouchers have been inspected and are in compliance
with Rental Registration Program.
Encourage historic preservation and reuse to provide unique, attractive
housing options
Develop moderate-income senior housing near amenities
Apply for a Choice Neighborhood Initiative Planning Grant for the
demolition and relocation of Binghamton Housing Authority’s North
Shore Towers and Village (and the adjacent, privately-owned Woodburn
Court)
Develop branding strategy for different target populations and
neighborhoods
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Work with institutions to offer employee incentives to live in
Binghamton
Expand Binghamton Homeownership Academy (BHOA) services and
partnerships
The above strategies are intended to reduce blight, improve housing conditions, and
provide a mix of housing types to compete with neighboring areas thus encouraging
more residents to live in Binghamton. Additionally, housing recommendations focus
on achieving greater flood protection for downtown by rebuilding or rehabilitating
existing vacant or underutilized structures to provide affordable housing outside the
floodplain.
With the exception of the Urban Village Overlay District, none of the proposed
housing strategies would increase the density of housing. The relocation of the North
Shore Towers and Village has the potential to impact the city; however, the impacts
of this proposal cannot be fully evaluated until a proposed site is selected. This
recommendation and other site-specific development projects have the potential to
affect traffic, tax base, community character, and local businesses. Impacts will
need to be further evaluated as projects are proposed.
How to best address student rental housing needs within the city is a key housing
consideration. The intent of the existing Urban Village District Overlay adopted in
2011, is to protect housing stock and property values in the city as well as designate
areas that are appropriate for mixed uses and subject to design guidelines to create
a vibrant and cohesive neighborhood. However, due to the zoning classification of
much of this area, the adopted overlay has had limited success in terms of student
housing. Land use and zoning recommendations included in the Comprehensive
Plan Update suggest the need to convert the existing Urban Village District Overlay
into a zoning category and expand its application. Figure 3.2-2 depicts areas
available for rental housing based on current zoning as well those associated with
the proposed expansion of the Urban Village Zone. Locations available for legal
student housing rentals are currently limited since they are generally permissible in
commercially zoned areas but not within residentially zoned areas. Specific locations
within the city that warrant new investment and offer amenities that appeal to
students such as access to Broome County (BC) Transit and Off-Campus College
Transport (OCCT) bus service and downtown should be considered for an Urban
Village Overlay zoning designation. The Urban Village Overlay would provide a clear
identification of where student housing would be permitted. The underlying use of
the zoning category would be commercial but managed to limit commercial
development inconsistent with the desired community character.
Creation of an Urban Village/Mixed Use Zone where rental and student housing is an
allowable use would be a positive step toward regulating rental housing, promoting
safety, maintenance, and quality of life. The clear identification of areas where
student housing is permitted along with registrations and inspections should result in
better maintenance and upkeep of properties by property managers and investorowners thereby improving neighborhood character and property values. Additionally,
City of Binghamton Comprehensive Plan Update DGEIS
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situating student rental housing in areas supported by OCC, BC transit, and in close
proximity to service amenities such as downtown could limit vehicular traffic and
encourage walkability. This change would also help target locations for commercial
businesses dependent on this population and potentially spread positive impacts of
revitalization brought about by students choosing to live in the city to currently
underutilized areas such as Main Street, and east of downtown. The intent is not to
dramatically grow student housing stock, but rather guide it toward strategic
locations to preserve established but threatened single-family neighborhoods in
addition to more effectively utilizing distressed areas. Considerations associated
with the Urban Village Overlay District Zoning include traffic and parking needs,
modifications to existing infrastructure, and impact on community character within
existing R1 and R2 districts as well as the new student housing zones.
Multiple recommendations support smart growth by recommending locating seniors
and students in close proximity to needed services thereby encouraging people to
live where they work and near services they rely on.
None of the above recommendations are anticipated to result in significant adverse
environmental impacts. The Comprehensive Plan includes the adoption of general
policy initiatives and recommended action areas to guide and facilitate future
development in the city rather than directly resulting in physical changes to the
environment. All future site development actions will be required to undergo
environmental review in accordance with SEQR. Specific details of proposed zoning
code amendments associated with the Urban Village District Overlay would have to
be further evaluated to assess whether there are impacts associated with the
adoption of the zoning amendments.
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NEIGHBORHOOD STRATEGY
LEGEND
Figure 3.2-1
Neighborhood Strategy Map
City of Binghamton
Comprehensive Plan Update
SEQR Draft Generic Environmental Impact Statement
Broome County, New York
County Coverage: Broome
Quad Coverage: Binghamton West; Binghamton East; and Castle Creek
Scale As Shown
Client Name: City of Binghamton
RENTAL HOUSING AREAS
LEGEND
Figure 3.2-2
Rental Housing Areas Map
City of Binghamton
Comprehensive Plan Update
SEQR Draft Generic Environmental Impact Statement
Broome County, New York
County Coverage: Broome
Quad Coverage: Binghamton West; Binghamton East; and Castle Creek
Scale As Shown
Client Name: City of Binghamton
3.2.3 Mitigation Measures
Since the recommendations included in the housing component of the
Comprehensive Plan Update are not anticipated to result in significant environmental
impacts, no mitigation is necessary. Developments such as new rental housing units,
senior housing, and relocation of North Shore Towers and Village may require
mitigation measures to address project-specific impacts. Measures will need to be
proposed as part of the site plan and SEQR review processes as projects are
developed.
3.3
TRANSPORTATION
Chapter V.C, of Blueprint Binghamton, Transportation: a plan for a city that walks
bikes, rides transit, and drives too is about the multiple ways in which people travel
through the city and how the city can better balance is public rights-of-way to serve
those traveling on foot, by bicycle, by bus, and by car to get where they need to go for
work, for school, and for fun.
3.3.1 Existing Conditions
Binghamton’s transportation network provides a wide range of options for getting
around the city that include driving, biking, walking, or BC transit. However, despite
the multiple modes of available transportation options, the majority of people that
live and work in Binghamton choose to drive. The Comprehensive Plan Update
identifies strategies to address the existing network of streets, parking areas, bike
trails, and transit services while seeking to add amenities, options, and alternatives
to boost safety, convenience, and mobility
Roads
The city’s street network consists of approximately 203 centerline miles of regional
(interstate and state highways) and local (commercial and residential streets)
connections. Regionally, two (2) interstate highways (I-81 and I-86) and a number of
state highways (US 11, NY 7, NY 434) provide connections between Binghamton and
the rest of Broome County (Reference Figure 3.3-1). These highways allow vehicles
to travel at high speeds to travel in and out of town. They also create barriers
between neighborhoods and disconnections within the city’s grid network. A major
construction project is currently being completely that will reconfigure the
interchanges at NYS Route 17/I-81 and NYS Route 7.
Locally, the street network consists of a number of grids that allow easy travel from
one neighborhood to another. The variety of scales of Binghamton’s streets further
strengthens the grid network with traffic flow evenly dispersed rather than funneled
into a minimal number of arteries as is the case in many suburban communities.
Most of Binghamton’s street network was built in the mid-20th century and designed
to accommodate the volume of cars generated by a growing residential and
employment population. These roadways now carry about half the volume of cars
City of Binghamton Comprehensive Plan Update DGEIS
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they were designed for, which makes it fairly easy to drive to and around
Binghamton.
City of Binghamton Comprehensive Plan Update DGEIS
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STREETS MAP
LEGEND
Figure 3.3-1
Streets Map
City of Binghamton
Comprehensive Plan Update
SEQR Draft Generic Environmental Impact Statement
Broome County, New York
County Coverage: Broome
Quad Coverage: Binghamton West; Binghamton East; and Castle Creek
Scale As Shown
Client Name: City of Binghamton
One of the primary challenges for Binghamton is maintaining a roadway network that
was built for a much larger population. The city owns and is responsible for
maintenance on approximately 160 centerline miles of roadway, approximately 15
bridges or large culverts, and four (4) pedestrian bridges. The New York State
Department of Transportation (NYSDOT) owns and maintains 26 bridges and Broome
County owns and maintains three (3) bridges. There are also 23 railroad bridges
within the city limits. Federal funding is critical to bridge rehabilitation as the city
does not have the capital funds to perform any bridge rehabilitation projects.
There are currently no designated truck routes in the city. This forces truck drivers to
map out their own routes, which leads to trucks on downtown streets and other roads
that are not necessarily suitable for truck activity.
Parking
Surface and structured parking covers over 22 percent of all of the developed land in
downtown which creates a noticeable footprint. There are four (4) structured parking
garages, one (1) underground parking garage, and a number of surface parking lots
ranging in size from a few spaces serving one land use to the 475-space surface lot
that serves the stadium. There are many blocks in downtown where more land is
comprised of parking than buildings.
The highest demand for parking during the day is in the area near the city and county
buildings where there is the most employment. The area is served by a mix of public
and private parking lots. Some of the larger surface lots (ballpark or area hotels) are
only used as guest parking for special events.
The public has expressed safety concerns relative to parking garages due to their
physical condition and the lack of security. All four (4) of the parking ramps are
noticeably deteriorating and are in bad to poor condition. The cost of parking at the
parking lots or garages is relatively affordable though more expensive than parking
on-street. On-street parking is metered on many streets downtown.
One of the recent changes to downtown was the installation of back-in angled
parking on Hawley and Court Streets. While back-in angled parking is much safer for
vehicles and bicyclists, special accommodations must be made for the loading and
unloading of those in wheel chairs using handicap shuttles or personal vehicles.
Bike and Pedestrian Accommodations
The grid network and urban density of Binghamton make it a very walkable city for
the most part. Downtown offers a unique pedestrian experience, one that is not
replicated anywhere in the region. It has smaller block lengths and the wide
sidewalks and mixture of wide and narrow streets make it easy and comfortable for
people to walk to their destinations. However, many intersections lack basic
pedestrian accommodations such as crosswalks, ADA ramps, and pedestrian
countdown timers.
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A number of streets in Binghamton, including Hawley Street and Court Street, have
on-street bike lanes that make it safer to bike within Binghamton and provide
connections to the area’s regional bicycle system. Many of the on-street lanes have
been installed as part of re-striping/re-surfacing projects where lanes are narrowed
or reduced to provide space for bicyclists. Consequently, there are a number of bike
lanes that suddenly appear and disappear which reduces the connectivity of the
overall network. The rivers are natural barriers to bicycle connectivity but a number
of bridges have bicycle facilities including bike lanes on the Clinton and Court/Main
Street bridges and the South Washington Street pedestrian bridge. "Share the Road"
signage has been installed throughout the city. Portions of the city are part of State
Bike Route 17 which is a signed, on-road bicycle route. There is a lack of bike
parking; however, which forces bicyclists to lock their bikes to other objects, which is
not desirable.
Public Transit & Binghamton University Off-Campus College Transit Bus
Like many cities of similar size, the majority of people taking transit do so because
they “have” to and not necessarily because they “want” to. BC Transit provides bus
service to and within the City of Binghamton as well as the other municipalities in the
county including Endicott and Vestal. Most neighborhoods have at least one bus
route that can be accessed fairly easily (Reference Figure 3.3-2). There are a total of
14 bus routes that typically radiate outward from downtown Binghamton (including
two designated "commuter" buses) and three regional shuttle routes.
To encourage multi-modal connections, bike racks are attached to the entire BC
transit bus fleet. The standard model rack fits two (2) bikes. Most BC Transit buses
are wheelchair-accessible. A minibus "lift" ride is available for those who need the
service such as the disabled and elderly.
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BUS TRANSIT MAP
LEGEND
Figure 3.3-2
Broome County Bus Transit Map
City of Binghamton
Comprehensive Plan Update
SEQR Draft Generic Environmental Impact Statement
Broome County, New York
County Coverage: Broome
Quad Coverage: Binghamton West; Binghamton East; and Castle Creek
Scale As Shown
Client Name: City of Binghamton
BU OCCT is a student driven, managed, and operated bus service (since 1971) that
transports students between campus and residences, retail hubs, and downtown
Binghamton. Bus route and stop locations are depicted on Figure 3.3-3. Passengers
must be Binghamton University students, faculty, or affiliates (a guest is allowed).
Riders scan identification cards to board buses. OCCT is a free service that runs at
convenient times for students during weeknights and weekends. The extended
weekend nighttime service is also good for safety as students can patronize bars and
restaurants late at night and avoid driving a car back to the BU campus.
Unfortunately, the Leroy southside route, which is the most direct route from the
Student Union to the Greater Binghamton Transportation Center, does not operate
weekday mornings or afternoons. This hinders it from being a reliable way to get to
and from campus.
Regional Transit Options
Regional bus service is provided by Greyhound, Adirondack Trailways, and Megabus.
The Bus Station is located in the downtown neighborhood at the corner of Chenango
and Henry Streets. The primary connection is to New York City, but additional routes
are provided to Albany, Buffalo, Syracuse, Rochester, Toronto, Scranton, and Ithaca.
There is currently no passenger rail service to Binghamton.
3.3.2 Potential Impacts
As identified in the Comprehensive Plan (see above and Chapter V.C) key
considerations relative to transportation include: improving trail and transit
connections, enhancing mobility within downtown, effectively addressing parking
issues, and identifying how to maintain existing infrastructure, and effectively scale
back to accommodate pedestrians and bicyclists. There are a number of
opportunities to improve the city’s transportation to reduce the cost of living in
Binghamton to attract new residents, and help encourage economic development
and livability.
The recommendations that comprise Blueprint Binghamton’s Mini-Plan on
Transportation [a plan for a city that walks, bikes, rides transit…and drives too] are
organized into four (4) goal areas, each titled by a key transportation goal:
Upgrade and maintain transportation infrastructure
Address parking and maintenance issues
Promote alternative modes of transportation
Improve the pedestrian experience on city streets
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OFF-CAMPUS COLLEGE TRANSPORT MAP
LEGEND
Figure 3.3-3
Off-Campus College Transport Map
City of Binghamton
Comprehensive Plan Update
SEQR Draft Generic Environmental Impact Statement
Broome County, New York
County Coverage: Broome
Quad Coverage: Binghamton West; Binghamton East; and Castle Creek
Scale As Shown
Client Name: City of Binghamton
Improving the safety and convenience of transit, walking, and biking are essential to
addressing the severe economic challenges faced by a large number of individuals
and families in Binghamton. Walking, biking, and transit also support healthier
lifestyles and a healthier environment by reducing carbon emissions and encouraging
physical activity.
In support of the above goals, the Comprehensive Plan proposes the following
recommendations:
Reduce city costs by removing excessive infrastructure where possible
Improve transportation connections between Binghamton University
and downtown.
Develop complete streets hierarchy for street design
Develop a crosswalk policy
Improve the public transportation experience
Develop a citywide bike network
Reclaim underutilized asphalt space on wide streets and intersections
Partner with Broome County and the Binghamton City School District
on increasing the number of students who walk to school.
Develop Citywide Roadway Infrastructure Plan
Work with private rail companies to improve rail infrastructure
Develop guidelines and standards to include green infrastructure in
street rehabilitation projects
Undertake a comprehensive downtown parking study
Develop a Parking Improvement District in downtown and utilize a
portion of revenue from parking for downtown improvements for
pedestrians and bicyclists
Introduce shared parking arrangements or residential permit parking in
neighborhoods with student housing zones
The above recommendations are intended to provide strategies to effectively manage
infrastructures, balance parking supply, and demand; and improve transit,
pedestrian, and bicycle accommodations.
Promoting alternative modes of transportation to reduce the number of motorists
would have a positive effect on local air quality. The Comprehensive Plan Update
highlights recommendations that would require the city to conduct further studies
related to excessive infrastructure, city-wide bike network and infrastructure plan,
parking and potential new programs such as a Parking Improvement District, and
options for parking in student housing zones. Concepts for eliminating streets, as
provided in the Comprehensive Plan Update, are depicted on Figure 3.3-4. If
implemented, some of the recommendations may have minor upfront fiscal impacts;
however, this does not constituted an impact under SEQR. In general, the actions in
these recommendations are related to policy or are administerial and, therefore,
would not likely result in adverse environmental impacts. As individual projects are
advanced, impacts will need to be evaluated.
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CICRULATION DIAGRAM
LEGEND
Figure 3.3-4
Proposed Circulation Interventions
City of Binghamton
Comprehensive Plan Update
SEQR Draft Generic Environmental Impact Statement
Broome County, New York
County Coverage: Broome
Quad Coverage: Binghamton West; Binghamton East; and Castle Creek
Scale As Shown
Client Name: City of Binghamton
3.3.3 Mitigation Measures
Since significant adverse impacts have not been identified in connection with the
transportation component of the Comprehensive Plan Update, mitigation measures
are not included. Specific measures may be warranted as individual transportation
projects are implemented to achieve the goals outlined in the plan.
3.4
INFRASTRUCTURE AND WATER RESOURCES
The Infrastructure Chapter or Blueprint Binghamton Mini-Plan on Infrastructure
recognizes the realities that Binghamton faces as a city trisected by rivers. In
addition to strategies that address energy, utilities, and operating costs in an era of
budget cuts; a portion of the plan provides strategies to address the volume and
quality of water flowing downstream which threaten Binghamton’s riverfront and lowlying properties during riverine flood events.
Stormwater regulations and
opportunities for smaller-scale interventions that mitigate flash flood events caused
by rainfall and the relationship between water and urban land use decisions in the
future are also discussed (Comprehensive Plan V.D).
3.4.1 Existing Conditions
Water Resources
Groundwater and Surface Waters
Groundwater Resources
The City of Binghamton is located above the Clinton Street-Ballpark Valley Aquifer
System of Broome and Tioga counties. It is the "sole source" of drinking water for
residents of Vestal, Johnson City, Endicott, Nichols, Waverly, and Owego, New York.
The City of Binghamton’s source of drinking water is from the Susquehanna River.
Sole source means that a feasible alternative drinking water source, or combination
of sources, which provides fifty percent or more of the drinking water to a designated
area does not exist. The aquifer is overlain by permeable unconsolidated glacial
deposits and recent sedimentation. As a result of highly permeable soils, the Clinton
Street-Ballpark Valley Aquifer System is highly susceptible to contamination through
its recharge zone from various sources including but not limited to chemical spills,
leachate from landfills, storm water runoff, highway deicers, faulty septic systems,
wastewater treatment systems, and waste disposal lagoons. To a lesser degree, the
aquifer is also susceptible to contamination from these and other sources through its
streamflow source zone (i.e., the Susquehanna and Chenango Rivers)2.
Contamination of the aquifer could pose a significant threat to public health since
ground water contamination can be difficult or impossible to reverse and the aquifer
is a “sole source.”
2
http://www.epa.gov/region2/water/aquifer/clinton/fr_clint.htm
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Surface Water Resources
Before modern day transportation, particularly during the period when the canal
system was operational, until it was replaced by the railroad, the Chenango and
Susquehanna Rivers were a commercial and economic boon for the City of
Binghamton. Today, aside from their inherent natural properties such as aquatic and
wildlife habitats and aesthetics, the rivers are mainly exploited for recreational
purposes including, but not limited to, fishing, hunting, canoeing and kayaking,
parkland, and a river walk and used by pedestrians and bicyclists and for other types
of non-motorized modes of travel. The Susquehanna River is also vital to the City of
Binghamton as the primary source of drinking water is the Susquehanna River.
Water is withdrawn and treated at the recently renovated Binghamton Johnson City
Treatment Plant.
Under the umbrella of the Clean Water Act, the City of Binghamton is designated as a
regulated small Municipal Separate Storm Sewer System (MS4) in accordance with
Phase II of the National Pollutant Discharge Elimination System (NPDES) stormwater
program. The objective of the NPDES stormwater management program is to reduce
the pollutant load in stormwater runoff being discharged into surface waters through
an urban area’s storm sewer system(s). Pollutants include oil and grease, pesticides
and fertilizers, sediment from construction sites, and various types of trash.
The City of Binghamton also has an approved Local Waterfront Revitalization
Program (LWRP). The objective of the LWRP, “…is to establish desirable water-based
uses for the City of Binghamton's waterways and adjacent lands, resulting in the
establishment of a ‘destination’ that serves the recreational, social and economic
needs of residents and visitors.” The LWRP reflects community consensus and
provides a clear direction for appropriate future development. In addition, state
permitting, funding, and direct actions must be consistent to the maximum extent
practicable with the approved LWRP3.
As much as the rivers benefit the city, the risk of flooding is an ever present hazard
that threatens life and property and can cause severe adverse economic effects.
Even though the city is protected by a system of levees and flood walls, they were
built based on historic flood events that occurred in 1935 and 1936. Recent flood
events were much more severe than the historic floods and the flood protection
system failed to contain the flood waters.
Although the valley plains adjacent to the Susquehanna and Chenango Rivers are
relatively flat, in most places they are much higher in elevation than the normal
channel elevations giving rise to steep banks. Additionally, in other places the rivers
edges are up against the slopes of hillsides or one of the many levees or flood walls
that have been constructed for flood protection. As a result, most but not all of the
100-year and 500-year flood zones within the floodplain are not broad and expansive
and do not correspond with the course of the river. Rather, they are mostly narrow in
3
Two Rivers, One Future: LWRP Program Report. http://www.binghamton-ny.gov/departments/planninghousing-community-development/planning/local-waterfront-revitalization-program
City of Binghamton Comprehensive Plan Update DGEIS
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breadth where flood waters enter the flood plain at relatively lower-lying areas within
the valley plains that lack or do not have adequate flood protection after which the
zones either extend narrowly or spread out (Reference Figure 3.4-1).
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EXISTING FLOODPLAIN
LEGEND
Figure 3.4-1
Existing Floodplain
City of Binghamton
Comprehensive Plan Update
SEQR Draft Generic Environmental Impact Statement
Broome County, New York
County Coverage: Broome
Quad Coverage: Binghamton West; Binghamton East; and Castle Creek
Scale As Shown
Client Name: City of Binghamton
As depicted on current Federal Emergency Management Agency (FEMA) maps, much
of the first ward, east side, and south side east neighborhoods of the city generally
fall within the FEMA mapped 500-year flood zone. The north shore of the
Susquehanna River and the east shore of the Chenango River in the downtown
neighborhood; the south shore of the Susquehanna River in the south side west
neighborhood; and the north shore in the greater west side neighborhood are also
within the flood zone.
However, after record setting flood events in 2006 and 2011, preliminary studies
have resulted in the remapping of flood boundaries that have resulted in replacing
much of the existing 500-year flood zones with 100-year flood zones (Reference
Figure 3.4-2). City wide preliminary Draft Federal Insurance Rate Maps (FIRM
)changes would shift approximately 2,122 parcels from the mapped 500-year flood
zone to the 100-year flood zone. Flood zone mapping for approximately 298 parcels
within the existing 100-year flood zone would remain the same under the proposed
preliminary DFIRM changes, while approximately 52 parcels currently in the 100-year
flood would no longer fall within the mapped 100-year or 500-year flood zones.
The main areas of the city that would be affected by the proposed preliminary DFIRM
changes are located on the east side, north side, south side (east & west), downtown,
greater west side, and first ward neighborhoods. An estimated 25 percent of the
land area in the city would be affected by these changes.
Wetlands
In general, except for the riverine wetland habitats associated with the Susquehanna
and Chenango Rivers, there are only a few small National Wetland Inventory (NWI)
wetland areas mapped within the City of Binghamton limits. There are not any Article
24 Freshwater Wetlands mapped within the limits of the City of Binghamton. Other
small, currently unmapped wetlands may be present within the less developed
portions of the city.
Infrastructure
The City of Binghamton, similar to other cities of comparable size, has a fair amount
of city-owned infrastructure. Existing water and sewer infrastructure within the city is
depicted on Figure 3.4-3. Tracking the age, condition, repairs, and replacement of
this infrastructure is critical to the efficient operation of the city. The Department of
Public Works oversees the city’s water, sewer, street lights, parks, and road
maintenance departments.
Water System
The city owns and operates a water treatment plant that treats water removed from
the Susquehanna River. The city’s secondary water source is a million gallons per
day well located off of Omsted Street. There are also interconnections with all the
surrounding towns and villages. The interconnections are primarily for selling water
to those municipalities. Currently, only the Town of Vestal and Town of Binghamton
purchase water from the city.
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FEMA PROPOSED FLOODPLAIN
LEGEND
Figure 3.4-2
Proposed FEMA Flood Plain
City of Binghamton
Comprehensive Plan Update
SEQR Draft Generic Environmental Impact Statement
Broome County, New York
County Coverage: Broome
Quad Coverage: Binghamton West; Binghamton East; and Castle Creek
Scale As Shown
Client Name: City of Binghamton
EXISTING INFRASTRUCTURE: Water & Sewer
LEGEND
Figure 3.4-1
Water & Sewer
City of Binghamton
Comprehensive Plan Update
SEQR Draft Generic Environmental Impact Statement
Broome County, New York
County Coverage: Broome
Quad Coverage: Binghamton West; Binghamton East; and Castle Creek
Scale As Shown
Client Name: City of Binghamton
The city has approximately 177 miles of water main in its transmission and
distribution system. The water system is very old and a majority of the water mains
are cast iron pipe, which is less durable and more susceptible to corrosion than
ductile iron pipe. The city water system model is outdated.
The city has a Supervisory Control and Data Acquisition (SCADA) system that controls
the water flow between the plant and the pump stations and tanks. This allows for
more efficient operation of the plant as the water demand is monitored in real-time.
The system also gives the city some indication of large water main breaks by
monitoring pump run times and water flows in a specific zone.
Currently the city does not have any wireless meters and all meters have to be read
in person. This is a labor intensive process but the cost of implementing a wireless
system (upwards of $5 million) has delayed any plans for implementing a wireless
system.
The city spends about $1 million each year on capital improvements of the water
system. They replace roughly a couple thousand feet of water main each year and
have replaced approximately 15 percent of the cast iron pipe within the city.
In 2011 the city installed solar panels on the water plant to reduce the energy costs
of the plant.
Sanitary Sewer
The city owns and maintains roughly 175 miles of sanitary sewer, five (5) miles of
which is combined with the storm sewer, 3647 manholes, 14 sanitary sewer pump
stations, and nine (9) combined sewer overflows. Portions of the city’s sewer carry
sewage from neighboring towns and villages to the Sewage Treatment Plant. The
city’s sewer system is very old and in need of continuous maintenance in order to
reduce infiltration and inflow (I&I) and combined sewers which lead to higher flow
rates during wet weather events. The city invests approximately $1 million each year
into sewer upgrades and improvements.
The city has eliminated approximately 60 percent of its combined sewers in an effort
to comply with the Clean Water Act. The remaining combined sewers result in sewage
discharge to the rivers through the permitted combined sewer overflows during heavy
rain events. The reduction of the number of combined sewers has also assisted the
Binghamton/Johnson City Sewage Treatment Plant (which the city co-owns with the
Village of Johnson City) to meet its effluent discharge goals during wet weather
events as set under NYSDEC Consent Order.
Additional capacity and new processes have been added for the treatment plant in
the past years to comply with the Consent Order. Currently, additional flow cannot be
added to the system without first removing non-sanitary flow unless Plant Board
approval is requested. When a combined sewer is separated, the city gets flow
credits for the amount of storm flow removed from the system. The city can then use
the credits to entice developers to build within the city where the credits exist
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because they can add the new sewer flow without any issues. All of the surrounding
areas that contribute flow to the plant are under the same flow restriction so this
gives the city an advantage in attracting new developments.
Storm Sewer
The city owns and maintains roughly 85 miles of storm sewer, 2,616 catchbasins,
and 2062 manholes. The city also owns and maintains 14 storm sewer pump
stations which pump the water from low lying areas either to a gravity sewer or to the
river itself. The storm sewer is very old and in need of continuous maintenance.
Stormwater runoff from the city storm sewer system empties into either the
Susquehanna or Chenango Rivers. During heavy rain events when the rivers are
already at high levels it can be difficult for the storm sewers to empty into the river,
thus causing flooding within the city.
Flood Control
The city is protected from flooding by approximately 7.2 miles of levees, floodwalls,
and channel improvements in and around the city. The system also encompasses
several reservoirs and dams on the Chenango and Susquehanna Rivers (Reference
Figure 3.4-3). The Binghamton flood protection system was built in response to two
(2) floods that devastated the City in 1935 and 1936. Construction of the flood
protection system took place between 1940 and 1952 and the floodwalls are
inspected and maintained by the NYSDEC. The floodwalls are old and rated as
minimally acceptable during a 2008 inspection. Several construction projects were
undertaken to repair deficiencies. The walls were overtopped in several locations
during the 2006 and 2011 floods but the infrastructure did not fail.
Updated FIRMs consider the walls inadequate because they do not meet current
design standards. As a result, larger areas of the city are proposed to be mapped in
the 100 and 500 year flood zones as discussed above, thus requiring business and
residents in those areas to obtain flood insurance. Those maps are currently in a
draft format and it is unknown when they will be finalized.
The 2006 and 2011 floods demonstrated that multiple factors are responsible for
flooding in the city. In some areas, primarily in the eastern and southern portions of
the city, the flooding is due to rising river waters. Flooding due to the river is one of
the most difficult challenges to address. Dredging and/or a higher floodwall are
extremely costly and will not address the issue due to the fact that river flooding is a
regional challenge. Besides rising river waters, other factors responsible for flooding
include failing pumps and/or flooded underground streams that are overwhelmed
with water due to outdated infrastructure and excessive water runoff from
surrounding hills. Portions of the first ward and the Brandywine BOA flooded due to a
combination of failed pumps and overwhelmed underground streams that took on far
too much rainwater from surrounding hills. These are challenges that can be
minimized through upgraded underground infrastructure as well as the
implementation of green infrastructure such as wetlands that can slow the water
from flooding the city’s storm sewers. Regardless of the solution, careful engineering
and investment is required to ensure that flood waters do not threaten existing
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neighborhoods or potential new businesses. A Brandywine BOA redevelopment plan,
for instance, will need to balance the need for creating market-ready, developable
industrial land with adequate space and infrastructure to manage rainwater.
Green Infrastructure
One area that can assist the city in reducing flooding and stormwater runoff is the
implementation of green infrastructure practices. Instead of upgrading pipes which
is costly and limits a city’s ability to make the most of their limited funds for
infrastructure maintenance, green infrastructure incorporates engineered
landscapes to capture water before they reach the storm sewer system. Research
has shown that green infrastructure practices such as rain gardens, swales, tree
trenches, and even wetlands (where space is available) are more cost efficient and
bring added benefits including a greater community awareness of stormwater
challenges and improved aesthetics that help attract new residents and businesses.
The NYSDEC implemented new State Pollution Discharge Elimination System
(SPDES) rules in 2010 requiring that all projects disturbing over an acre and
requiring a full Stormwater Pollution Prevention Plan (SWPPP) include green
infrastructure practices. In addition, the state has incorporated green infrastructure
practices into the NYS Stormwater Design Manual.
The manual provides
guidance on how to design and locate stormwater management practices to comply
with state performance standards. The city is exploring green infrastructure practices
and has built demonstration projects (Kennedy Park and Southside Commons); in
2011 the city also completed their own Urban Runoff Reduction Plan (UURP)
requirements for projects under one (1) acre of disturbance. The URRP requires
developers to utilize green infrastructure such as porous pavement, rain gardens,
and green roofs to minimize the runoff from their sites and reduce the runoff that
flows to the city’s storm sewer and eventually to the rivers. The URRP is part of the
planning review process. The city is committed to implementing green infrastructure
in its own capital projects and has also sought grant assistance to incentivize these
practices within private developments.
Power and Telecommunications
Power and telecommunications within the city limits are provided by regulated private
corporations. New York State Electric and Gas provides electricity and natural gas
service while Time Warner and Verizon provide high-speed internet service. Time
Warner, Verizon, ATT, and Choice One Communications provide telephone service.
The power and telecommunications infrastructure within the city is a mixture of
above-ground and below-ground transmission and distribution lines. Similar to the
city’s own infrastructure, most of the power and telecommunications infrastructure is
old. The utility owners do not have major upgrade plans; upgrades are made when
repairs or capacity changes are needed.
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3.4.2 Potential Impacts
Binghamton must be creative in addressing some of the very pressing infrastructure
and water issues facing the city. With aging infrastructure, threats of future flooding,
and a limited budget, a coordinated effort is needed to tackle these issues in an
environmentally and financially sustainable manner. In support of the above goals,
the Comprehensive Plan proposes the following recommendations/strategies:
Implement the city’s established priority projects in the county’s 2013
Multi-Jurisdictional Hazard Mitigation Plan
Help residents reduce the impact of flooding on their homes and
comply with new floodplain standards to reduce flood insurance
Proactively manage land in the floodplain to reduce blight and
implement flood mitigation measures
Enforce and enhance URRP requirements
Continue to separate combined sewers and explore underground
storage and flow controls in flood-prone areas
Develop public education and awareness campaign for stormwater
and sewer overflows to encourage individual action and responsibility
Incentivize low impact development practices
Invest in wireless meter system for all water uses allowing the city to
monitor where water is being used and correct areas of water loss
Update water model to assist in detecting areas of concern within the
system to target funding
Openly coordinate/communicate between departments and utilities on
any major projects to reduce redundancies
The adoption of the Comprehensive Plan Update would commit the city to the
implementation of strategies recommended to address city services, facilities, and
infrastructure. Specific recommendations for reducing water, energy, and overall
operating costs may warrant a feasibility study by the city to further assess the
suitability of measures. Additional studies would require city support and funds. In
general, the recommendations provided in the infrastructure component of the
Comprehensive Plan Update support reduced flooding, improved river water quality,
reduced use of resources, and a decrease in maintenance and operating costs which
would result in positive social and environmental impacts. Specific projects such as
implementation of priority projects identified in the Multi-Jurisdictional Hazard
Mitigation Plan will require further review and evaluation.
3.4.3 Mitigation Measures
Since no adverse impacts have been identified for the infrastructure component of
the comprehensive plan update, no mitigation is necessary.
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3.5
ENVIRONMENT, OPEN SPACE, AND RECREATION
The Environment & Open Space chapter or Blueprint Binghamton Mini-Plan on
Environment & Open Space (Comprehensive Plan, V.E) focuses on the city’s natural
landscapes – rivers, riparian edges, and park spaces as well as opportunities in daily
life for Binghamton’s citizens to contribute to a healthier city, region, and planet by
reducing waste output, increasing the urban forest and flora, and strengthening the
connection between people and the parks, playgrounds, rivers, and trails that
welcome healthy play so long as they remain clean and safe spaces themselves.
3.5.1 Existing Conditions
Land Resources
Topography and Elevation
Much of the land within the city’s boundaries is relatively flat and is located on the
valley plains adjacent to the Susquehanna and Chenango Rivers. The northwesterly,
northeasterly, and southerly city limits fall on hilltops and hillsides that flank the
valley plains. Elevations within the city limits range from approximately 810-feet
Above Mean Sea Level along the water’s edge of the Susquehanna River to
approximately 1,540-feet AMSL at the highest point which is found in Ely Park,
northwest of Mount Prospect.
Soils
The physical properties of soils are important information to consider when making
planning decisions involving new or existing development for they carry with them a
range of implications that affect the constructability, maintenance, or repair of
roadway and utility infrastructure including but not limited to erosion, run-off rates,
infiltration rates, compaction, slopes and embankments, and capability to support
roads and buildings.
According to the Natural Resources Conservation Service Web Soil Survey 18
different soil units have been mapped within the city limits4. Forty-one and a half
percent (41 ½) of the soil units within the city are mapped as cut and fill lands,
ranging in materials from gravelly (Map Unit Symbol: Cv) to loamy (Map Unit Symbol:
Cw) to silty (Map Unit Symbol: Cy). These soil map units occur within the valley plain
on the north side of the Susquehanna River but also occur on the south side, east of
the Chenango River. About 5.4 percent of the city is mapped as water.
Approximately 67.6 percent of the soil map units are well drained, 16.7 percent are
moderately well drained, 9.1 percent are somewhat poorly drained, and 1.1 percent
is poorly drained.
Threatened and Endangered Species
Congress passed the Endangered Species Act (ESA) in 1973 to protect and recover
species and their habitats in peril of extinction. The ESA prohibits, except under
4
http://websoilsurvey.nrcs.usda.gov/app/WebSoilSurvey.aspx
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federal permit, the unlawful take of federally-listed endangered and threatened
species and their habitats.
Endangered Species are determined by the NYSDEC to be in imminent danger of
extinction or extirpation in New York State or are federally listed as endangered.
Threatened Species are determined by the NYSDEC as likely to become endangered
within the foreseeable future in New York State, or are federally listed as threatened.
A report of rare or state-listed animals and plants documented for the City of
Binghamton was obtained from the New York Natural Heritage Program (NYNHP).
The NYNHP states that: “Depending on the nature of the project and the conditions
at the project site, further information from on-site surveys or other resources may be
required to fully assess impacts on biological resources.” Additionally, the report only
includes records from NYNHP databases and since comprehensive surveys have not
been conducted for all sites with documented records, the status of the presence or
absence of any rare or state-listed species or significant natural communities cannot
be confirmed by the NYNHP. The information obtained from NYNHP is not intended
to be substituted for on-site surveys.
Recent records of species documented in the City of Binghamton since 1997 include:
the state-listed endangered peregrine falcon (Falco peregrines); the state-listed
threatened brook floater (Alamidonta varicose); and the yellow lampmussel
(Lampsilis cariosa), an unlisted species of New York State.
Historical records of species last documented in the City of Binghamton before 1980
include: the state-listed special concern hellbender (Cryptobranchus alleganiensis);
the state-listed special concern pygmy snaketail (Ophiogomphus howei); and the
rapids clubtail (Gomphus quadricolor), an unlisted species of New York State. The
current status of the presence or absence of these species at the documented sites
is currently unknown. These species may still occur at the documented sites if
habitat suitable to their survival is present.
Parks & Open Space
Natural surroundings and man-made parks are the centerpieces of city
neighborhoods affording space for rest and relaxation, play, and recreation. Wealthy
residents of years past such as Erastus Ross and George F. Johnson were strategic
and generous in the creation of new park space and unique amenities that present
generations still enjoy at Ross Park and Recreation Park. Johnson gifted six (6)
carousels to the city’s park system which, per his instructions, still spin from
Memorial Day through Labor Day free of charge or for an admission of “one piece of
litter.” The city’s tradition of treasuring these common open spaces has continued
over time with City-sponsored grassroots campaigns such as the “Design Your Own
Park” program and the ongoing push for more waterfront trails and access.
The Binghamton Parks and Recreation Department maintains 33 separate parks
throughout the city (Reference Figure 3.5.4-1). The parks range from large formal
parks such as Recreation Park on the west side to smaller temporary green spaces
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atop reclaimed city-owned vacant land such as Green Man Green Space at the corner
of Court and State Streets.
Several of the city’s major parks including Ross Park, Recreation Park, Ely Park,
Otsiningo County Park, Confluence Park, and Cheri Lindsey Memorial Park draw
residents from across the city and throughout the larger region and are; therefore,
considered destination parks. Each park attracts different users based on the varied
amenities offered at the facility. Attractions include a zoo, children’s activities,
playgrounds, pool and athletic fields, picnic areas, bike paths, and golf.
Binghamton’s smaller parks are referred to as neighborhood parks and provide a
range of opportunities for passive and active recreation within the city’s
neighborhoods. Key community parks in Binghamton’s neighborhoods include:
Columbus Park, Webster Street Park, MacArthur Park, Fairview Park, and Veteran’s
Park.
Programs
The Department of Parks and Recreation also runs the city’s recreation programs,
which include baseball and softball for ages five and older, youth tennis, pee wee
football, soccer clinics, a youth wrestling club, adult basketball and volleyball, a
Summer Fun camp program for children ages three through 10, and two (2) senior
centers.
Through its pilot Design Your Own Park program, the Department of Parks and
Recreation also collaborated with community groups on a park/program hybrid that
resulted in three (3) new or revitalized community-driven park spaces: Sunflower
Park in the first ward, the Bark Park at Cheri A. Lindsey Memorial Park, and Walnut
Street Park on the west side, north of Main Street.
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OPEN SPACE & TRAILS
LEGEND
Figure 3.5.4-1
Open Space and Trails Map
City of Binghamton
Comprehensive Plan Update
SEQR Draft Generic Environmental Impact Statement
Broome County, New York
County Coverage: Broome
Quad Coverage: Binghamton West; Binghamton East; and Castle Creek
Scale As Shown
Client Name: City of Binghamton
Trails
Binghamton’s main trail is the Riverwalk along the Chenango River. The Riverwalk
currently runs from Cheri A. Lindsey Memorial Park on the north side south to
Confluence Park in downtown with the trail varying in character along its course. Near
the northern end it is a multi-use trail on the river embankment. As it works its way
south it meets Water Street and runs on an extended sidewalk path. The trail
continues this way until it reaches the Clinton Street Bridge where it adopts a more
structured form with signature places such as the Martin Luther King Jr. Park, the
Fair Store Plaza, and the stepped embankment just south of Court Street. The
Riverwalk then winds closer to the Chenango River along the backside of existing
buildings and finally terminates at the confluence of the two rivers.
Additional trails within Otsiningo and Ross Parks provide other opportunities for
walking, hiking, and biking. The feasibility of a riverbank trail network has been
preliminarily evaluated and presented in the Binghamton Metropolitan Greenway
Study: Trail Master Plans, Design Guidelines and Implementation Strategies for
Riverbank Trail Development (1999). Four (4) of the master plans reviewed in this
study cross through Binghamton. This study provides the basis for future trail
development in the area. Future expansions to the trail network may include:
The Riverwalk extension to connect Cheri A. Lindsey Memorial Park
with Otsiningo Park.
Vestal Parkway Trail to connect the Riverwalk and Washington Street
Bridge with MacArthur Park, and Binghamton University three miles to
the west.
Blueprint Binghamton identifies the possibility of another new trail segment,
extending east along the northern bank of the Susquehanna River from Confluence
Park to the Exchange Street Bridge, made possible by the proposed realignment of
363/North Shore Drive.
Tree Canopy
Lining its streets, providing shade in yards and parks, and blanketing the city’s
surrounding hills, Binghamton’s tree canopy comprises an important part of its
natural environment. Studies show the numerous benefits of urban tree canopies to
include cleaner air and water, happier residents, and increased property values.
The Department of Parks and Recreation maintains all trees and is responsible for
tree plantings and removals on city streets. The Urban Forest Management Plan
completed in 2010 provides a basic framework for improving urban forestry, and the
city sponsors multiple programs to help in that effort. In 2013, the city commenced
work with an outside consultant to undertake a sample inventory of trees and
ultimately develop recommendations on new tree selection, a tree maintenance
schedule, and an ongoing street and park tree survey to be implemented by the
Department of Parks and Recreation during the course of its maintenance work.
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The Shade Tree Commission is an advisory committee comprised of seven members
appointed by the Mayor and City Council. The Commission studies the problems and
needs of the city’s urban forest. They also help select the species of trees planted by
the Parks and Recreation Department each season. The Tree Donation Fund accepts
private donations to be used specifically for tree plantings and maintenance.
Residents can request new street trees through the Street Tree Planting Program; the
Department aims to plant at least 75 trees per year, though in some years that
number reaches 300. Program funding is supported by the Tree Donation Fund,
Community Development Block Grants, and city tax dollars.
The Citizen Pruner Program recruits and trains citizens interested in tree health with
the goal of developing volunteers able to supplement the tree maintenance work
undertaken by the Parks and Recreation Department. Program participants receive
training in proper tree maintenance in exchange for a commitment of at least three
(3) volunteer hours a month over the course of a season.
Because of the dramatic topography that surrounds the city, the forest that blankets
Binghamton’s surrounding hills is also a critical part of Binghamton’s tree canopy,
providing beauty, natural habitat, and a root system that stabilizes the areas steep
slopes. In these ecologically sensitive woodland areas construction is costly and
challenging. In some places there are winding roads that service low-density single
family homes on large properties. Streams that run down the mountains add to the
landscape but are at times the culprit of flash flooding and runoff during large
storms.
3.5.2 Potential Impacts
The Environment and Open Space chapter of Blueprint Binghamton seeks to
recognize and reinforce the importance of Binghamton’s beloved parks and natural
landscapes with the understanding that each citizen can take steps to lessen his or
her impact on the environment while also taking new steps to engage more directly
with the city’s trees and rivers, parks, and open spaces.
The recommendations that comprise Blueprint Binghamton’s Mini-Plan on
Environment & Open Space [a plan for preservation and play] are organized into four
(4) goal areas, each titled by a key environment and open space goal:
1.
2.
3.
4.
Reduce waste
Increase tree cover to improve air quality and the public realm
Improve connections between the city and its natural assets
Maintain parks and play space in every neighborhood to bring
residents together
In support of the above goals, the Comprehensive Plan proposes the following
recommendations/strategies:
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Increase household recycling through incentive programs
Add recycling containers to public trash receptacles in business
district, at public facilities, and at public events
Launch a City compost program
Adopt a construction and demolition recycling ordinance
Expand the tree inventory database, and add to the tree inventory with
size-appropriate species in under-planted areas
Continue to support efforts by Shade Tree Commission as a key
partner for Park and Recreation
Enlist the community in tree planting efforts through education
Improve existing riverwalk
Extend the Riverwalk trail north to Otsiningo Park and east/west along
both banks of the Susquehanna River
Reactivate the rivers with water-based recreation
Acquire easements along entire waterfront and require easements as
a condition for future waterfront development
Improve access, visibility, active recreation at targeted parks
Formalize and provide technical assistance to Friends of Parks groups
to maintain and program neighborhood parks
Expand community service maintenance program to supplement parks
and landscape maintenance
Continue to expand business partnerships for landscape and
maintenance in business districts.
The adoption of the Comprehensive Plan Update includes strategies to adopt
ordinances and programs to target composting and recycling. It also encourages
partnerships with community groups and local businesses to further support
beautification, active recreational spaces, and economic development. Proposed
strategies including trail extensions, easements along the waterfront, and expanded
maintenance programs are all aimed at protecting open space, recreational and
scenic resources. Therefore, no significant adverse impacts are identified. The
implementation of specific projects, such as trail extensions will have to be designed
to avoid existing resources such as wetlands and species habitat. Proper planning
and environmental review of site specific projects will be required as they are
developed.
3.5.3 Mitigation Measures
Since no adverse impacts have been identified for the natural resources component
of the comprehensive plan update, no mitigation is necessary. Evaluation of
mitigation measures to address endangered and threatened species concerns, water
quality and wetlands will need to be assessed for site specific projects.
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3.6
LAND USE AND ZONING
The Land Use and Zoning chapter or Blueprint Binghamton mini plan on land use and
zoning (Comprehensive Plan, V.F) includes a future land use map, which is a tool that
indicates where existing land use should be preserved and where property should be
positioned for redevelopment to accommodate a mix of new uses. The future land
use recommendations will inform the city’s Zoning Code as well as decisions by the
Planning Commission and Zoning Board regarding development proposals for
properties throughout Binghamton.
3.6.1 Existing Conditions
Land use in Binghamton varies from neighborhood to neighborhood. Some are
strictly residential while others host a broader mix of uses. Existing land use patterns
are briefly discussed below and depicted on Figure 3.6-1-1. For discussion purposes,
the city neighborhoods are discussed in terms of downtown, north side, east side,
south side east and south side west, West Side Neighborhood Project, greater west
side, first ward and Ely Park.
Downtown is the commercial heart of the city and has the greatest mix of land uses.
Downtown boasts the highest concentration of commercial buildings in Binghamton,
and that “commercial core” is bound roughly by Carroll Street to the east, both rivers,
and the freight rail line to the north. Parking comprises a surprising 22 percent of
Downtown’s developed area supporting area businesses office and denser
residential uses. East of Carroll Street, the fringe of downtown is home to a mix of
residential uses and some smaller commercial spaces along Court and Hawley
Streets. Downtown also contains the majority of the city’s cultural institutions, as
well as various city, county, and state governmental offices. Park space can be found
at Columbus Park and Confluence Park, as well as along the Riverwalk that travels
along the eastern bank of the Chenango River.
The north side hosts large infrastructure routes (highways and rail lines), which
fragment the neighborhood and create distinctly different land use areas. The area
north of Bevier Street and east of the Brandywine Highway is home to some large
industrial uses along the base of the hills and in close proximity to a pocket of singlefamily residential along Travis Avenue. North of I-86 and west of the Brandywine
Highway, the north side is almost entirely single-family residential with some
commercial use along Chenango Street. South of I-86, Chenango Street acts as a
dividing line with the area east of Chenango comprised of a mix of single-family
residential and large multi-family developments as well as a degree of vacancy rarely
seen elsewhere in the city. West of Chenango Street, the north side is defined by the
large-scale strip malls and auto-oriented commercial along the Chenango and State
Streets. There are also some industrial and institutional uses west of State Street
along the river. Cheri Lindsay Park, tucked behind Binghamton Plaza, is the only true
park space in the neighborhood.
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The east side consists of four (4) distinct areas: industrial uses along the Brandywine
Highway and freight corridor, commercial corridors along Court Street and Robinson
Street, medical uses atop the hill on the far eastern side of the neighborhood at the
Greater Binghamton Health Center, and single-family residential populating the
remaining portions of the neighborhood.
The south side is divided into two (2) halves, east and west. South side east is
mostly residential with commercial spaces along Conklin Avenue and industrial sites
north of Conklin and west of Tompkins. The residential community populates the
land from the river into the south hills until the steep topography no longer enables
development. Webster Street Park is the main green space with additional play fields
associated with Benjamin Franklin Elementary School on Conklin Avenue.
South side west is also mostly residential with a small but vibrant commercial core
around Vestal Avenue, South Washington Street, and Pennsylvania Avenue. United
Health Services (UHS) General Hospital between Park and Mitchell Streets has a
strong presence in the neighborhood as does the MacArthur School (soon to be
rebuilt) and Ross Park home to the Binghamton Zoo and Southern Tier Discovery
Center, which attracts residents both local and from the broader region.
The West Side Neighborhood Project target area corresponds to the “Near West
Side” and spans from Front Street to Chestnut Street and the railroad south to the
river. The near west side hosts a mix of residential, institutional, retail, and office
uses and its residential fabric host both single-family homes as well as a sizable
student rental population. Front Street possesses an interesting mix of traditional
commercial properties as well as offices in converted residential buildings. Main
Street is almost entirely commercial (except for the large Binghamton High School
campus) and divides this area in two. The residential blocks wedged between Main
Street and north to the rail line have faced considerable difficulties with respect to
blight and crime and is the active focus of the Safe Streets Community Organization.
The greater west side, west of Chestnut Street, is primarily a single-family residential
neighborhood with the historic Abel Bennett Tract spanning from Chestnut Street to
Beethoven Street and the Far West Side beyond that. Where the near west side
meets the greater west side tensions exist with respect to the encroachment of
student rental housing into traditionally owner-occupied family-oriented blocks. Main
Street serves as the lone commercial corridor with few other commercial options.
Seton Catholic High, Lourdes Hospital, and West Middle School all have a strong
institutional presence in the neighborhood. Recreation Park draws from the city’s
broader population with it playing fields, carousel, and large green space being
significant attractions.
In the first ward, commercial uses follow a linear path along Clinton Street and up
Front Street with industrial uses clustering along the freight line. The remaining
neighborhood is overwhelmingly residential. Spring Forest Cemetery comprises a
significant portion of land and is a defining feature. The area immediately
surrounding the cemetery to the west is defined as the Charles Street Industrial Park,
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partially occupied with large tracts of cleared/vacant land ready for new
development. Veterans Memorial Park is the main open space in the first ward and
contains playing fields, a pool, and playground.
Topography plays a large role in shaping the land use in Ely Park. The vast majority
of the neighborhood is devoted to the large Ely Park and publicly-owned Ely Park Golf
Course. Large single-family homes and tracts of woodland areas line the few winding
mountain roads. Near the outskirts of the city is Legacy Bay, which hosts a number
of condo and multi-family residential units.
Current Zoning
There are 13 classifications within the current Binghamton Zoning Code, which was
revised following the completion of the 2003 Comprehensive Plan and adopted in
2006. The current zoning code has three (3) residential categories, six (6)
commercial categories, three (3) industrial categories, and one (1) overlay district.
Figure 3.6.1-1 depicts the current zoning for the city. A description of each
classification as paraphrased from the Binghamton Zoning Code definitions is
provided in Chapter V.F of the Comprehensive Plan Update.
3.6.2 Potential Impacts
The proposed future land use seeks to reinforce areas of stability within the city and
adjust allowable land uses in underperforming areas to make room for development
that meets emerging or demonstrated market potential while balancing development
with the need for environmental sensitivity in the city’s flood-prone zones.
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EXISTING LAND USE
LEGEND
Figure 3.6.1-1
Land Use Map
City of Binghamton
Comprehensive Plan Update
SEQR Draft Generic Environmental Impact Statement
Broome County, New York
County Coverage: Broome
Quad Coverage: Binghamton West; Binghamton East; and Castle Creek
Scale As Shown
Client Name: City of Binghamton
ZONING
LEGEND
Figure 3.6.1-2
Zoning Map
City of Binghamton
Comprehensive Plan Update
SEQR Draft Generic Environmental Impact Statement
Broome County, New York
County Coverage: Broome
Quad Coverage: Binghamton West; Binghamton East; and Castle Creek
Scale As Shown
Client Name: City of Binghamton
The recommendations that comprise Blueprint Binghamton’s Mini-Plan on Land Use
& Zoning [a plan for the land] are organized into five (5) goal areas, each titled by a
key land use and zoning goal:
Update maps, codes, and procedures
Allow greater housing choice and protect the livability of Binghamton’s
neighborhoods
Encourage new commercial uses downtown and along traditional
commercial corridors
Expand opportunities for new industrial development
Protect Binghamton’s historic character and encourage design
excellence
In support of the above goals, the Comprehensive Plan proposes the following
recommendations:
Update the Land Use Map
Update the zoning code to ensure that appropriate zoning supports the
future Land Use Map
Incorporate a Special Purpose classification for key sites
Phase out pyramidal zoning
Convert the Urban Village District Overlay into a Zoning Category and
expand its application
Create a new, low density zoning classification for environmentally
sensitive areas
Allow the development of parking facilities in the Urban Village District
subject to strict design guidelines
Enable higher density housing along Main Street
Change mix of uses permitted within the Urban Business Park (UBP)
zoning classification
Institute parking maximums or lower parking minimums for Downtown
development
Lessen off-street parking requirements for commercial redevelopment
along traditional commercial corridors
Update the sign ordinance
Identify and code an Industrial Preservation Area within the
Brandywine industrial Corridor
Buffer industrial areas from residential communities
Re-zone to allow small-scale production and a mix of uses in targeted
areas
Adopt a civic design review process for large projects
Develop reasonable landscape requirements for all zones
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Strategies included in the Comprehensive Plan include updates to the Land Use Map
and corresponding zoning changes required to support the future Land Use, as well
as changes to permitted uses within certain districts and the phase-out of pyramidal
zoning. The proposed land use changes are depicted on Figure 3.6-1-3 and focus on
properties that are not being used to their current potential or the current use is no
longer ideal due to changing factors. Proposed changes to the land use map will not
translate to immediate development changes; the recommended changes should
guide land use decisions and zoning code. Since the city has not committed to
zoning changes, this DGEIS cannot adequately examine the possible effects of
rezoning. Therefore, proper planning studies and environmental review must be
conducted if and when the city has proposed amendments that add or change
requirements or standards.
Other recommendations such as buffering industrial and residential areas and
developing landscape requirements for all land use zones promote improved
aesthetics and community character. Strategies aimed at reducing parking
requirements would reduce impervious surface and further support the intent to
create a more walkable city.
No adverse impacts have been identified for the land use and zoning component of
the Comprehensive Plan Update. However, proposed strategies that may lead to
future rezoning may have to be evaluated in more detail.
3.6.3 Mitigation Measures
Since no significant adverse impacts are anticipated with regard to the Land Use
component of the Comprehensive Plan Update, mitigation measures are not
necessary.
3.7
HISTORIC, CULTURAL, AND VISUAL RESOURCES
Binghamton is fortunate to have maintained a number of historic properties. These
buildings are an important part of the city’s urban fabric and are what sets the city
apart from newer surrounding communities.
3.7.1 Existing Conditions
The city contains four (4) National Register Historic Districts, three (3) of which (the
Court Street, the State and Henry Street, and the Rail Terminal Districts) are also
designated as Local Historic Districts. Additionally, the city contains numerous Local
Landmarks and properties listed on the National Register. Figure 3.7-1 presents an
overview of historic district and property locations within the city. The city remains
committed to preserving the physical and cultural resources within the City of
Binghamton.
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PROPOSED LAND USE
LEGEND
Figure 3.6.1-3
Proposed Land Use Map
City of Binghamton
Comprehensive Plan Update
SEQR Draft Generic Environmental Impact Statement
Broome County, New York
County Coverage: Broome
Quad Coverage: Binghamton West; Binghamton East; and Castle Creek
Scale As Shown
Client Name: City of Binghamton
Ê
Johnson City Historic District
State and Henry Streets Historic District
Rail Terminal Historic District
Binghamton Historic District
Court Street Historic District
Abel Bennett Tract Historic District
Rivercrest Historic District
Legend
Historic Places
Figure 3.7-1
Historic Resources
Local Historic Landmarks
Local and State Historic Districts
National Register Districts
City of Binghamton Limits
County Coverage: Broome
City of Binghamton
Comprehensive Plan Update
SEQR Draft Generic Environmental Impact Statement
Broome County, New York
Quad Coverage: Binghamton West; Binghamton East; and Castle Creek
Path: E:\2012\12224 Bing Comp Plan\Graphics\GIS\12224.00_Historic_resources.mxd
0
500 1,000
2,000
3,000
Feet
1 inch = 3,600 feet
1:43,200
Client Name: City of Binghamton
The National Register of Historic Places Program is administered by the National Park
Service. “The National Register of Historic Places is the official list of the Nation's
historic places worthy of preservation. Authorized by the National Historic
Preservation Act of 1966, the National Park Service's National Register of Historic
Places is part of a national program to coordinate and support public and private
efforts to identify, evaluate, and protect America's historic and archeological
resources.”
Cultural
The City of Binghamton is part of the Susquehanna Heritage Area. Heritage Area
Districts differ from Historic Districts in that they incorporate natural, cultural,
historic, and recreation areas instead of simply the built environment. Antique
carousels, factories, ethnic neighborhoods, and gold-domed churches tell the story of
the thousands of immigrants drawn to the industries of Binghamton, Endicott, and
Johnson City in the Susquehanna's "Valley of Opportunity"5.
Several cultural opportunities exist in the city. The main opportunities include: the
Broome County Public Library, the Forum Theatre, Roberson Museum and Science
Center, Veterans Memorial Arena, and the Visitor Center. The city also offers cultural
programs including Broome County Arts Council, New York State Heritage Trails, and
the aforementioned Susquehanna Heritage Area.
The city’s Commission on Architecture and Urban Design (CAUD) oversees the
establishment and preservation of local historic landmarks and historic districts.
Under city ordinance, the CAUD has the authority to review any structural or physical
alterations to the exteriors of all designated historic landmarks and properties within
the locally designated historic districts. CAUD review is completed with the issuance
of a certificate of “Approval,” “Approval with Conditions,” or “Denial.”
Visual
Not only is it the reason for its settlement but the confluence of the Chenango and
Susquehanna Rivers, set against the surrounding hills, is a primary focal point of the
City of Binghamton. Hilltop residences and businesses are afforded scenic views of
at least one of the two rivers, or in some cases both. From the ground level, there
are many opportunities to enjoy the natural beauty of each river as a motorist or
pedestrian since the Susquehanna River flows east to west through the city more or
less dividing it north to south and the Chenango River flows north to south dividing it
nearly in half east to west until it confluence with the Susquehanna.
3.7.2 Potential Impacts
Recommendations included in Chapter V.B (Housing) of the Comprehensive Plan,
encourage historic preservation to maintain neighborhood character. Property
owners throughout the city and within the historic districts should be encouraged to
5
http://www.binghamton-ny.gov/departments/planning-housing-community-development/historicpreservation/historic-preservation
City of Binghamton Comprehensive Plan Update DGEIS
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rehabilitate historic properties so that they can contribute to the character of the
neighborhood. Recommendations in Land Use and Zoning chapter (V.F) also identify
the importance of preserving the past while also fostering a renewed identity for
future generations with quality new construction.
With the exception of the mini plan on Infrastructure, each component of the city
Comprehensive Plan includes recommendations/strategies that support the historic,
cultural and/or visual character of the city. Key related strategies are summarized
below:
Adopt a civic design review process and design guidelines for large
projects
Encourage historic preservation and reuse to provide unique, attractive
housing options
Create a volunteer Public Art Commission to foster local arts
Encourage visible and large-scale public art
Participate in local and regional efforts to boost tourism and heritage
tourism
Develop reasonable landscape requirement for all zones
Make the bridges distinctive through lighting and highlighting
architectural detail
Enlist the community in tree planting efforts through education
Improve existing Riverwalk
Extend the Riverwalk Trail
Reactivate the rivers with water-based recreation
Improve access, visibility, and active recreation and targeted parks
Expand community service maintenance program to supplement parks
and landscape maintenance
Create a new, low density zoning classification for environmentally
sensitive areas
Buffer industrial areas from residential communities
Develop reasonable landscape requirements for all zones
The plan indicates that large scale projects of a certain size that will have a
significant presence in the city should be subject to a more intensive vetting process.
Projects that alter the exteriors of local landmark properties and buildings in locally
designated historic districts are reviewed by the Commission on Architecture and
Urban Design; however, a comparable civic design review does not exist for large new
construction projects which could affect the character. Implementation of a review
process could essentially simplify and expedite the process for developers and the
Planning Commission.
The historic, cultural, and visual resource strategies included in the Comprehensive
Plan Update include measures that are protective of and recommend improvements
that would have a positive effect on historic, cultural, and visual resources.
Therefore, no significant impacts have been identified.
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3.7.3 Mitigation Measures
Since no adverse impacts have been identified for historic, cultural, and visual
resource components of the Comprehensive Plan Update, no mitigation is necessary.
Site specific projects involving renovation of existing historic structures may require
mitigation measures to off-set potential impacts to the historic elements of the
structure as required by CAUD and the New York State Office of Parks Recreation and
Historic Preservation.
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4.0
OTHER ENVIRONMENTAL IMPACTS
4.1
Unavoidable Adverse Environmental Impacts
Because the Proposed Action is the adoption of a comprehensive plan, it will not
directly result in any direct unavoidable adverse environmental impacts.
4.2
Irreversible and Irretrievable Commitment of Resources
The proposed adoption of the Comprehensive Plan, in and of itself, would not result
in any physical changes or improvements to the city and would; therefore, not result
in an irreversible and irretrievable commitment of resources.
Irreversible and irretrievable commitments of resources typically include commitment
of land resources, manpower for construction, building materials, and energy
resources. Although the Comprehensive Plan Update proposes strategies that target
land for certain types of uses, the proposed uses have been suggested based on
protection of environmentally sensitive areas and to improve community character.
Individual site-specific environmental reviews will be required for proposed
development. Irreversible and irretrievable commitments of resources can be
quantified at that time.
4.3
Growth-Inducing, Cumulative, and Secondary Impacts
The proposed action is not expected to induce a significant change in overall growth.
The plan provides a vision for how growth and development can occur in a positive
manner that yields long term benefits for the city. Proposed improvements are
expected to increase the city’s attractiveness as a place in which to live and do
business in. Thus, in a sense, the implementation of the plan will indirectly induce
positive economic growth by attracting new residential, commercial, and industrial
redevelopment in vacant, underutilized, or better suited sites including Brownfield
Opportunity Areas (BOAs). Since anticipated growth in the area is not expected to be
significant, induced development is expected to occur gradually as transition occurs,
thereby further reducing the overall effect of potential impacts associated with
growth.
4.4
Effects on the Use and Consumption of Energy
The proposed adoption of the plan, in and of itself, is not anticipated to result in a
significant effect on energy resources. Strategies set forth in the plan are geared
toward transit and pedestrian-oriented design. If walking, biking, and busing
ridership increase, a decrease in automobile travel would be anticipated thus
resulting in decreased energy usage. If new businesses that are developed within
the city draw more people for work and play from the surrounding area, traffic into
the city would potentially increase. However, normal growth will occur without the
plan and implementation of the plan does not directly result in growth. Additionally,
the plan encourages growth in the city that incorporates green infrastructure
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practices and resource management measures within city departments that would
lessen the use of non-renewable energy sources. Although the Comprehensive Plan
includes strategies to encourage growth in the city, the anticipated rate and type of
growth is not anticipated to significantly impact energy resources.
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5.0
ANALYSIS OF ALTERNATIVES
Pursuant to Section 617.9 of New York State Environmental Conservation Law, SEQR
requires the examination of alternatives to the Proposed Action as part of the
environmental review process. The planning process conducted to support the
development of the plan, and the plan itself, essentially constitutes an evaluation of
alternatives. Three (3) alternatives have been evaluated for this project: Adoption of
the Comprehensive Plan Update, Adoption of the Comprehensive Plan Update and
Form Based Code for the Main Street Court Street Corridor, and the No Action
Alternative.
5.1
Alternative: Comprehensive Plan Update with Adoption of Form-Based Code
for Main Street Court Street Corridor
This Alternative would include all components of the Comprehensive Plan Update
discussed herein but with the adoption of a FBC for the Main Street/Court Street
Corridor (Reference Figure 5-1). The FBC is included as an Appendix to the
Comprehensive Plan Update. As extracted from a New York Zoning Law and Practice
Report, a form-based code is “a land development regulatory tool that places primary
emphasis on the physical form of the build environment with the end goal of
producing a specific type of place” rather than having the major focus on building
use.
The intent of the Main Street Court Street FBC is to preserve and enhance the variety
in character that currently exists along the corridor, while also ensuring a higher
quality of development for new construction and opportunities for additional housing
and housing types. The FBC also incorporates measures for traffic calming, improved
vehicle circulation and enhanced bicycle and pedestrian accommodations. The code
itself is intended to streamline the development process by providing a more detailed
self-explanatory set of building, accessory, and landscape requirements. Sustainable
development practices including mixed use development, walkability, less stringent
parking requirements and stormwater management measures are also incorporated
into the code.
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LEGEND
Figure 5-1
Form Based Code for Main Street/Court Street Corridor
City of Binghamton
Comprehensive Plan Update
SEQR Draft Generic Environmental Impact Statement
Broome County, New York
County Coverage: Broome
Quad Coverage: Binghamton West; Binghamton East; and Castle Creek
Scale As Shown
Client Name: City of Binghamton
Similar to the Comprehensive Plan Update, the FBC has also been developed with
significant public input.
The majority of the Main Street/Court Street Corridor is currently zoned C-1, Service
Commercial, which is a mix of commercial and light industrial. The downtown section
is currently split between C-2, Downtown Business District and C-1 Service
Commercial. A small portion of the corridor, located near the Brandywine is zoned I-3
Heavy Industrial. The remaining portion of the Court Street corridor, east of the
Industrial District is zoned C-1, similar to the Main Street corridor west of downtown.
The FBC proposes four (4) zoning districts within the corridor and provides illustrative
and descriptive provisions regarding building type, form, placement, and design as
wells as conventional zoning elements including height, setback, site use, etc. A
purpose, allowed building types, and site placement and building form provisions are
provided for each of the four distinct districts (Reference the FBC Appendix to the
Comprehensive Plan Update).
Main Street (MS) – This district is proposed for the majority of the Main Street
Corridor west of downtown and the Chenango River and would replace the existing C1 zoning (Reference Figure 5-1). A small MS segment is also proposed east of the
river between the Downtown Transition and the Industrial Mixed Use zone. The intent
is to create a more walkable, pedestrian-oriented, mixed use corridor allowing a
variety of commercial and residential uses. New buildings would be located closer to
the sidewalk while residential structures would be set back slightly further from the
street. The code prohibits parking between the building and the street and limits
building height to four (4) stories.
Downtown Transition (DT) – A Downtown Transition District is proposed to replace a
small portion of the existing C-2 zoning along Main Street from Chapin Street to the
Chenango River as well as a small portion east of the Chenango River (Reference
Figure 5-1). The intent is to preserve and enhance the pedestrian-oriented character,
while allowing a variety of commercial uses, with residential uses allowed behind
non-residential uses and on upper floors. With this zoning, the majority of buildings
are pulled up to the sidewalk and building height is limited to five (5) stories. Off
street parking is allowed to the rear of the buildings.
Industrial Mixed Use (IX) – This district is proposed to replace the existing Heavy
Industrial (I-3) area along Court Street in the vicinity of the Brandywine (Reference
Figure 5-1). The intent is to accommodate existing industrial activity but allow for
more residential, live-work, and artisan opportunities. No completely residential
buildings are allowed in this zone. Parking can be located to the side or rear of the
building and building height is limited to four (4) stories.
Commercial Corridor (CC) – This district is proposed to replace the existing C-1
Service Commercial zoning along Court Street at the eastern end of the corridor
(Reference Figure 5-1). The intent is to accommodate the existing auto-oriented
character but allow for modest pedestrian-scaled improvements such as landscaping
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and screening. A variety of commercial and residential uses would be allowed. In
contrast to the other proposed districts, parking between the building and the street
is allowed. Building height cannot exceed three (3) stories.
In general, the FBC would not significantly change the type of businesses and
industry allowed within the proposed districts relative to existing conditions.
However, the FBC would result in a standardized form for new construction that
incorporates consistent building set-backs, plantings, pedestrian access, building
elements and parking. Impacts associated with the FBC are generally related to
aesthetics, community character, economic development, transportation, and
stormwater. No additional environmental impacts are anticipated.
Aesthetics – Extensive planning and community involvement was incorporated into
the preparation of the FBC. The FBC provides illustrative and descriptive provisions
regarding building type, form, and placement design as well as conventional zoning
elements. The intent is that by guiding the physical form of the buildings and other
elements and addressing the relationship between the building facades and the
public environment, the city will experience high quality, predictable results that
support the desired vision for the corridor. Over time, as new projects are
progressed, the FBC will have a positive impact on the appearance of the corridor.
Community Character- Overall, the FBC provides a framework for creating an
improved visual environment and thus a positive effect relative to community
character. The FBC implements the community’s vision as identified during the
planning and public participation phase.
Economic Development – Purpose, building type, placement, and building form
provisions are provided for each of the four (4) districts proposed under the FBC.
Since the physical form of the proposed building and site are provided in detail,
expectations would be clearer and the intent is that the site plan review process
would be simplified for developers and the city. Requirements for building facades,
changes in parking and streetscape work (inclusive of sidewalks and landscaping)
needed to develop sites from their existing state to comply with the FBC, may place
added costs on the private developer. However, as the transition to a corridor driven
by a FBC takes place, the corridor would be more aesthetically pleasing and thus
more inviting. As more people frequent the corridor and the demand for goods and
services increases, the potential for new development would also increase. The
timeframe and rate at which growth will occur is influenced by a number of factors
and; therefore, difficult to predict. However, the FBC includes measures that will
ultimately result in an overall decrease in development densities along the corridor
compared to full buildout conditions that could occur under existing zoning.
Transportation- It is anticipated that the adoption of the FBC will have a positive
effect on transportation within the corridor. Since the FBC provides enhancements
for non-motorized travel, improves walkability and connectivity within each district
and to adjacent districts within the corridor there would ultimately be a positive effect
on transportation systems. It is reasonable to ascertain that full buildout traffic
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projections would be less with the FBC due to a reduction in overall development
density and an assumption that building uses are consistent under existing
conditions and with the proposed FBC; however, there are other factors that can
affect traffic as well. Since the plan itself will not induce growth, adverse
transportation impacts are not anticipated for the adoption of the FBC. Site
development projects may warrant traffic studies.
Natural Resources – Implementation of the FBC will not result in adverse impacts to
natural resources. Landscape and streetscape requirements for each district will
actually result in the addition of more trees within the corridor over time. No existing
parks or areas of open space would be adversely impacted by the FBC.
Storm water- Land development activities and new impervious surfaces affect
surface drainage and flow. Storm water flows from rooftops, over paved areas and
bare soil, and through sloped lawns while picking up a variety of materials on its way.
This runoff has the potential to adversely affect water quality. However, pursuant to
Section 402 of the Clean Water Act (“CWA”), stormwater discharges from certain
construction activities (including discharges through a municipal separate storm
sewer system) are unlawful unless they are authorized by a New York State Pollutant
Discharge Elimination System (SPDES) permit in accordance with the Environmental
Conservation Law (“ECL”). An owner or operator of a construction activity that meets
the disturbance thresholds must obtain permit coverage through either an individual
SPDES permit which address the stormwater discharges or obtain coverage under
the SPDES General Permit for Storm water Discharges from Construction. A Storm
water Pollution Prevention Plan (SWPPP) that includes an Erosion and Sediment
Control Plan and addresses water quality and quantity as appropriate is required to
obtain the permit. Furthermore, the City of Binghamton is a MS4. Therefore,
SWPPPs prepared for development projects within the city limits required review and
approval by the city as well.
Since a comprehensive set of regulations guide stormwater management
requirements for development projects, no adverse impact on drainage flow or
patterns, or surface water runoff is anticipated as a result of the FBC. Drainage
within the Main Street/Court Street Corridor is handled entirely by a closed drainage
system.
5.2
No Action
For purposes of SEQR, the alternative to adoption of the proposed Comprehensive
Plan or Comprehensive Plan with the FBC is the No Action Alternative which
represents the option of not adopting the plan. Under the No-Action Alternative
existing land use, transportation, housing, and infrastructure policies and practices at
the city level would remain in place. Some of the recommendations included in this
plan, assuming they are allowable under current land use and zoning regulations,
might still be progressed since they are included in other studies which have been
conducted independently of this plan update. One of the major effects of the No
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Action Alternative would be the inability to effectively utilize the Village Overlay Zone
as a tool to guide student rental housing.
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6.0
SUBSEQUENT SEQR ACTIONS
The purpose of this DGEIS, as described previously, is to examine the potential
impacts and effects of the adoption of the Comprehensive Plan Update (Proposed
Action) and alternatives including the Adoption of the Comprehensive Plan Update
with the Main Street/Court Street Form-Based Code and the No-Action Alternative.
The Generic EIS allows a broader, more general review of strategies and
recommendations that affect an entire community and do not involve site specific
land development and disturbance. Similar to the Comprehensive Plan Update, the
proposed Form-Based Code for the Main Street Corridor will not directly result in
development and disturbance. As such, the generic environmental review is also
appropriate for evaluating this option.
6.1
Recommendations Proposed by the Comprehensive Plan and Form-Based
Code Potentially Requiring Future Site-Specific SEQR Review
The adoption of the Comprehensive Plan Update and the Form Based Code will
change the framework and specific details that apply to individual development
projects compared to existing regulations and objectives presented in the current
plan. However, after the adoption of the Comprehensive Plan Update with or without
the Form-Based Code, site specific land development projects will have to comply
with any existing unchanged laws and amendments. Individual site development
projects will still require SEQR reviews in accordance with 6 NYCRR Part 617.
Future actions that will occur as recommendations identified in the Comprehensive
Plan Update are implemented may be subject to review under SEQR. For example,
amendments to the existing city zoning code needed to eliminate discrepancies with
the Form-Based Code and implementation of Industrial Preservation Areas may
require further review. Additionally, proposals for re-development of Brownfield
Opportunity Areas (BOAs), senior housing developments, and trail extensions would
also warrant SEQR review. Other types of projects including recommendations
identified in the Infrastructure mini plan may warrant feasibility studies to examine
the suitability of various technologies, cost savings, and potential impacts.
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APPENDIX A
NEW YORK STATE DEPARTMENT OF ENVIRONMENTAL CONSERVATION
Division of Fish, Wildlife & Marine Resources
New York Natural Heritage Program
625 Broadway, 5th Floor, Albany, New York 12233-4757
Phone: (518) 402-8935 • Fax: (518) 402-8925
Website: www.dec.ny.gov
Joe Martens
Commissioner
March 13, 2014
Kelly Saladis
Shumaker Consulting Engineering & Land Surveying, D.P.C.
143 Court Street
Binghamton, NY 13901
Dear Kelly Saladis:
In response to your recent request, we have reviewed the New York Natural Heritage
Program database with respect to the Comprehensive Plan Update for the City of Binghamton,
Broome County.
Enclosed is a report of rare or state-listed animals and plants which our databases have
documented from the City of Binghamton.
For most sites, comprehensive field surveys have not been conducted; the enclosed report
only includes records from our databases. We cannot provide a definitive statement as to the
presence or absence of all rare or state-listed species or significant natural communities.
Depending on the nature of the project and the conditions at the project site, further information
from on-site surveys or other resources may be required to fully assess impacts on biological
resources.
Sincerely,
264
Nicholas Conrad
Information Resource Coordinator
New York Natural Heritage Program
NYS DEC
625 Broadway, Albany, NY 12233-4757
(518) 402-8944 nathert@gw.dec.state.ny.us
New York Natural Heritage Program
Report on Rare Plants, Rare Animals, and Significant Natural Communities
as documented in the Natural Heritage database from the
City of Binghamton
March 13, 2014
COMMON NAME
SCIENTIFIC NAME
NY STATE LISTING
NY STATE
RANK**
Falco peregrinus
Endangered
S3
Alasmidonta varicosa
Lampsilis cariosa
Threatened
Unlisted
S1
S3
Unlisted
S3
Documented in the City of Binghamton since 1997
Downtown Binghamton
Birds
Peregrine Falcon breeding
Chenango River at Binghamton
Freshwater
Mussels
Brook Floater
Yellow Lampmussel
Susquehanna River at Binghamton and Kirkwood
Freshwater
Mussels
Yellow Lampmussel
Lampsilis cariosa
Historical records: Last documented in the City of Binghamton before 1980
There is no recent information on these plants and animals at these sites. Their current status at these
sites is unknown, and it is uncertain whether they are still present. If suitable habitat is present, these
species may still occur.
Susquehanna River at Binghamton -- 1931
Amphibians
Hellbender
Cryptobranchus alleganiensis
Special Concern
S2
Special Concern
Unlisted
S1
S3
Collected somewhere within the City of Binghamton, dates unknown
Dragonflies
Pygmy Snaketail
Rapids Clubtail
Ophiogomphus howei
Gomphus quadricolor
** Conservation status in NYS as ranked by NY Natural Heritage Program on a 1 to 5 scale:
S1 = Critically imperiled
S2 = Imperiled
S3 = Rare or uncommon
S4 = Abundant and apparently secure
S5 = Demonstrably abundant and secure
SH = Historical records only; no recent observations known; may or may not still be present in
New York.
SU = Conservation status not assigned
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Information about many of the rare animals, rare plants, and natural communities in New York,
including habitat, biology, identification, conservation, and management, are available online in
Natural Heritage’s Conservation Guides at www.guides.nynhp.org.
This report only includes records from the NY Natural Heritage databases. For most sites,
comprehensive field surveys have not been conducted, and we cannot provide a definitive
statement as to the presence or absence of all rare or state-listed species. This information should
not be substituted for on-site surveys that may be required for environmental impact assessment.
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