Countryside Exchange – Town of Highlands, NY

Town of Highlands, New York
From Bear Mountain to West Point

Community Description

The Town of Highlands, which includes the Village of Highland Falls and Hamlet of Fort Montgomery, is located 60 miles north of New York City on a particularly scenic portion of the Hudson River bordered by two major tourist destinationsÑBear Mountain State Park and West Point Military Academy. While approximately five million visitors per year come to these attractions, the majority do not stop in the town despite its wealth of natural, historic and cultural resources. As a result, it has been a challenge to maintain vital main streets, provide employment for residents and secure a tax base to support desired community amenities. Local tax rolls have also been reduced over time by the appropriation of 93% of the area’s original land base by state and federal agencies and non-profit conservation organizations.

Leaders and citizens saw the Countryside Exchange as an opportunity to seek new and innovative approaches to revitalize and engage the community more actively. As Exchange preparations moved forward, a new community group – Vision 2002 – was formed, dedicated to engaging the whole town in their efforts. The year 2002 was selected because the group hopes the town can benefit from working with West Point to celebrate the Academy’s bicentennial in 2002. Vision 2002 organized a number of well attended public meetings that generated a set of questions for the team and formed committees to gather information and prepare an itinerary for the Exchange team’s visit.

Community Issues

Vision 2002 organized a number of well attendedpublic meetings that generated a set of questions for the team and formed committees to gather information and prepare an itinerary for the Exchange Team’s visit.

1. Historic Resources

How can we develop two local historic districts, utilizing two separate time periods and still link the two communities as one?
How do we communicate to our local governments, planning boards, business owners, educators, youth and other community residents the importance and special significance of maintaining our historic identity?
How do we maintain and effectively enforce regulations regarding local historic standards in the community after the Exchange team has departed and the present leadership has retired?

2. Main Street Revitalization

How do we promote controlled economic growth in the Town of Highlands and revitalize our main streets?
How do we link all our main streets – north main, south main and route 9W – to promote mutual benefits?
How do we address the needs of residents and tourists concerning safety, pedestrian and traffic flow, parking, public transportation and shopping?
How can we determine which businesses to target and how to attract them?
How can we get the water resources needed for the controlled growth of housing and businesses in Fort Montgomery?
How do we build and maintain community involvement in revitalization efforts and foster a sense of unity amongst community members?

3. Tourism

How can we create a tourism strategy for the Town of Highlands that will generate income for the Town, yet maintain and enhance quality of life for its residents?
What does the Town of Highlands need to offer tourists so they will stop and stay in our community – accommodations, restaurants, shops and events?
To whom do we market the Town of Highlands once our plans are implemented?
What are some of the negative consequences of tourism and how can they be controlled?

4. Making Things Happen

How do we move beyond discussions and studies and create and implement an action plan?

Sample Exchange Itinerary
Monday, October 18 – History
9:00 a.m.	Tour of the Historic Hudson River aboard the Commander.
12:15 p.m.	Lunch at the Historical Society.
1:30 p.m.	Historic Tour of the Town of Highlands
3:30 p.m.	Team time.
6:00 p.m.	History dinner and discussion at Hotel Thayer. Presentations concerning military history and the Hudson River Valley National Heritage Corridor.
*Tuesday, October 19 – Main Street Revitalization*
8:30 a.m.	Breakfast roundtable to discuss development and construction in the Town of Highlands.
11:00 a.m.	Fort Montgomery “Main Street” Tour
1:30 p.m	Highland Falls “Main Street” Tour.
4:30 p.m.	Team time.
6:30 p.m	Dinner and roundtable discussion for business owners at Nicole’s.
*Wednesday, October 20 – Tourism*
9:00 a.m.	Tour of West Point Military Academy.
11:15 a.m.	Lunch at the West Point Cadet Mess Hall.
12:30 p.m.	Cadet barracks tour.
2:00 p.m.	Team time.
5:30 p.m.	Tourism dinner and panel discussion at Hotel Thayer.

The Town of Highlands Exchange Team

Sue Bevan – As Rural Development Programme Officer for Northumberland County, England, Sue helps community groups with their development challenges such as finding funds, developing water and sewer services and writing business plans.

Tessa Hilder – Tessa has expertise in heritage conservation and interpretation concerning the built environment, townscapes and landscapes. She currently manages a charity which funds a variety of heritage projects in southeast England.

Margaret Jones – As National Trails Office for the Countryside Council for Wales, Margaret works with communities to develop recreational trails to be enjoyed be residents and tourists.

Steven McBride – Steven has expertise in community revitalization, historic preservation and land use planning and design. He is currently an Associate Professor of Landscape Architecture at West Virginia University.

Alison Montgomery – Alison is responsible for tourism marketing and the promotion of sustainable tourism for the Countryside, Leisure and Tourism agency in Wyre Borough, northwest England.

Stephanie Toothman – Trained as an historian, Stephanie currently coordinates a variety of heritage resource projects as Regional Coordinate for Cultural Resources for the Pacific West Region of the National Park Service.

David Zembiec – As Director of Administration and Community Projects for the New York State Tug Hill Commission, David assists communities with downtown revitalization, business diversification, tourism development and promotion and infrastructure planning.

Exchange Team Report

Introduction
As part of the Countryside Exchange, an international team of professionals visited the Town of Highlands from October 15th to the 22nd, 1999 to address three key questions generated by the community. Based on the team’s discussions with citizens and political leaders during the Exchange week, two new key issues emerged, which were related to initial questions and responded to pervasive concerns in the community.

The following report presents the team’s observations and recommendations for each of the three key questions – on Heritage Preservation, Main Street Revitalization and Tourism, as well as their ideas on Land Use Development and Making It Happen.

I. Heritage Resources

This section of the report addresses the preservation of historic identity and then recommends ways of presenting and communicating this identity in a section on heritage interpretation and education.

Heritage Identity

Observations

Preserving and restoring the Town of Highland’s historic character, if done effectively, can act as a significant catalyst for economic regeneration and a source of enhanced community pride. Newcomers to the community are drawn here by its “homey” character, which suggests that the historic building stock and period character of the town may be one factor in the recent upturn in the residential housing market. History-based tourism is also one of the largest growth areas in the industry and the town has potential to attract these kind of visitors.

The Town of Highlands including the Village of Highland Falls and Hamlet of Fort Montgomery possess a wealth of historic architectural character. Main Street has a good mix of nineteenth to early twentieth century commercial and civic buildings and a number of fine churches, presenting an attractive and interesting streetscape. Much of the housing in the streets adjoining Main Street and in Fort Montgomery is of the same period, enhancing the character and appearance of the Village and Hamlet. In addition, a number of individual buildings, including the town and village halls, are included on the State and National Registers of Historic Places.

The surrounding terrain and tree cover, the Hudson River and the many lakes and ponds form a beautiful scenic foundation for the area’s historic identity. Wooded areas interspersed between buildings and the Highland Falls Brook that runs through the Village, add to this setting. Scenic vistas are found throughout the town and “close the view” at the end of many streets.

State and federal agencies and non-profit organizations have appropriated ninety three percent of the town’s original land area. This creates a unique situation that restricts development opportunities. The town’s firm boundary is perceived as a disadvantage by many in the community because it impedes growth. However, it also has positive impacts because these largely undeveloped landholdings preserve historic and recreational assets that may have otherwise been lost years ago – and now contribute to the community’s quality of life and attractiveness as a tourist destination. Most new development has been small in scale and appropriate to the character of the town.

There are some beautifully maintained and restored properties that stand out in their historic quality. The Dentist Surgery located at the junction of South Main Street and Mill Street and the bed and breakfast at 49 Mountain Avenue are notable examples. Others include the houses next to the Church of Holy Innocents facing the West Point Visitor Center which are listed on the National Register together with the church. If extended to more buildings in a concerted way, this standard of maintenance and restoration could encourage greater commercial confidence by presenting a positive face to visitors, particularly tourists. In many cases, extensive restoration is not needed, but simply repainting and minor repairs.

Unfortunately, there are several factors that detract from the historic character of the Town. Over the last two decades, many architectural details such as wooden siding and shingles, porches and two-over-two light windows have been replaced with modern materials and design. The motivation for this appears to be a perception that the modern changes are an enhancement, suggesting a possible lack of understanding of the value and significance of historic architecture. It may also reflect a belief that an old appearance will not generate commercial success. However, this is misguided because attractive streetscapes provide a considerable draw for new businesses, residents and tourists in many communities.

Storefronts are an example of an architectural feature that can make a positive or negative impact depending on how they are treated. There are several facades in the town that provide attractive, architecturally compatible storefronts. As the Secretary of State for the Interior advises:

“The storefront is usually the most prominent feature of a historic commercial building, playing a crucial role in a store’s advertising and merchandising strategy…The rest of the building is often related to [the storefront] usually through a unity of form and detail. Identifying, retaining, and preserving storefronts and their functional and decorative features such as display windows, signs, doors, transoms, kick plates, corner posts, and entablatures is important in defining the overall historic character of the building. The removal of inappropriate, non-historic cladding, false mansard roofs, and other later alterations can help reveal the historic character of a storefront.” (For more information please see www.nps.gov for a copy for the Secretary of the InteriorÕs Guidelines for Rehabilitating Historic Buildings.)

Vacant lots and/or buildings represent a significant opportunity for re-development that can contribute to the tax base and the town’s historic appearance. But it is critical that any restorations or new developments respect the historic character and scale of the town. Other places have addressed this problem by creating and enforcing building and signage design guidelines that provide standards and guidance for appropriate building materials, colors and detailing such as window and door configurations. These guidelines can be based on historic architectural details and/or design principles.

Currently, there is a vacant lot on Main Street between the Post Office and Highland Falls Brook. A private interest is planning to develop senior housing on this site. As this location will have a major impact on the appearance of the village core, it will be essential that any new development be in keeping with the area’s historic character. Low stone walls are a locally distinct heritage feature found along some stretches of the Highland Falls Brook.

Recommendations

The process of erosion of architectural character needs to be arrested now, while the Town’s historic significance is still apparent. A comprehensive survey of the Town’s historic resources and character-defining features would provide a base of information needed for a variety of preservation and interpretation efforts. Seek out the help of the State Historic Preservation Office (SHPO) or professional consultant knowledgeable in the processes concerning The National Register of Historic Places. This survey work could also involve the participation of the West Point History Program and Advanced Placement History Projects and other historically-minded volunteers in the community. The survey should address themes featured in relevant legislation such as the Revolutionary War found in the Hudson River Valley Greenway Act of 1991 and Hudson River Valley National Heritage Area. It will also need to include key districts within the Town. A sample scope of work for a comprehensive survey can be found in the Town’s Exchange resource library.

The Town and Village of Highlands should consider applying for listing on The National Register of Historic Places as a multi-property nomination which includes historic districts and individual buildings. The application process would access technical assistance for the comprehensive survey as described above and, if designated, provides national notoriety and access to funding for incentives to encourage property restoration. Any funded work would have to be carried out to an appropriate detail and quality to be eligible for the incentives, providing a measure of control. More details regarding the pros and cons of designation on The National Register of Historic Places has been provided to the community and can be found in the town’s Exchange Resource Library.

Develop a design guide for the Town and Village to ensure that modifications to buildings and new developments are compatible with the area’s historic identity and commercial needs. As well as architectural aspects, there should be guidance on signage and paint colors, street furniture, and treatment of public spaces and design of new buildings. It is important to ensure that the guide is firmly rooted in a valuation of the significance and definition of historic characteristics. It is important, for example, to conduct a historical review of the evolution over time of the Town of Highlands as an entity, since the development of the settlements within the Town are inextricably linked. A sample scope of work for Design Guidelines can be found in the TownÕs Exchange resource library.

Utilizing National Register criteria and procedures for listing provides a legally established and credible basis for review and implementation of design guidelines. If this route is followed, the Town will need to seek the assistance of professionals who hold qualifications established by the Secretary of the Interior’s Guidelines for Professionals (please see www.nps.gov for more information).

To be most effective, the design guide should be incorporated as a zoning ordinance. A Historic Design Review Board should be established to advise the Planning Boards and Zoning Board of Appeals. The community should work with the SHPO to identify appropriately experienced professionals such as an historical architect, historian and landscape architect to be appointed to the review board and kept on a retainer.

Use incentives to encourage owner investment in the restoration of dilapidated historic buildings and to reinstate lost detailing in keeping with the Town’s new design guide. Designated places on the National Register are eligible for incentive funding.

Visit other communities where revitalization is being led by historic preservation in order to better understand the potential benefits. The business community, Town board and planning boards would find this particularly useful. The Hudson Valley Greenway, Scenic Hudson and Preservation League of New York State may be able to suggest contacts in suitable communities.

Seek funding from sources such as the Hudson Valley Greenway, Scenic Hudson and the Department of Transportation to implement the above recommendations. An essential pre-requisite is for the Town of Highlands to become a member of the Greenway, in addition to the Village, which has already joined.

Facing onto the street, the most appropriate development on the vacant lot between the Post Office and Highland Falls Brook would be commercial or public because it would fit the predominant character of the street and contribute to the critical mass of places that draw people to Main Street. Parking should be located at the rear of the lot behind the new development.

Replicate low stone walling along those stretches of the Highland Falls Brook which are publicly accessible. This will reinforce the Brook as a central feature of the Village and accentuate its character as a locally distinctive heritage feature.

Heritage Interpretation and Education

Observation

The wealth of cultural and natural resources in the Town of Highlands is recognized and appreciated by its citizens. Genuine interest in the history of the community and concern for the conservation of the areaÕs scenic beauty are values that the community wishes to pass on to future generations.

The Town of Highlands has the good fortune of being bracketed by two national historic landmarks: West Point and Fort Montgomery. Public interest in the history of the American Revolution and West Point’s role in America’s military history will increase as the 225th anniversary of the revolution (2000) and the bicentennial of West Point (2002) are celebrated. Fort Montgomery and the Village of Highland Falls are well placed to be key players in these celebrations. There is a need, however, to engage the interest and understanding of a wider and diverse group of people. It is important that more people understand that the Town’s heritage represents an asset that contributes to the community’s economy and quality of life. A program of heritage education, based on the area’s cultural and natural heritage, will support this goal now and in the future.

The town historian has made a good start in collecting the memories of the Town’s senior citizens. Seniors’ stories, ranging from tales of growing up in Highland Falls to the exploits of the Buffalo Soldiers, are of interest to both the community and its visitors. Descendents in the Town connected to the Buffalo Soldier, for example, can provide unique insights on a historic story of national interest. There is an opportunity to build on this work and provide a lasting legacy of community history by involving and educating the wider community, including younger people and the cadets at West Point.

The Town and Village have supported the efforts of the town historian and Historical Society to assemble collections and exhibits on the Town’s history. However, these exhibits are located on the second floor of the village hall and are not readily accessible to visitors or residents. In addition, these valuable collections are maintained in conditions that are less than ideal for long-term preservation and security.

Recommendations

Fort Montgomery

Continue to support The Fort Montgomery Battle Site Association as the community’s lead partner in working with the state, Palisades Interstate Park Commission and West Point to enhance the interpretation and protection of Fort Montgomery. Expand linkages to other agencies and groups supporting the interpretation of the history of the American Revolution. For example, explore through West Point the possibility of partnering with the British military units that fought at Fort Montgomery to interpret the site and give it international recognition.

The Battle Site Association should continue to investigate and utilize interpretive strategies that tell the site’s story but with minimal site development. Examples include locating the parking and visitor contact facilities away from the primary resource and developing walking tours that utilize written brochures or audio tapes keyed to minimally intrusive site markers.

Support continued research of the Battle of Fort Montgomery and ensure that it is interpreted from both the American and British points of view. One suggestion is to develop an interpretive trail following the route of the British attack.

Sponsor special events associated with Fort Montgomery and the American Revolution, such as the current annual re-enactment and the upcoming 225th anniversary of the Revolution.

Pursue grant funding from federal and state sources to support site development and professional assistance in developing innovative interpretative materials and technologies. Possible sources of funding include the Greenway Conservancy, the New York State Office of Parks, Recreation and Historic Preservation, the Empire State Development Corporation and the National Park Service. If both the Town and the Village became participating members of the Greenway Conservancy and the Hudson River Valley Heritage Corridor efforts, they will have greater access to funding for planning and implementation

Heritage Trails

Move forward with the development of a heritage trail that links the Town’s nationally significant historic sites. The trail route will need to be carefully laid out to take advantage of, and tell, other stories related to the Town’s history along the way. Wherever feasible, the trail should also take full advantage of the Town’s scenic resources and link to other trail routes, such as the Appalachian Trail or a walking tour of the village.

Utilize the information compiled by the town historian, and the recommended comprehensive survey of the Town’s historic resources, to develop a list of sites and a trail route.

Seek technical assistance from state and federal entities, such as the Greenway Conservancy and/or the River, Trails and Conservation Assistance (RTCA) program of the National Park Service to develop and interpret the trail corridor.

Heritage Education

Expand the Town’s oral history project to involve senior citizens from all sections of the community, high school students and West Point history classes. Ensure that oral histories representing all aspects of community life are gathered, including recreation, black history and commercial businesses – both those who owned them and employees. Interested students could be identified through the high school history department and the Interact student association. In order to explore ways to engage West Point cadet history students, establish a contact with the West Point history department. One interpretive project could be to identify and interview retired military personnel and civilian West Point employees in the area.

Work with the State Historic Preservation Office (SHPO) field representative stationed at Bear Mountain State Park to identify sources of funding and training in oral history techniques.

Apply for a small grant from SHPO or the Greenway Conservancy to fund the purchase of equipment, training and transcription of interviews as well as provide for permanent archiving of the interviews.

Develop curriculum materials for local third and fourth grade history classes that utilizes the information gained from the comprehensive survey of the Town’s resources to nominate properties to the National Register.

Develop an annual history day celebrating the TownÕs history with competitions for local school children. For example, third and fourth graders could submit drawings of historic sites or events and high school students could submit essays on specified topics. The winners could receive savings bonds donated by the local merchants and be recognized by certificates from the Town Historical Society.

The Town and Village should work together to provide a street level, storefront location for display of historic materials and exhibits related to the Town’s history.

One idea is to mount “window box displays” on the Town’s historic themes and events in empty storefronts. Also, explore the feasibility of providing a permanent home for the historical society in the undeveloped space of the new library wing. The library could provide a secure, environmentally controlled space for the Society’s collections, as well as exhibit and lecture space for its activities. Integrating the Town’s historical archives into the libraryÕs collections would improve accessibility to these materials for students and researchers.

II. Main Street Revitalization

The issues facing main street revitalization in the Town of Highlands range from very explicit physical planning concerns, such as visual appearance and pedestrian and vehicular circulation patterns, to concerns for safety and the expansion and attraction of commercial businesses within the business districts. Vision 2002 has acknowledged the critical importance of approaching main street revitalization from a coordinated and comprehensive point of view. This is a sound approach because there are many overlaps between revitalization issues. A broader approach will also help to build a community consensus and make the most efficient use of limited resources.

The section is organized into two categories – General and Physical Planning and Design.

General

Observations

The key to any revitalization effort is a balanced and comprehensive approach. Design considerations are obviously very important, but alone will not revitalize an area. They must be complemented by promotional efforts and economic strategies. Promotion entails marketing the unique qualities of the downtown to tourists, shoppers and potential new businesses through advertising, special events and other programs. It is also important to boost the existing economic base through a recruitment effort aimed at attracting a diverse range of retail and commercial businesses. This will help to make the downtown area more competitive with other shopping areas.

Currently, there are several empty storefronts in the community. Efforts to fill these spaces could focus on recruitment, but could also look at supporting local entrepreneurship. The need for lodging also indicates a potential for bed and breakfast development. Existing businesses are in need of new strategies to draw customers and capitalize on any of the public improvements recommended in this report.

Recommendations

Develop a strong independent organization that pulls together the interests of both the public and private sectors for the express purpose of implementing a successful and comprehensive revitalization program. It is critical that the community supports this organization and that a full-time manager or coordinator is hired. This person will serve as an advocate for the downtown area and provide critical support to sustain progress on revitalization projects.The National Main Street Center (NMS) of the National Trust for Historic Preservation provides a model that might be adopted directly or used to develop a strategy for the town. If the NMS model doesn’t seem appropriate, consider an alternate body such as a chamber of commerce, downtown merchants association or development authority. The CDC or Vision 2002 might be the appropriate vehicle that would allow the community to move quickly while it has momentum. See the section on “Making Things Happen” for more discussion on the topic of organization.
Adopt a cooperative strategy for recruiting or encouraging the development of an appropriate retail mix in order to present the entire downtown as an attractive place to shop and do business. Consider the following suggestions for new businesses:
- used bookstore specializing in military history;
- up-scale yet casual, sit-down restaurants (besides providing an alternative for local residents, such establishments would appeal to tourists and cadets looking for a place to dine with their dates or visiting families);
- Army-Navy surplus store – with “Navy” crossed out;
- antique and craft shops; jewelry shop; new varieties of take-out food restaurants such as Thai and Mexican;
- and an outdoor sporting goods outlet in the Fort Montgomery area to capitalize on “outdoorsy” people visiting Bear Mountain State Park.

Approach Orange County Tourism, the Orange County Chamber of Commerce and the Small Business Development Center to host workshops on small business development. Workshop topics could focus on developing a business plan, pursuing financing for entrepreneurial efforts and marketing. Existing businesses could also benefit from these workshops.

Physical Planning and Design

The preservation of historic main street architecture and detailing should be an integral part of the action plan for main street revitalization. Observations and recommendations concerning this topic can be found in the section on Heritage Identity earlier in this report.

Observations

The downtown is the physical expression of a particular community’s heritage. It is the design character of a community that gives it its unique qualities and identity. This character is determined in part by the physical components of the environment that are referred to as design elements. The major design elements of the downtown include the roads and parking, the pedestrian patterns, the streetscape furnishings, signage, plant materials, utilities and buildings. The community has previously identified many positive recommendations for physical improvement within the Town and the Village, particularly in the downtown area of Highland Falls. While several of these recommendations have been implemented in some fashion, many have not.

Vehicular Approach

A visitor’s perception of Highland Falls is formed as he or she approaches by car. If that experience is clear and logical, the perception will more likely be positive. The movement of 3.5 million visitors annually into West Point seems to work efficiently. The problem is one of enticing those visitors to also patronize the businesses of Highland Falls. There are also an additional one million visitors to Bear Mountain State Park that could be attracted to the town.

There have been some changes introduced in the vehicular patterns into and through town in an attempt to facilitate circulation and parking in the downtown area. For example, signage at the approach to Memorial Park and at Ladycliff Park has helped to define the Main Street area of the Village of Highland Falls.

Parking and Pedestrian Circulation

Parking is widely perceived to be a problem on Main Street. Most people express a shortage of parking as a major contributor to the lack of business. It appears, however, that the location of on-street parking spaces directly adjacent to a shopperÕs destination is the specific concern. Because merchants are often resistant to give up any of this parking, it is often not available for use by customers. Rather, employees and residents occupy many of the spaces.

An informal visual analysis of the parking situation indicates a large number of vacant parking spaces, even during peak times of the day. The 1989 Master Plan Update identified in excess of 300 parking spaces in the Main Street area. Some of these are located in the area behind the town hall, some directly on Main Street and many in the central lot adjacent to the West Point Visitor Center and Sacred Heart Church. This lot in particular is seldom filled, yet is conveniently located to the entire length of the business district.

The easy flow of pedestrians into and around the community is a key element in the development of a successful, cohesive main street plan. People must be able to move easily and safely from one place to another. Attractive, comfortable and well-maintained sidewalks should link one area to another in a clear and logical manner. Sidewalks that use brick or unit pavers create visual interest and distinguish different functional areas such as entrances to buildings and sitting or plaza areas.

The Streetscape

Street furniture such as benches, trash containers and lighting standards enhance the visual character of an area. The introduction of plants and highlighting of green areas and natural features will improve the overall visual quality of the Main Street business district by “softening” the hard edges of concrete and asphalt and adding some visual interest. There are a few examples of beautification projects such as the use of container plants by individual merchants or the planting areas installed and maintained by the Garden Club.

Several streets have empty lots and some commercial and residential buildings are dilapidated or in poor repair. This creates a tired appearance and a sense that the community does not care.

Efforts to improve the visual appeal of the community are undermined if a good standard of street cleanliness and a program of routine maintenance do not accompany them. Currently, plantings undertaken by the Garden Club have suffered through subsequent lack of watering and care. Trash and discarded larger objects create a negative impression of the community for residents and visitors.

Recommendations

Vehicular Approach

Improve the scenic appearance of the drive from Bear Mountain Bridge to the Town. Consider plantings to soften the existing development along 9W and erect attractive signs with a consistent appearance at strategic locations to delineate turns or destinations. These efforts will help to make a good first impression on travelers and allow both tourists and new residents to navigate more easily.

Identify the business district or “hub” of Fort Montgomery in order to inform visitors of available services and attractions. Signage, together with landscaping, additional public parking adjacent to the post office and the expansion of sidewalks will contribute to a stronger identification of a hamlet center for the Fort Montgomery area.

The well-designed and landscaped sign along 9W that identifies the Village of Highland Falls at Route 218 creates a nice first impression. This would be enhanced if the sign were more visible, consistent with the appearance of other signs and included a list of services and attractions to inform potential customers and first-time visitors.

Put up a sign on West Point Highway south of Ladycliff Park (perhaps before crossing the bridge, but sooner than the existing sign) that identifies both the shopping attractions and parking. Again, this sign should be consistent in design and appearance with others in the town.

Parking and Pedestrian Circulation

Reconfigure the central municipal parking lot for perpendicular parking. This will accommodate two-way traffic and allow entry from either end rather than the current one-way flow. A large information kiosk should be located at the north end of this lot at the location of the existing information sign. This kiosk could provide information and direction for users of the lot and pedestrians coming from the West Point Visitors Center.

Expand sidewalks into the existing roadbed and incorporate streetscape amenities to provide an attractive atmosphere for tourists and others to shop downtown. This could be achieved by eliminating a few parking spaces at strategic places on one or both sides of the street.

To gain additional sidewalk width, consider making Main Street one-way heading south. This would still allow parking on both sides of the street.

The West Point Superintendent indicated a willingness to have traffic exiting the Thayer Gate directed down Main Street rather than allowing it to bypass downtown via the West Point Highway. This would direct more West Point traffic through downtown, exposing travelers to shops they might not otherwise see. The Village and West Point could coordinate traffic flow changes needed to accommodate large events at the USMA.

Because of the perceived shortage of on-street parking, locate some of the spaces currently reserved for police and public official vehicles off-street. Spaces in the existing lot behind the town hall or the lot proposed behind the village hall could be designated for these vehicles. If the Village is unable to obtain the vacant lots behind the buildings near the village hall for a reasonable price, they may wish to consider condemning them and paying the owners the appraised market value for their property. Not only would this create parking for public employees and/or business owners off Main Street, it would also provide the police with a more secure and discreet entrance into the police station, particularly when taking someone in handcuffs into the station.

The Village should work with West Point to facilitate more effective pedestrian flow. Visibility is a major issue in this regard. The large spruce trees fronting the parking lot of the West Point Visitors’ Center significantly screen out the view of Main Street. Replacing them with large canopy trees would open up this view and also enhance the picture from Main Street back toward the Visitor Center. Replacing the existing chain link fence with a more decorative metal fence and adding ornamental shrubs would enhance these efforts, drawing visitors into the Main Street area while complementing the West Point facility at the same time. West Point is currently making plans to upgrade this area and would be receptive to input from the Village. Since this is a critical link between West Point and the Village, immediate coordination by the two entities should take place. Because of the timeliness of this project, it represents an opportunity for the Village to take a significant, tangible step towards achieving its revitalization goals.

Use brick or unit pavers to clearly define road crossover points such as the one between the West Point Visitors’ Center and the Main Street area in order to encourage a centralized pedestrian flow. This would be a visual improvement as well as a safety feature. Again, local officials should contact West Point to coordinate with their plans to redesign the entrance to the Visitor Center.

Study sidewalk patterns to ensure that necessary connections are provided for pedestrians. Community members pointed out that there are some gaps or flaws in the existing walkway system, particularly for senior citizens who walk from their homes to downtown or the Grand Union. Also continue with plans to expand sidewalks into some of the outlying neighborhoods, such as around Brooks Lake Park, in order to provide safe connections to Town recreation facilities.

The Streetscape

Determine a style of street furniture that is compatible with the architecture and general theme identified for the Town. Simple black metal furnishings of an early 1900s style would be appropriate.

The beautification initiative started by the local gardening association with the provision of floral boxes and baskets should be expanded and extended down the entire length of Main Street and supported more by local businesses. Flags hung during the summer and other landscaping features would provide Highland Falls with an attractive and inviting look, encouraging people to shop in town.

Current sidewalk widths along most sections of Main Street prevent the addition of street trees. Until sidewalks can be widened, the community should consider using hanging baskets and container plants throughout the downtown to provide flower and foliage color and texture. These might have flowers in the warm months and greenery for the winter. It is important to remember, however, that these measures would require more maintenance than permanent plantings.

Extend the role of the Town and Village highway departments to include maintenance of plantings, including those done by voluntary groups. At the same time, consider the long-term maintenance of future beautification projects. The county’s Summer Youth Employment and Training Program may be able to provide staffing for such maintenance during the summer months when the need is greatest and when regular highway crews are busy with road maintenance.

If the Town and Village do not already have regulations about littering and trash pickup, they should be adopted. In addition, give the community a clear contact point so that the dumping of trash can be reported. The highway departments should also adopt a quality of service standard to remove trash within a set time period and this should be advertised.

Highland Falls Brook meanders down the hill along Mountain Avenue and under Main Street, surfacing again in the center of town before going back under West Point Highway and proceeding to Buttermilk Falls. Showcase the brook and other natural features as much as possible because they are very significant in defining the unique character and charm of the Town. Where feasible, bring the sidewalk up to the brook along Mountain Avenue. The green space that begins with Memorial Park could be extended across Mountain Avenue and along the west side of West Point Highway, highlighting the brook and screening the parking and “back side” of the buildings lining Main Street. This would present a much more pleasing entrance to the Village’s shopping district.

Remove the trash and paint the existing metal railings on the bridge on Main Street and West Point Highway with black paint. This is a simple, low-cost action that will create a more distinguished look, help highlight the brook and improve the appearance at the entrance to the business district.

As part of the site plan approval for the vacant lot between the Post Office and Highland Falls Brook, the Village should negotiate public access to the brook through an easement or right-of-way agreement that would allow for a public walkway.

Consider undergrounding overhead wires. This would dramatically improve the visual quality of the Main Street area, which in turn can have significant implications for attracting new businesses and customers to the area. Contact Orange and Rockland Counties about placing wires underground and follow up with written requests, supplemented by letters of support from businesses, the community and West Point. Although it may not be an immediate project, this sort of dialog may make such an undertaking possible in the future as Orange and Rockland Counties upgrade and replace lines.

An alternative approach to placing the utilities underground might be to relocate some of the lines behind the buildings lining Main Street and thus reducing some of the visual clutter. This may require exploring the purchase of utility easements.

III. Tourism

Observations

The Town of Highlands has many unique and enticing tourism assets. It is bordered by Bear Mountain State Park to the South and the West Point Military Academy to the North. A number of key events take place throughout the year at West Point such as theatre, football games, graduations, and parades. And there is also a steadily growing program of events taking place within the Town of Highland Falls.

The Town is also ideally situated within easy access to a network of trails, which provide a wide range of opportunities to enjoy access and recreation in the surrounding countryside. The Appalachian Trail, which has worldwide recognition, runs through Bear Mountain Park and across the famous Bear Mountain Bridge, only minutes away from Highland Falls. The town also has many natural resources such as Highland Falls Brook, Buttermilk Falls and an array of parks, lakes and open spaces.

Despite these natural, historic and cultural assets, the Town of Highlands has not realized its tourism potential. A key reason is that the town lacks a clear and themed tourism identity, with no distinction between The Town of Highlands and the Village of Highland Falls. Although the difference between the two communities is an important issue to local residents, it creates confusion for visitors to the area. Nearby villages named Highland and Highland Mills further compound this confusion, which is also evident with the Hamlet of Fort Montgomery because there is also the Fort Montgomery historical site and the Town of Montgomery in New York State.

There are a number of other reasons why the Town has not realized its tourism potential. Generally, Main Street is not visually appealing and the limited selection of restaurants, shops and entertainment does not entice passing tourists to stop and spend time. Main Street businesses also maintain limited hours of operation that do not meet the needs of local commuters and tourists.

There is a lack of tourist information concerning Highland Falls and Fort Montgomery both within the county and nationwide. This makes it extremely difficult to raise awareness about the local area and encourage future tourism development. More importantly, there is also very little tourism literature available to the visitors that do come into the area. For example, the information kiosk within the town is outdated and not fully utilized by visitors.

There is a plethora of signage within the Town but the majority does not provide important tourist information. Visitors are therefore unaware that there are shops, restaurants and services situated at the south end of Main Street.

Overall there is a general lack of accommodations within Highland Falls. Existing providers appear to be very self-sufficient and work in isolation, with limited interaction between each other and the county tourism authority. There are also limited quality standard guidelines for accommodation outlets, making it difficult for the Town to guarantee a “value for money” experience.

There was some concern raised by residents of Highland Falls that increased tourism will result in negative impacts. However, as the primary target market is existing visitors to West Point, attracting these tourists into the Village should not create any additional problems for the community. Existing parking facilities should be able to sustain and support the future development of tourism attractions and businesses within the Town, which will ultimately offer enhanced facilities and an improved quality of life for the local community. The increased economic benefits that tourism will bring to the area can more than compensate for any negative impacts if tourism is carefully and proactively planned.

Recommendations

General

Form a local tourism partnership that includes all tourism stakeholders to take responsibility for driving the town’s tourism strategy forward. Tourism operators, in particular, should be encouraged to participate. The partnership should participate in the Greenway’s initiative in order to derive maximum benefit for tourism development through advisory services and grant funding opportunities. For more information on organization, please see the section “Making Things Happen.”

As discussed in other sections of this report, proactive efforts to develop well-thought out zoning ordinances, design guidelines and site plan review procedures will help to encourage desirable tourism growth while minimizing the impacts of inappropriate development.

Product Development

The Town and Village of Highland Falls should consider adopting ONE name that builds upon their proximity to West Point in order to build a recognizable identity as a tourist destination. A tagline such as “Highland Falls – Home of West Point” would provide a unique selling point. “Home of” as opposed to “Gateway to” denotes a sense of “ownership” of sorts. A gateway is something one passes through, whereas a home is a comfortable place to visit. The Town should also take advantage of its scenic location on the Hudson River to further strengthen its identity.

After agreeing to one name and a theme for the Town, promote Fort Montgomery as a significant tourist attraction and site of historic interest versus a separate municipal entity. Regardless of the confusion associated with the name Fort Montgomery, it is essential to maintain the Fort Montgomery road sign as it is so closely tied to the battle site.

Extensive consideration was given to renaming the Town “Buttermilk Falls” as it was in 1894. It was felt, however, that this would create a host of problems due to the vast array of existing literature, promotional material, business stationary, signage and international maps and atlases that refer to Highland and Highland Falls. It would take a long time to re-establish Buttermilk Falls, once again causing unnecessary confusion for visitors to the Town. If for emotional or symbolic reasons, the town did choose “Buttermilk Falls” or some other name, “the Home of West Point” should still be kept as part of the promotional identity.For more on one town with one name, see the discussion of consolidation under the Government Efficiency title in the “Making Things Happen” in the final section.
Develop a logo and identity that is consistently incorporated in all literature, signage and marketing material. All signs, including directional information signs, will need to be more prominently displayed and in accordance with the design standards of the main street revitalization scheme. This would hopefully encourage better visitor circulation around the town. Refer to the Main Street section for more detail on this issue.

In order to create a successful tourism development strategy, it is critically important to undertake market research on current visitors to local attractions and accommodations. The results of this survey will allow the Town to develop general and special interest packages to meet the needs of the newly defined market and encourage visitors to extend the duration of their stay in the area. As a starting point, the Town should capitalize upon its niche market of those Visiting Friends & Relatives (VFR) at the West Point Military Academy and encourage them to stay overnight and make use of the facilities within the town.

Take advantage of the Town’s strategic location along the Appalachian Trail. Negotiations should commence with the New York State Department of Transportation to produce and install an information kiosk that would inform and direct users into the Town and promote the facilities and services it has to offer. It should also capitalize on its position within the Hudson Valley Greenway and explore the potential for developing links to other routes in the region and for creating heritage trails which will help the visitor gain a deeper understanding of the history and culture of the area. Plans for a historic trail, which would extend through the village to the historic Fort Montgomery Battle Site, and a new visitor center are already underway. Such plans should be encouraged, as the nearest county information center is located some distance away.

Explore the potential of the Highland Falls Brook and Buttermilk Falls for tourism development. These are attractive natural water features, which once enhanced in accordance with the Main Street revitalization scheme will provide charm, character and appeal to the area. The addition of picnic tables around the green areas of Crystal Lake and Long Pond would provide a suitable and accessible recreation facility for visitors to the area.

Make the county tourism authority aware of potential development opportunities, such as the marinas of Fort Montgomery, in order that they may be able generate media interest and discuss funding opportunities with potential developers.

Take a united approach to planning and promotion of the forthcoming celebrations of the 225th anniversary of the American Revolution in the year 2000, and the 200th anniversary of West Point in 2002. This will be important to ensure maximum capacity and allow the accommodation industry to provide adequate bedspaces. Event information should be promoted in and around the county. Larger events would also benefit from advertising features in regional newspapers in and around New York State.

Produce a detailed historic booklet that narrates the history and culture of Highland Falls and Fort Montgomery for visitors. This booklet could be sold in order to provide revenue to cover the cost of future promotional literature and reprints.

Encourage residents to develop more home occupancy as a means of providing “homey” accommodations to visitors. Other tourism development such as hotels, motels and bed and breakfasts should be wholeheartedly supported as they increase the accommodation base and reduce taxes for local residents.

Existing hotels and motels should not fear the development of additional lodging facilities. In the long run, such developments will increase their occupancy during traditionally slow times. Currently, West Point Military Academy is unable to host large basketball tournaments and similar events that would bring in a large number of teams because there is inadequate lodging in the immediate vicinity. More lodging would accommodate these teams, allow West Point to hold such events, and fill the other lodging establishments with the spectators, families, and alumni that would come to give their support. Without the lodging, this opportunity is lost.

Develop packages consisting of accommodation and tours while supporting the local restaurants and facilities. Such packages could then be promoted via local tourism operators and group travel organizers.

Replace the Town’s information board with a more modernized and comprehensive map that contains information about the area, available services and facilities. The board could be encased as a display board, as opposed to the existing “routing” so that the map can be updated as new businesses are developed.

Although there is an existing sign outside the West Point Visitors’ Information Center indicating shops and facilities within the town, a smaller scaled information point could also be erected somewhere along the north end of main street which attracts a larger percentage of visitors than the south end.

Work with West Point to develop a dedicated tourist information area within their prominent Visitor Center and with Bear Mountain State Park to obtain literature racking for Highland Falls promotional material. It is essential that all promotional information is kept up to date and adequately stocked at both venues.

Tourism Promotion

In general, promotion strategies should initially focus on capturing the nearly five million visitors already coming to the area. This will provide a greater return on investment than spending great sums of money on advertising outside of the region. However, there may be low cost options for piggybacking with existing promotions by Orange County Tourism, West Point Tours, USMA and Bear Mountain State Park.

Compile a narrative about “Highland Falls” and all its attractions and collect good quality photographs. Interact more directly with county tourism authorities to ensure that this information is contained in ALL tourism guides and promotional material which market New York State and the Hudson River Valley.

Produce a tourism guide which details ALL that the town has to offer encompassing history, landscape, culture, accommodation, events, places to eat, shops and places of interest. This leaflet should be available free of charge and should be published inexpensively in order that it can be updated when necessary.

Encourage local businesses and accommodation providers to advertise in high profile promotional leaflets such as the West Point visitors map which is distributed to 30,000 visitors annually and which presently contains information on where to stay and where to eat in neighboring Newburgh.

The town should establish their own web site with reciprocal links to the web sites of West Point, New York County Tourism and various sites of historic relevance. A small fee could be charged for the inclusion of local accommodation providers and businesses to raise revenue for future promotions. There should also be a dedicated information line for people requesting tourist information.

IV. Land Use Development

Development Issues

Observations

The Town of Highlands has a situation unlike any other municipality in the nation. Due to federal and state landholdings, only 7% of the property within the town is taxable. This creates an exceptionally small tax base for supporting education and basic public services. In addition, this situation limits opportunities for future development that could otherwise generate additional tax revenues, not to mention the contribution such development could make to the local economy.

Throughout its visit, the team frequently heard that the community needed more development to expand its tax base. Yet, some circumstances over which the municipalities do have some control are impeding property development. For example, tax increases on developed or sub-divided property tend to outrun a developer’s ability to sell the property and recover his/her investment. An infrastructure tax exemption on vacant lots for such circumstances was considered in 1996, but was not passed.

The town and village already share a number of functions, including a joint zoning board of appeals (ZBA). It also appears that the Town and Village zoning ordinances are quite similar.

There is a common feeling among residents, business owners and developers that zoning enforcement is lacking in both the Town and Village, particularly as it relates to messy property. This concern is supported by the team’s personal observations. Messy property detracts from the community’s appearance to tourists, makes a poor impression on potential new businesses and residents and affects community pride. Fortunately, local zoning ordinances provide for the ability to address these conditions.

Local officials, developers and others have identified the absence of public water in the Town of Highlands as a limiting factor for development in the Fort Montgomery area. The town board has contracted the services of an engineer who is in the process of assessing the water needs of the Town. The next step is to assess the capacity of the Village and the West Point water line that runs by Fort Montgomery in order to determine if either of those sources could meet the needs of the Town. If neither of these options proves feasible, then the town will need to develop a new water source.

West Point Academy is now considering the return of a 150-acre parcel of land to the community.

Recommendations

With a joint ZBA already in place, the next logical step for the Town and Village is to establish a joint planning board with representation from both the Town and Village. The two municipalities share many of the same development issues and, due to their proximity to one another, any development which takes place in one is likely have some impact on the other. A joint planning board would encourage a comprehensive approach to planning and would facilitate implementation of “one vision,” something that citizens and elected leaders repeatedly expressed as desirable during the teamÕs visit.

Pursuant to Chapter 361 of the laws of 1998, a new section 485-f of the Real Property Tax Law allows municipalities to provide for an “infrastructure exemption.” The Town and Village should pass an exemption that would freeze the assessed value of developed or sub-divided property until transfer of title, or for a period of two to three years from the date of final approval. This would encourage developers by reducing their risk. The taxing entities would not lose revenue. They would only be deferring a short-term revenue increase for long-term gain. The law would have no effect on local land use controls that help to ensure development takes place in an appropriate manner.

The Town and Village, preferably through a new joint planning board, should comprehensively review their zoning ordinances. Amending the area’s zoning would facilitate appropriate scale development while still maintaining local character. The goal should be to find a reasonable balance, not to open the door for uncontrolled growth.

The Town and Village boards should recognize that they have the authority to ensure that existing zoning is enforced. This may simply be a matter of clarifying their expectations to the code enforcement officers. There may also be a need for enforcement training. This should be available through the Orange County Planning Department and the New York State Department of State. The Department of State also provides planning and zoning materials on its web site (www.dos.state.ny.us/netsched.html.). A good first step would be for the municipalities to meet with the enforcement officers, determine if the enforcement officers need any additional support, and discuss how control of messy conditions fits into the community’s overall efforts to improve the image it presents to visitors.

Negotiations for the land transfer from West Point should continue. Symbolically, this would have great significance for the community. It would not only foster good will but also produce real economic benefits by providing development opportunities that would increase tax revenue. West Point would also benefit from additional local accommodations for its visitors. The possibility of similar transfers of federal and state land in the future should also be investigated. One example would be Brooks Lake Park in the Town of Highlands and the property immediately surrounding Brooks Lake. The state could turn this over to the Town as dedicated parkland and the Town could maintain the trail around the lake.

V. Making Things Happen

The discussions initiated by Vision 2002 have demonstrated that many of the issues discussed in this report are well understood, and a number of the Exchange team’s observations and recommendations have been made in earlier studies. The following section addresses the critical need to move forward with implementation.

This section is divided into three areas – Organization and Funding, Community Involvement and Unity and Government Efficiency.

Organization and Funding

Observations

During the last 20 years there have been several studies concerning the Town of Highlands, notably the Revitalization of Main Street in Highland Falls (1977) and the Revitalization 2000 Update (1994). Many local residents acknowledged that the recommendations of those studies are valid and should be implemented. However, few proposals have come to fruition apparently because of a lack of capacity within the community.

In recent years, two organizations have been established to revitalize the community – The Community Development Council (CDC) and Community Help, Action and Improvement Now (CHAIN). Both are not-for-profit tax-exempt organizations but currently have limited activity. Vision 2002, also seeking to be a qualified non-profit, has now been established to continue this work and facilitate the Countryside Exchange. In addition, the Town and Village boards have been and continue to be active in developing projects on their own initiative. It is difficult to establish one vision and clear responsibility for a program of implementation with so many groups working on community revitalization.

An active chamber of commerce or business association with a paid executive is often cited as an essential component of a healthy retail community. The team heard frequent references to the previous existence of a local business association. There seems to be a need and desire to reinstate some type of business group that brings business owners together to discuss relevant issues, conduct joint activities and act as a voice for the business community. Currently, there is no such voice that gives the business community a strong presence in local affairs.

West Point Military Academy is the single most significant presence in the community.

West Point has a strong interest in the appearance and economic health of the local community. A healthy community is better able to serve the interests of West Point’s cadets, staff and visitors. As the front door to the USMA facility, an attractive village complements the image West Point is presenting to its visitors. Likewise, if the community is to capitalize on the economic opportunity created by West Point, it needs to embrace West Point as part of its own and develop a close working relationship with the facility as recommended above.

For historical reasons, past relations between the community and the Academy have been poor. Fortunately, recent efforts by community leaders and West Point officials, through the Community Relations Council, have resulted in improved relations. Local elected officials, West Point officials and members of the public frequently acknowledged this during the Exchange team’s visit.

The team heard concerns from the local business community about proposed changes in service contractors to West Point. However, it became apparent that the local community was not aware of the efforts at West Point to attempt to delay the impact on the local community resulting from the federal directive to change contractors.

The actions proposed in this report will require funding from a wide range of sources, including federal, state, local tax revenue and private funds. It would be helpful if there were also a local source of funding to initiate projects.

The Hudson River Valley Greenway offers an excellent opportunity for the town to be promoted within the context of the Hudson Valley and to increase the potential for funding and technical assistance. The Village board has signed on as a Greenway community, but the Town has not.

In addition to being ideally located for tapping into the tourist market, the community’s location also improves its competitiveness for several funding opportunities. These include the: New York State Environmental Protection/Bond Act (historic preservation, park development, acquisitions); Rural New York Program (planning for Main Street Revitalization and Historic Preservation); Hudson River Estuary Management Program (planning and interpretation); Hudson Valley Greenway Conservancy (planning and implementation); Hudson River Improvement Fund and the Transportation Enhancements Program (numerous categories, next round is 2001).

Recommendations

Establish one not-for-profit tax-exempt 501(c)(3) organization responsible for community and economic development in the town. It should have a democratic structure that allows involvement of the full range of community interests within the framework of an overall action plan. Both municipalities and all special interest groups should be represented with equal status on a managing board with implementation responsibility for the action plan.

To alleviate the pressure on volunteer community members, appoint or hire an experienced individual to implement the action plan under the direction of the board. This person will need to have access to appropriate administrative resources.

The board and its staff should take advantage of training offered by the Glynwood Center. Of particular relevance would be leadership skills and fundraising.

Establish a Town of Highlands Business Association to act as a voice for business interests. This organization could identify individuals to represent business on local boards or committees. It could be an independent organization or act under the auspices of the organization discussed above.

The new business organization should serve as a local point of contact for the Orange County Chamber of Commerce and the Orange County Tourism Department. These organizations could be asked to develop a training program that addresses such issues as business planning, hospitality, marketing and cooperative packaging. Strategies that help to retain and grow the community’s existing business base are generally more fruitful than efforts to recruit new business. In fact, the existence of a healthy business community lays the groundwork for successful recruitment of new businesses.

Maintain the Community Relations Council as a permanent forum for discussing shared concerns and for keeping lines of communication open between the town and West Point. A system of formal membership could ensure that this forum is representative of business and community interests, as well as those of local elected officials and West Point.

The Community Relations Council should explore ways that the town and West Point can work together on meeting infrastructure needs – water, sewer, gas and telecommunications. It could provide “heads-up” information on major events or public works projects that might affect traffic flow, or federal policy changes affecting employment or purchasing. Working closely with the business community, the Community Relations Council could also facilitate workshops on federal procurement policies, thereby providing local businesses with information on how to submit competitive proposals and bids.

Give consideration to the establishment of a Community Grants Fund for the town. This would be formed through contributions from private individuals, businesses and corporations and could be a useful source of funding for smaller scale community projects.

The Town board should become a Hudson Valley Greenway Community to avail itself of funding opportunities and assistance. Community leaders should meet with Greenway representatives to discuss this report. Seek their guidance in identifying projects where they can provide assistance and target likely funding sources. Along these same lines, the NYS Preservation League and the State Historic Preservation Office may be able to assist in planning historic preservation and interpretation projects.

Community Involvement and Unity

Observations

It was obvious to the Exchange team that the study area benefits from a close-knit community. It is easy to understand why it was dubbed “Hometown USA.” Working with the Glynwood Center to prepare for the team’s visit seems to have further united the community. The presence of the team has created a buzz in the town, and the excellent attendance at Exchange Week events, often by those with limited community involvement in the past, shows how committed local residents are to making a difference in their community.

It is clear from the comments of residents that communication of information and ideas between groups is good in parts and patchy elsewhere. The Countryside Exchange has been a catalyst for improving communication and during events the team heard many local people say “I didn’t know that.”

Successful communities have involved, informed and active citizens. However, most communities, including the Town of Highlands, need to further develop this trait if they are to realize their full potential. Elected officials must develop a comfort level in sharing information with the public and acknowledging legitimate questions so that the public feels respected and involved. This is not easy and often requires training in public outreach skills. The general public also must remember that they have the right to be heard and a responsibility to understand the issues they are voting on.

During the Exchange week many local people cited the problem of youth hanging out on the wall in Main Street, particularly during the summer months. They feel this is intimidating for residents and tourists and detrimental to the successful promotion of the town as a tourist destination. They report that these young people use abusive language and that there is a drug problem in the town. It seems that they prefer to “hang out” with their friends instead of participating in organized activities.

The schools provide a considerable number of opportunities for recreation and community activities. In addition, the school board has indicated that school facilities will be improved as a result of the refurbishment of the school premises on Mountain Avenue. When this is completed, the school board will be looking to provide a wider range of activities and facilities both for young people and the community as a whole.

This year the town joined the Rockland County Police Athletic League (PAL) which provides sports program for children after school. This will provide additional recreational opportunities for young people in the town.

Recommendations

Publish the agendas of town and village board meetings in the local paper.

If the local paper is willing, the two boards may also wish to consider publishing the unofficial minutes of their meetings.

Elected officials, members of Vision 2002 and other community leaders should take advantage of the leadership training that will be offered by the Glynwood Center as part of the follow-up to Exchange Week.

Vision 2002 should submit updates of their activities to a regular slot in the local newspaper or produce a quarterly community newsletter that would be delivered to every household and accessible at public places such as the library. A typical edition would include updates from local organizations and municipal authorities, progress in implementing Vision 2002 objectives, special features and notification of public meetings and events. Local businesses could be encouraged to take advertising space to cover the cost.

When the full Exchange team report is released, one section of the report should be published in the newspaper each week in order to reach as much of the public as possible. The local newspaper should benefit from the increased readership.

Form a youth task force with representatives from law enforcement, the county youth bureau and other officials or members of the public as deemed appropriate. This task force could investigate innovative programs that have been implemented successfully in other communities. As a starting point, consider a pilot youth project for an initial period of six months during the spring and summer of 2000. A qualified youth worker could talk with the young people who hang out at the wall and identify their issues and problems. This person could then encourage the young people to access activities and programs already offered, including those dealing with substance misuse, as well as inviting them to develop and manage new projects that meet their needs.

Work with the Orange County Youth Bureau to explore paid community service opportunities for young people with the New York State Division for Youth Program.

It would be helpful if police officers were deployed on foot to take an interest in, and where necessary, take action against young people causing trouble.

Government Efficiency

Observations

Three consolidation studies, completed in 1973, 1994, and 1995, have each recommended the consolidation of Town and Village government. Throughout the team’s visit, residents frequently expressed their support for consolidation and frustration that it has not progressed further. They feel that having both Town and Village services duplicates effort and wastes money. In addition, having two elected boards creates confusion and adds to bureaucracy.

Government consolidation is a very complex process, which may be the roadblock that has prevented full consolidation. It is to the credit of elected officials that they have investigated this issue so thoroughly and have already consolidated many services concerning sanitation, recreation, zoning, town court, schools and police dispatch.

The Town and Village boards have a good working relationship and share many issues and concerns.

Recommendations

The Town of Highlands and Village of Highland Falls should initiate meetings on a monthly basis to discuss common issues and update each other on their respective activities. This has been done in other communities with good results. Regular face-to-face meetings involving all board members will encourage pro-active communication and more effective working relationships. Symbolically, it will also contribute to an overall atmosphere of cooperation.

At the same time, the Town and Village boards should request assistance from the Office of the State Comptroller (OSC) in moving toward consolidation. In the long-term, consolidation will create cost efficiency, allow the community to face issues as one government and perhaps free up space for either commercial storefronts or other public uses, such as a seniors’ center.

OSC has assisted other communities with consolidation and can provide step-by-step guidance through the process. The two municipalities should take the following steps:
1. Agree to further investigate full consolidation.
2. Contact OSC directly, or through their state assemblywoman or senator.
3. Share copies of the previous consolidation studies with their OSC contact.
4. Set up a meeting with OSC staff to initiate the study process. Data from the previous studies will need to be updated.
5. Keep the public informed! Publicize findings through public meetings and news releases in the local paper.
The previous studies recommended incorporation of a new village that took in the town boundary over the option of dissolving the Village and operating its services as a special district(s) within the Town. The team does not recommend one option over the other, but leaves that to local officials and the public to decide if they choose to consolidate at all.

Conclusion

There is a tremendous amount that the Town can do to build on its assets and exercise control over its own destiny. During its visit, the Exchange team discovered not weaknesses, but rather unrealized potential. It is time for the Town of Highlands to build on this potential, both its historic past and present day strengths. It is time to move into the new millennium with a renewed commitment to working together and shaping a shared vision for the future.

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