BOROUGHOFCALDWELLMASTERPLANRE-EXAMINATIONREPORT2017

BoroughofCaldwell,NJ

Adopted:July12,2017

Borough of Caldwell Master Plan Re-Examination Report

Adopted by the Planning Board July 12, 2017

Prepared by Toplogy NJ, LLC

In cooperation with the Borough of Caldwell Planning Board

The original copy of this report was signed and sealed in accordance with N.J.S.A. 45: 14A-12

Philip Abramson, P.P. #33LI00609600

Table of Contents

I. INTRODUCTION AND PRIOR PLAN GOALS/OBJECTIVES ...................... 1II. REEXAMINATION OF LAND USE & DOWNTOWN PLAN ELEMENT ......... 5III.REEXAMINATION OF ECONOMIC BASE PLAN ELEMENT .................... 12IV.REEXAMINATION OF CIRCULATION PLAN ELEMENT ........................... 14V.REEXAMINATION OF CONSERVATION PLAN ELEMENT ...................... 17VI.REEXAMINATION OF HISTORIC PRESERVATION PLAN ELEMENT ........ 18 APPENDIX A: Maps of potential redevelopment areas ........................... 20 APPENDIX B: Open Space/Conservation maps ...................................... 23 APPENDIX C: 1986 Caldwell Historic Sites Survey ..................................... 31

I. INTRODUCTION AND PRIOR PLAN GOALS/OBJECTIVES

A. Overall Goals/Vision

The 1998 Master Plan’s vision for the Borough was to “strike the proper balance between the need to protect the environment, respect Caldwell’s history, preserve the suburban single family character of the Borough, revitalize the downtown, and still provide for reasonable uses.” Both the Master Plan and the 2005 Reexamination documents define Caldwell Borough by its majority of single family homes and its downtown business district. They suggest efforts that seek to maintain the character and balance of these key elements, while providing for nuanced control for uses that might impact that balance. The 2005 Master Plan Reexamination specifically highlights the downtown area as the main focus of future planning efforts. This 2017 Reexamination Report aims to revisit the goals and objectives of the 1998 Master Plan and the 2005 Reexamination to determine the following:

a) The major problems and objectives relating to land development in the municipality at the time of the adoption of the last re-examination report.

b) The extent to which such problems and objectives have been reduced or have increased subsequent to such date.

c) The extent to which there have been significant changes in the assumptions, policies, and objectives forming the basis for the master plan or development regulations as last revised, with particular regard to the density and distribution of population and land uses, housing conditions, circulation, conservation of natural resources, energy conservation, collection, disposition, and recycling of designated recyclable materials, and changes in State, county and municipal policies and objectives.

d) The specific changes recommended for the master plan or development regulations, if any, including underlying objectives, policies and standards, or whether a new plan or regulations should be prepared.

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e) The recommendations of the planning board concerning the incorporation of redevelopment plans adopted pursuant to the “Local Redevelopment and Housing Law,” P.L.1992, c.79 (C.40A:12A-1 et al.) into the land use plan element of the municipal master plan, and recommended changes, if any, in the local development regulations necessary to effectuate the redevelopment plans of the municipality.

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B. Challenges Identified in the 1998 Master Plan and 2005 Reexamination

A key challenge identified in prior documents is the continuing decline of ratables for the Borough, despite rising land values and a strengthening regional economy. Bloomfield Avenue’s traffic and parking issues are also highlighted in the Master Plan. Considering its use as both a major artery and commercial district the necessity to thoughtfully manage vehicular and pedestrian traffic on the Avenue is a challenge. No four-way cross intersections provide for easy north- south movement of traffic, creating further issues. Plans also highlight the challenge of preventing denser housing and outlying commercial development from having adverse effects on single family neighborhoods.

C. 1998 MASTER PLAN & 2005 REEXAMINATION OBJECTIVES

This section of the report is a review of prior plan Goals/Objectives for each of the Master Plan elements in 1998 Master Plan and subsequent 2005 reexamination Report.

Land Use & Downtown Goals/Objectives

• Maintain single family residential housing as the dominant

land use and major house type in Caldwell. • The improvement of the downtown is dependent upon

both the private and public sectors of the community. • The downtown requires a substantial amount of aesthetic

renovation to enhance its appearance and attractiveness to the public. This enhancement pertains to all facets of the downtown, including: landscaping, store façades, street furniture, signs, parking, lighting, and pedestrian/vehicle access.

• Review of land use plan to develop a strategy that reinforces the downtown as the retail core of the community. This may involve modifying the current land use plan to limit retail sales and services uses to the Bloomfield Avenue corridor

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Economic Base Goals/Objectives

• Recognize the ratable potential of multifamily and

commercial properties.

Circulation Goals/Objectives • Construct additional off-street parking facilities to decrease

reliance on on-street parking, so that congestion and delays on Bloomfield Avenue can be reduced.

• Create a new municipal parking lot between Hanford Place and Park Avenue.

• Undertake a study and examination of the parking situation in the Caldwell downtown.

Conservation

• Future development and/or redevelopment should be

undertaken in concert with the characteristics and ability of the environment to support such land use activities.

Historic Preservation

• Encourage the continued use of historic properties in keeping

with their original purpose or an appropriate adaptive reuse. • Explore means and implications of the preservation of the

historic site and districts in Caldwell. • Look into an Historic Preservation Ordinance. • Study means to insure that historic and architecturally

significant sites are not denigrated by activities in the immediate environment.

Recycling

• No specific goals or objectives were included in the 1998 Master

Plan or 2005 Reexamination. A statement referencing the Borough’s adoption of an ordinance that implements the State Recycling Plan goals cited in the 1998 recycling plan element.

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The following section makes policy recommendations that should be added to the Borough of Caldwell’s Master Plan. These recommendations are based on a review of prior plans; an assessment of current conditions; an analysis of demographic, economic, and land use patterns; and conversations with the the Borough of Caldwell’s Planning Board, staff and other stakeholders. Additionally, several public meetings and focus group discussions were held in order to get the perspective of residents on focused issues. Focused public meeting and focus group discussions were held on the following topics:

1) Recreation/Open Space and Conservation 2) Downtown Revitalization and Goals 3) Historic Preservation 4) Caldwell University

Below are the recommended changes/additions the the Borough of Caldwell’s Master Plan Policy Objectives.

II. REEXAMINATION OF LAND USE & DOWNTOWN PLAN ELEMENT

A. The Major Problems and Objectives Related to Land Use in Caldwell

at the time of the adoption of 1998 Master Plan and 2005 Master Plan Reexamination.

The goals and objectives identified in prior plans are focused on three primary areas of improvement: 1) maintaining the single-family character of residential

neighborhoods; 2) reinforcing the downtown district; 3) improving the aesthetic value of the downtown.

B. The Extent to Which Such Problems and Objectives Have Been Reduced or Have Increased Since the Adoption of the 1998 Master Plan and 2005 Reexamination Report. Since the 1998 Master Plan and subsequent reexamination, the need to reinforce the downtown as a vibrant retail and social destination for Caldwell residents and visitors persists. While Caldwell’s character is still predominantly suburban and single family, recent multi-family developments, subdivision of land in residential neighborhoods, and the construction of newer

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“McMansion” style homes in historic neighborhoods has further highlighted the need for more guided and thoughtful land use control in the Borough. The Borough’s need to promote reinvestment in both the downtown and in the aging housing stock is a persistent issue in the Borough. As identified in the 1998 Master Plan, realizing the potential to increase ratables through multifamily development is one of the reaffirmed goals of this Reexamination. This goal has at times been at odds with the stated desire to maintain the suburban single family character of the Borough. This Reexamination seeks to balance these two ideas so that any future development in the Borough does not adversely impact its historic character, small-town scale and suburban charm.

C. Recommendations

Lot subdivision: A number of instances of property owners subdividing properties in order to construct an additional home have occurred in recent years. This has predominantly occurred in R-A (Residential) zones intended to preserve single family, suburban neighborhood character. The resulting development is at times out of character with the existing neighborhood. It is recommended that the R-A zone be reevaluated to promote the preservation of the character of predominantly single family zones.

Goal 1.1: Where preservation of the historic scale and character of a single family neighborhoods is a priority, ensure that zoning does not incentivize the subdivision of lots. Implementation Strategies: • Reevaluate the policy intent of the current R-A zone (if the

primary intent is to preserve the neighborhoods at current density and scale, adjustments to schedule of Area and Yard Building Requirements may be needed).

• Consider reducing the maximum lot coverage by all building and pavement in the R-A zone.

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Buffer areas and transition zones: Downtown Caldwell offers a walkable environment with a historic “Main Street” development pattern. Some blocks that abut the downtown could serve as buffer zones that allow for attractive townhouse and/or multifamily developments that contribute to the vibrancy and walkability of the downtown, improve the municipality’s tax base and direct new development where it will serve as a reasonable transition from the more densely built downtown to the single family residential neighborhoods.

Goal1.2: Allow for moderate additional density in areas where it will enhance the character of Caldwell and serve as an appropriate transition between the downtown and the single family neighborhoods. See Appendix A of this Report for maps illustrating suggested blocks and lots that should be considered as appropriate areas for focused redevelopment and additional residential density.

Implementation Strategies: • Evaluate all areas within one-to-two blocks north of

Bloomfield Avenue; between Central Avenue and Forest Avenue to be considered for a townhouse/multifamily zones.

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Areas in need of redevelopment and rehabilitation: There are several areas in the Borough that may meet the criteria for an “area in need of redevelopment” or an “area in need of rehabilitation”. The New Jersey Local Redevelopment and Housing Law allows municipalities to adopt “redevelopment plans” for areas that have been designated as “in need of redevelopment” or “area in need of rehabilitation”. A redevelopment plan may supersede the applicable provision of the local zoning ordinance or constitute an overlay zoning district, but it must be substantially consistent with, or designed to effectuate, a municipality’s master plan. See Appendix A for maps of potential sites in Caldwell that may meet the criteria for an “area in need of redevelopment or an “area in need of rehabilitation”.

Goal 1.3: The Borough of Caldwell should pursue strategies to promote reinvestment in properties in order to ensure both the long-term economic health of the municipality, and to prevent the further deterioration of older homes and businesses in Caldwell.

Implementation Strategies: • In order to take advantage of statutory provisions

provided by the Local Redevelopment and Housing Law (LRHL), the Borough should consider designating portions or all of the municipality as an “area in need of rehabilitation”.

• Subject to a fiscal analysis and budget impact

assessment, the Borough Council should consider providing property owners that are making improvements to properties, including owners of older homes, with a tax abatement based on level of improvements made within the “area in need of rehabilitation” boundaries. Such an abatement should promote long-term reinvestment and community economic health, while not adversely affecting the Borough’s budget.

• Where deemed appropriate and where the goals of the private market align with municipal goals, the Borough Council may work with individual investors to draft “Redevelopment Plans” for sites that can accommodate new development. Redevelopment Plans should be prepared with transparency and allow for meaningful community input. Plans should control the density, bulk, and design of new investment so that all new investment contributes to the existing character of Caldwell.

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Downtown improvements: Prior plans often site the need for aesthetic improvements in the downtown. While thoughtful policy, and ordinance enforcement can help with this issue, concerted effort is needed to effectuate investment and vision management. The Borough attempted to introduce the creation of a Special Improvement District (SID) downtown, however property owners and merchants resisted the levying of an additional assessment required to create such an entity. In our conversations with downtown merchants and property owners for the proposes of the Reexamination, it became clear that there was little interest in perusing the idea creating a SID at this time. Caldwell does however have an active merchants’ association that could provide leadership and serve as a lesion between Borough Hall and the merchant community in Caldwell.

Goal 1.4: Support the efforts of Caldwell’s Merchant Association, ensuring clear communication and a collaborative approach that involves stakeholders, merchants, property owners, and residents.

Implementation Strategies: • Hold public meeting/s where the community and

merchants are invited to create the vision for downtown Caldwell.

• Create a plan that outlines streetscape improvement

priorities and identify funding sources, including grant funding, to implement. This may result in the creation of a separate Downtown Master Plan Element to be adopted by the Planning Board.

• Continue to provide an avenue for merchants to

communicate concerns and aspirations for downtown. Merchants continually reiterated that Communication is key and important to them. Merchants know how to make Downtown Caldwell the best that it can be, and they need a partner in Borough Hall to effectuate change and improvements.

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Goal 1.5: Promote a mix of uses downtown that allow for new small business models and uses that will contribute to the overall vibrancy of downtown.

Implementation Strategies: • Consider allowing “bed and breakfast” uses or Hotel

uses in the downtown. Many downtown stakeholders and citizens agreed that a local bed and breakfast or hotel would both serve the needs of residents, businesses and merchants.

• Review allowable commercial uses in the downtown to ensure that desirable businesses are not being preceded from opening an operation in the downtown due to out-of-date ordinances or procedures.

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Signage: Caldwell’s current sign ordinance (§250-2) provides extensive definitions, general provisions, exceptions, and prohibitions for signs. The ordinance should be reevaluated for relevance and be revised to encourages both conformity by business owners and more streamline enforcement. While the ordinance lays out what types of signage is prohibited extensively, business owners are not provided guidance for what types of signage is encouraged, particularly in the downtown. The Caldwell Merchants’ association has worked with the Municipality to draft an amended ordinance. This ordinance should be reviewed and considered for adoption.

Goal 1.6: Encourage signage that reinforces the historic “small town” character of Caldwell’s downtown and builds the Borough’s brand as an attractive retail and entertainment destination. Implementation Strategies: • Planning Board to set desired outcomes for signage in

the downtown. Desirable size/dimensions, material, color, quality and character (e.g., historic blade signage) should be considered.

• Review and simplify current sign ordinance to reflect desired outcomes by specifying required signage and ensuring that prohibited signage is in fact in line with desired outcomes (e.g., currently, all A-frame signage is prohibited).

• Once ordinance is reevaluated and simplified, a clear and user- friendly set of signage guidelines should be developed and communicated to business owners. Guidelines can include encouraged signage design guidance that goes beyond what may be required by ordinance.

• Enforcement of sign ordinances should be encouraged,

particularly as it pertains to the reduction of visual clutter in the retail district (e.g., sale signs that have been in windows for extended periods of time; low-quality adhesive signage that obstructs window transparency).

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III. REEXAMINATION OF ECONOMIC BASE PLAN ELEMENT

A. The Major Problems and Objectives Related to the Economic Base in Caldwell at the time of the adoption of 1998 Master Plan and 2005 Master Plan Reexamination.

Prior plans provide one main economic base plan objective and that is to “recognize the ratable potential of multifamily and commercial properties.”

B. The Extent to Which Such Problems and Objectives Have Been

Reduced or Have Increased Since the Adoption of the 1998 Master Plan and 2005 Reexamination Report.

The issue of declining ratables persists in Caldwell. The current favorable economic climate in the region is posing some development pressure in the Borough, also presenting opportunity to take advantage of this market momentum and increase retables. The persisting ethos of prior documents also insists that this development should be balanced and not reduce the quality of life for residents who enjoy the single family, small town character of the borough.

Prior plans are mostly silent in terms of the economic contribution of Caldwell’s largest employer, Caldwell University. The growing institution in indeed a significant contributing asset, economically and socially. The Borough should aim to partner with the University to ensure that goals and objectives are aligned so that both the municipality and the University enjoy a symbiotic relationship.

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C. Recommendations

RAA residential district: The RAA Residential District currently encompasses all of Caldwell University and is the only area of the Borough where the zoning exists. To codify and acknowledge the long-term presence of the University, an institutional zoning designation should be considered by the Planning Board. Connectivity with University Campus: The University presents an economic opportunity for the Borough, particularly the downtown. The University campus has made upgrades to facilities and parking on campus in recent years and has had a growing student population. The campus itself, however, is physically disconnected from Bloomfield Avenue and the downtown. Limited pedestrian connections exist that could nurture a social connection between the downtown, the student population and visitors to campus.

Goal 2.1: Promote the integration of Caldwell University and the student body to the downtown, both physically (through pedestrian connections) and socially (through co-branding and mutual cooperation).

Implementation Strategies:

• Coordinate with the University on where pedestrian access

would be viable and desirable (e.g., between Calandra’s Italian Village and the University; additional sidewalks along Ryerson Avenue)

• Implement a regular scheduled committee meeting between Borough representatives and the University in order to discuss opportunities for collaboration develop a joint vision.

• Explore shared parking opportunities near campus during sporting events when demand for parking is high. (e.g., Saint Aloysius Church)

• Explore opportunities or “co-branding” the University with

the Borough (e.g., University banners on Bloomfield Avenue)

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IV. REEXAMINATION OF CIRCULATION PLAN ELEMENT

A. The Major Problems and Objectives Related to Circulation in Caldwell at the time of the adoption of 1998 Master Plan and 2005 Master Plan Reexamination.

Prior plans have a focus on parking constraints downtown and congestion issues on Bloomfield Avenue. Bloomfield Avenue serves as a regional corridor but also runs through the heart of downtown. Balancing the dual function of the road is a challenge.

B. The Extent to Which Such Problems and Objectives Have Been Reduced or Have Increased Since the Adoption of the 1998 Master Plan and 2005 Reexamination Report. Both the parking constrains downtown, particularly on the weekend, and congestion on Bloomfield Avenue continue to be issues in Caldwell. Parking constraints are still not well understood. Before adjustments to parking regulation or investment in additional facilities can be made, the Borough needs to first understand it’s current parking supply and demand. Where and when (what time during the day and and which days) is parking the biggest issue? Is current parking capacity being efficiently utilized? Additionally, pedestrian and cyclist safety is not considered in current plans. The vibrancy of the downtown is driven both by the businesses that operate there and the residents and visitors that patronize those businesses. Vibrant downtowns offer a pedestrian experience that is interesting, safe and engaging.

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C. Recommendations

Parking: Improving parking conditions in a land-strapped downtown area is not only a function of increasing the number of spots available, but ensuring that current assets are being fully utilized. In order to do this effectively, the Borough needs to have an understanding of current supply and demand so that investments can be made strategically.

Goal 3.1: Improve parking utilization and pursue strategies that promote efficient use of parking assets. Implementation Strategies: • Develop and understanding of the supply and demand of

all public parking in the Borough, either through a municipal effort or by retaining a parking consultant.

• Encourage shared parking solutions where possible.

Privately owned lots that are not used during peak periods (e.g., banks and offices with weekday and daytime uses) may present additional opportunities for shared parking solutions during the periods when parking is most constrained downtown (e.g., evenings and weekends).

• Review current parking pricing and regulations to ensure

that they are promoting an efficient use of current assets. Is there enough short-term parking available for quick trips (e.g., spots that promote quick turnarounds for convenience retailers)? Are downtown employees taking up prime retail parking spaces that would be better utilized by customers?

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Pedestrian safety: While Bloomfield Avenue is in fact a regional corridor, and an efficient throughput of vehicles is necessary, the Avenue is also the Borough’s “Main Street” and ensuring a comfortable and safe pedestrian environment is crucial to the success of the downtown and the wellbeing of residents.

Goal 3.2: Promote pedestrian and cycling safety throughout the Borough.

Implementation Strategies:

• Evaluate the possibility of additional pedestrian crossings on

Bloomfield Avenue where there are long stretches of no safe crossing options (e.g., between Cleveland St. and Hanford Pl.; Between Hanford Place and Park Ave.; Arlington Ave. and Bloomfield Ave.; Bloomfield Ave. and Academy Rd fork).

• Develop and adopt a realistic approach to developing

safe cycling routes in Caldwell with input from the Caldwell Environmental Comission.

Transportation: While Caldwell does not have commuter train access, in community meetings, many residents expressed that improved public transportation connectivity with adjacent towns and cities should be explored. Jitney bus service to nearby Montclair commuter train stations could offer an alternative transportation mode that helps alleviate car congestion, and provides an alternative form of transportation for residents that either do not own cars or are not able to drive due to poor health, age, or disability.

Goal 3.3: Promote the use of alternative forms of transportation in Caldwell, including cycling and bus/jitney transportation.

Implementation Strategies: • Explore the possibility of working with a private jitney

operator that could provide service to nearby towns, particularly locations that connect to commuter train stations that connect to the broader region.

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V. REEXAMINATION OF CONSERVATION PLAN ELEMENT

A. The Major Problems and Objectives Related to Conservation in Caldwell at the time of the adoption of 1998 Master Plan and 2005 Master Plan Reexamination.

Prior plans focus on the necessity for new development to not create a detrimental impact on the integrity of the natural environment in Caldwell.

B. The Extent to Which Such Problems and Objectives Have Been

Reduced or Have Increased Since the Adoption of the 1998 Master Plan and 2005 Reexamination Report. Conservation continues to be top of mind for Caldwell Residents. In addition to ensuring that new development be undertaken in concert with its ability to maintain the integrity of the environment, there is a desire to find opportunities to expand small scale open space opportunities where possible. There is little available land in Caldwell to designate new large parks or conservation areas, but there is opportunity to improve the the spaces Caldwell already has and acquire small parcels that become available for the development of small pocket parks. Since the last Reexamination two properties have been purchased by the municipality and added to the Borough’s open space inventory (See Appendix B of this report for an updated Open Space Map). The additional properties are located at 27 Personette Street and 5 Knollwood Terrace.

C. Recommendations

Goal 4.1: promote the creation of small-scale open/green spaces that can provide additional green space in Caldwell.

Implementation Strategies: • Encourage new developments to include small public

spaces that provide additional green space for residents and the public. Including plazas or small parks as part of new developments can not only provide an opportunity to create more open/green space, but also help new development better integrate with the existing community.

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• When new parcels become available, particularly underutilized parcels, the municipality should consider purchasing such parcels in order to develop small “pocket parks” or informal green spaces that provide additional recreation and open space in Caldwell.

VI. REEXAMINATION OF HISTORIC PRESERVATION PLAN ELEMENT

A. The Major Problems and Objectives Related to Historic Preservation in Caldwell at the time of the adoption of 1998 Master Plan and 2005 Master Plan Reexamination. Prior plans reiterate the need to preserve key historic contributing assets to the Borough’s character.

B. The Extent to Which Such Problems and Objectives Have Been Reduced or Have Increased Since the Adoption of the 1998 Master Plan and 2005 Reexamination Report. In addition to the need to preserve historic assets and ensure that they are not degraded or lost over time, there is also a need for reinvestment. The long vacant bank building on the corner of Bloomfield Avenue and Personette Street is an example of a high potential property that is in need of reinvestment. In 2011, the Caldwell Historic Preservation Commission was formed and has worked to promote historic preservation in the Borough. Additionally, the Commission is tasked with working with the Borough and property owners to designate historically significant structures and districts with landmark status. Since the formation of the Commission, one building has been recommended for landmark status in Caldwell, the Caldwell Public Library located on 268 Bloomfield Avenue. F C. Recommendations

Goal 5.1: Continue to support the Historic Preservation Commission’s goal to improve property owners’ understating of historic preservation needs in the Borough and how they can rehabilitate their properties through educational campaigns and design guidance.

Implementation Strategies: • Work with the Caldwell Historic Preservation Commission

to develop a manual for property owners that that provides design guidance and technical assistance for the rehabilitation of historic properties in Caldwell.

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Goal 5.2: Decrease the instance of façade alterations to historic properties that degrade the aesthetic and historic value of those buildings. Implementation Strategies: • Caldwell needs to undertake a survey of its historic

places. The last survey for this purpose was completed in 1986. In the thirty-one years since the previous survey the community has lost a number of historic buildings to demolition and inappropriate renovations and conversions. In order to preserve the rich architectural heritage of the Borough, an accurate accounting of its historic inventory is necessary.

• Consider requiring the issuance of a “certificate of

appropriateness” for the alteration or demolition of “contributing” historic structures, landmarked structures, or structures in historic districts.

• Develop clear design guidelines that provide property

owners with guidance that will allow them to make alterations to buildings without covering up, or disturbing historic elements that will degrade the aesthetics or historic value of a structure.

• Ensure that the Caldwell Historic Preservation

Commission is aware of and has the opportunity to comment on all applications that are heard before the Planning and Zoning Boards.

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Appendix A: Maps of areas that may meet statutory requirements form and “area in need of redevelopment” or an “area in need of rehabilitation” in the Borough of Caldwell.

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Appendix B: Borough of Caldwell Open Space/Conservation Maps

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Appendix C: 1986 Caldwell Historic Sites Survey

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