SNAPSHOT TROY May 2015
TRANSFORM MILWAUKEE CITY OF TROY STRATEGIC ACTION PLAN
Comprehensive Professional Ser
December 3, 2013 Supported by:
Consultant Team:
bae urban economics
Cover image: Flickr / jfish4 Below: Wikipedia
This document was prepared with funding from the New York State Department of State under Title 11 of the Environmental Protection Fund."
SNAPSHOT TROY What is Snapshot Troy?
understanding of important regional initiatives and dynamics. It has also been informed by consultations with key stakeholders, members of the public, city officials and community members who have taken the time to meet with the planning team and share their thoughts on Troy’s strengths, challenges and opportunities. The planning team has used this broad community input to focus analysis on specific areas to gain a more thorough understanding of existing and future community needs.
What will it be used for?
The Snapshot is organized into a number of chapters which explore Troy’s history, evolution and key city building themes related to the creation of a healthy, vibrant and successful city. Chapters include:
Snapshot Troy provides a look at Troy today – a synopsis of the strengths, challenges, issues and opportunities currently facing the city. The Snapshot is intended to convey important trends about the city to the residents of Troy and to help highlight and frame key city building issues, challenges and opportunities which need to be addressed to ensure the longterm success and prosperity of the city and its residents. The Snapshot is intended to provide a common understanding that can form the basis for broad-based community visioning and brainstorming during the Realize Troy City Summit. Results from the City Summit will be utilized to create a vision and key directions for the city’s new Comprehensive Plan, Downtown Economic Development Strategy and Local Waterfront Revitalization Plan.
What is Snapshot Troy based on?
Snapshot Troy draws from a comprehensive review of relevant background studies, an overview of Troy’s history and evolution and current demographic and market based investigations. While the City is the primary focus, the Snapshot integrates an
• A Brief History of Troy • Troy Today • City-building Themes: - Economy, Jobs and Education - Land Use, Policy, Zoning and Implementation - Neighborhoods and Housing - Social Well-Being - Mobility - Open Space, Recreation and Culture - The Environment - The Downtown - The Waterfront SNAPSHOT TROY
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A view of the city in 1881. The flat areas were mostly built out, with limited additional room for industrial expansion. (Source: Remembering Troy: Heritage on the Hudson, Don Rittner)
A BRIEF HISTORY OF TROY Cities are constantly evolving and changing. They are never static. The streets, buildings, neighborhoods and public places that make up the character of a city reflect this constant evolution, as well as the values and aspirations of the people who have lived there over time. Troy’s history has been shaped by its location on the Hudson River, the determination of its founders, and the 18th century political will and war that led to the formation of the nation.
Troy evolved at the confluence of the Mohawk and Hudson Rivers, a gateway to the south and to the west Troy’s first occupants were Native Americans who were drawn to the islands situated at the confluence of the Mohawk and Hudson Rivers due to the safe, defensive position this location offered. Europeans first discovered the area in 1609 when Henry Hudson traveled 160 miles north of New Amsterdam, now New York, on the Hudson River seeking a western route to Asia.
The growth and expansion of the nation enabled Troy to evolve by the middle of the 19th century, as a successful center for iron, steel and textile manufacturing. In the early 20th century however, changes in the manufacturing and distribution sectors across the nation led to a decrease in industrial job growth and Troy’s population fell from a peak of approximately 76,000 in 1910 to its current population of approximately 55,000. Thanks to the ingenuity and creativity of its citizens, Troy has recently witnessed a resurgence of people and businesses wishing to locate in the city due to its rich cultural and architectural offerings, strong educational institutions, and burgeoning technology and maker space sectors. By leveraging these and other key assets, Troy can capture opportunities to diversify the economy and strengthen the city as high quality place to live, work and play.
An image of Henry Hudson approaching and greeting Native Americans on his voyage upriver.(Source: Troy, A Collar City History, Don Rittner) A BRIEF HISTORY OF TROY
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A map of Abraham Lansing’s lands with building lots, streets and service alleys. (Source: Troy, A Collar City, Don Rittner)
Troy’s location at the terminus of the Erie & Champlain Canals allowed access to vast sources of iron ore and provided access to markets to the south and west. (Source: Images of America Troy, Don Rittner)
A new city is realized
The birthplace of the American Industrial Revolution
It was not until the 1770s when Abraham Lansing began to subdivide his land to create New City or Lansingburgh, north of the navigable portions of the Hudson River, that the area became a thriving village with an influx of settlers from New England seeking opportunity and prosperity as the frontier moved ever west. Seeing the fortune that Abraham Lansing was making through the subdivision of his land into development lots, Jacob Vanderheyden, laid out his village along the navigable portions of the Hudson. In 1789, its 50 inhabitants voted to change the town’s name from Vanderheyden to Troy in celebration of American Independence. Troy became the political seat of government for the newly created Rensselaer County in 1791 and once Albany was declared the state Capital in 1797, the area began to grow quickly. Water access and the waterways were the keys to growth. Troy became an important trans-shipment point for meat and vegetables arriving from Vermont and which were shipped down the Hudson by boat to New York. The power of the Poestenkill, Wynantkill and Cohoes Falls drove early industry and manufacturing, and helped create jobs attracting people to the area. The concept of Uncle Sam originated in Troy as local resident, Uncle Sam Wilson, obtained a contract to package and provide meat to the troops fighting in the of war 1812. He stamped the barrels with his initials -U.S. Today, Uncle Sam is a highly recognized symbol of the USA. 6
SNAPSHOT TROY
In 1816, Troy was incorporated as a city with a population of approximately 4,300 people. The following year, New York State Legislature passed the Canal Law, creating the fund to build the Erie Canal connecting goods, services and trade through Troy to New York to the south and Buffalo to the West. As a result, Troy’s importance, population, trade, and industry would grow dramatically, and many historians now call Troy the birthplace of the American Industrial Revolution as it emerged as the center for iron and steel manufacturing in the early part of the nineteenth century. Troy’s geographic location at the terminus of the Erie and Champlain Canals allowed access to sources of iron ore to fuel the steel industry, but also provided waterborne access to significant markets to the west and south, enabling the city to prosper.
Troy University on the hill, where RPI’s Folsom library is located today. (Source: Troy a Collar City, Don Rittner)
The Westinghouse Electric and Manufacturing Company. (Source: Remembering Troy Heritage on the Hudson, Don Rittner)
A wealthy city with diverse industries and significant educational institutions
Labor unrest and the beginning of industrial decline
With growth, industry and invention, Troy became the fourth wealthiest city in the nation, on a per capita basis, by 1840. Much of Troy’s great architecture developed around this time and some of this fabric remains today. Also by the 1840s, black abolitionist meetings began to be held in Troy, attended by notable abolitionists and former slaves including Frederick Douglass, Harriet Tubman and Sojourner Truth. The city became an important station and haven for runaway slaves on the Underground Railway north to the British Providence of Canada.
The 1860-80s saw growing labor unrest and union activity aimed at improving wages and working conditions in many of Troy’s factories. Around 1880, the lowland along the Hudson River, which is where the community was largely situated, became mostly built out, and there was little room for continued industrial development or expansion. Labor unrest, protests and strikes involving the collar laundry unions and iron workers were enough to make some steel and manufacturing companies consider relocating to nonunionized cities where they could secure cheaper labor and more land to expand their facilities. By the latter half of the nineteenth century, iron and steel manufacturing began to decline. Just as Troy had benefited from being at the edge of the colonial frontier almost 100 years earlier, the population of newly independent America would push the frontier further westward in search of yet unrealized opportunities and prosperity. Many of Troy’s steel and manufacturing companies would join this search and abandon Troy, moving west to non-union cities that had railroad access, and consolidate the steel and manufacturing industry on a much larger scale in cities such as Pittsburgh and Cleveland. This would continue into the twentieth century.
By 1860, Troy was one of eight steel manufacturing centers producing all of the nation’s iron and steel. Troy also became known as a center for the textile industry, manufacturing shirts, collars and cuffs starting in 1834 and is often called the Collar City. All of this industry, ingenuity and invention generated prosperity, and with prosperity and growth came the founding of important centers for learning and education. The Rensselaer School was founded by Stephen Van Rensselaer in 1824, later to become known as Rensselaer Polytechnic Institute (RPI), and positioned Troy as a center of American scientific study. Emma Willard established the first female college in the nation in 1821 and this would later become the site and complex of buildings known as Russell Sage College.
A BRIEF HISTORY OF TROY
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Peak population reached 100 years ago Lansingburgh was amalgamated as part of the City of Troy in 1900 and the city continued to grow during the early part of the 20th century, reaching its peak population in 1910, with 76,800 people. The collar and cuff industry continued to dominate in the city, along with remaining iron foundries, printing establishments, publishing operations and brush, bell, stove, clothing and paper box manufacturing. Due to this significant economic diversification, not one Troy bank failed during the Great Depression and unemployment rates remained low. However, during the Depression, Troy’s population declined to 72,000 people with growth shifting from the city to the county and beyond to outlying suburbs. This was the start of a trend that has continued throughout the 20th century, rendering Troy a shrinking city to present day. Post WWII, all of the cities of the Capital District, including Albany, Troy and Schenectady, except Saratoga Springs, started to lose population as county populations began to rise. The urban footprint of the Capital District significantly increased during this period. Outmigration from the traditional cities, the spread of low density residential development, and the development of large format commercial uses in the counties began to erode the municipal tax base and the health of traditional city cores. This trend is not unique to the Capital District and has occurred in many regions in North America. It is generally fueled by the prevalence and affordability of automobiles, land development and speculation, and the housing and shopping preferences of the public. Many people aspire to owning a house on a large lot in a quiet neighborhood, and the pattern of growth within the Capital District reflects this desire. This type of growth, however, has some unforeseen consequences. As development spreads out of cities and throughout the counties, traffic congestion gets steadily worse and commute times grow. Outward growth tends to rely on highways and major arterial roads to move people and goods. With no alternative routes or effective alternative modes of travel, these mobility routes become congested. Car oriented growth adds traffic to existing routes both within the cities and within the counties, making it harder for everyone to get to where they want to be in a reasonable amount of time. Additionally, as public and private investment is focused on supporting outward growth in the counties, the core of a city can experience disinvestment and decline. Troy has, and is experiencing these conditions in many of its older neighborhood.
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SNAPSHOT TROY
A view of River Street in 1949. (Source: Images of America Troy, Don Rittner)
Population, City of Troy (1800 - 2010) 80,000
Peak Population in 1915 (76,000 people)
70,000
60,000
50,000
40,000
30,000
20,000
10,000
0
1800 1810 1820 1830 1840 1850 1860 1870 1880 1890 1900 1910 1920 1930 1940 1950 1960 1970 1980 1990 2000 2010
Looking north on River Street, from State Street to Congress Street. During the urban renewal period from the 1960s to 1970s, the city decided to replace these historic buildings (left) with a parking lot (right). (Source: Troy, A Collar City, Don Rittner)
Modern planning efforts to remove blight encouraged suburban growth In 1962, Troy developed its first Comprehensive Plan to guide the city’s growth and strategic investment decisions amid a shrinking population base, a continued decline in manufacturing and employment and a downtown experiencing increasing vacancies. In 1966, the Troy Urban Renewal Agency was created. During this period, the wholesale removal of vacant or blighted properties was encouraged and the Urban Renewal Agency demolished much of north downtown, the Troy Theater and Troy Union Railroad Station. Near the end of the 1960s, the Department of State initiated a number of highway building initiatives which fueled outmigration to the suburbs, and
the first suburban shopping center, the Colonie Center, opened and further pulled shoppers and business away from the historic downtown. The 1970s brought development of the Uncle Sam Atrium. Opposition to this and other types of suburban or poor quality building being erected in the downtown core prompted the formation of a number of historic preservation districts in the 1980s and 1990s to prevent further loss and demolition of historic structures.
A BRIEF HISTORY OF TROY
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A new vitality in the downtown has sparked optimism about the future of the city Over the past few decades, Troy’s population has continued to decline, and many higher income households have moved out of the city in favor of more suburban, car oriented and less dense neighborhood areas leaving vacancies and a concentration of lower income households. The current population appears to be stabilized at approximately 50,000 people, however, decline has left Troy with a number of challenges that need to be comprehensively addressed to reposition Troy for success over the next few decades. Recent investment and vitality within the downtown such as renewal of historic buildings and numerous events, have brought a new optimism about the future. There has also been a recent resurgence of people and businesses interested in locating in the city due to its rich cultural and architectural offerings, strong educational institutions, developing technology and innovation sectors. This momentum needs to be supported by a range of investments within and beyond downtown to ensure that the benefits of strategic economic growth and investment can extended to all of Troy’s residents. By building on these and other key assets, Troy can improve its economic conditions to strengthen the city as a vibrant and authentic destination offering many opportunities to its residents and businesses.
Hudson Mohawk Gateway discovered by Dutch East India Company
1609
1630
Abraham Lansing, begins sub-dividing his land, calling it Lansingburgh
1660
Director of Dutch East India Company, Kilian Van Rensselaer, purchases tracts of land for lease to arriving settlers
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SNAPSHOT TROY
1770
1787
Troy’s strategic waterfront location has always played an important role in the city’s history. The creativity, entrepreneurialism and ingenuity of Troy’s citizenry has and will continue to play a key role in the city’s success and reinvestment. Troy’s major educational and institutional presence creates a strong foundation for future growth.
The town’s name is changed from the Village of Vanderheyden to Troy, in order to celebrate American independence City becomes a center for iron and steel manufacturing
1789
1791
1807
New York State Legislature passes Canal Law
1816 1817
Troy becomes a manufacturing center for shirts, collars and cuffs
1821
Troy becomes the political seat of government for Rensselaer County Jacob Vanderheyden, seeing Lansing’s success, subdivides his farm into building lots, calling it the Village of Vanderheyden
Troy is one of 8 locations producing the nation’s iron
Troy is incorporated as a city with a population of 4,300 people
1824
1834
Emma Willard establishes first female college, and Rensselaer School founded
1840s
1860 1861 American Civil War begins; many of Troy’s industries manufacture materials for the war effort
Troy is fourth wealthiest city in the nation on a per capita basis
Troy’s Farmer’s Market.
Not one bank fails, and unemployment rates low during Depression
Labor unrest and union activity aimed at improving wages and working conditions
1880
1900 1910
A mural on the side of the Troy Brew Pub. (Source: Wikipedia/UpstateNYer)
Colonie Center, first enclosed shopping mall constructed
Population declines to 72,000 people; growth of outlying cities takes toll on Troy
1929 1930
Troy reaches its highest population of 76,800 people Lansingburgh incorporated as part of Troy, adding 10,000 people to the population
1940s
Late 1966 1960s
Plan for Uncle Sam Mall developed, and later canceled
Late 1975 1970s
Troy Urban Renewal Agency created; downtown stores, Troy Theater and Troy Union Railroad Station demolished Some revival as military orders from WWII bring new business to the city
Uncle Sam Atrium was erected with help of Urban Development Action Grant
Historic preservation and redevelopment efforts started to be initiated in Troy.
1990s
At one time, Troy was one of the wealthiest and economically prosperous cities in the United States. For the last 100 years, Troy has been a shrinking city. The historic downtown fabric is a legacy that the citizens fought to preserve and represents one of the great assets that is attracting recent investment and renewed interest in the city.
A BRIEF HISTORY OF TROY
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An image showing Troy’s location on the Hudson River.
TROY TODAY Today, Troy occupies 11 square miles on the eastern bank of the Hudson River and is home to 50,000 people from diverse backgrounds. It is a city with a distinct downtown core and strong resident affiliation with its many neighborhoods. The downtown is architecturally rich, and has grown in recent years with new businesses and restaurants. Troy’s residents value their strong sense of community pride and they love the pedestrian-friendly and walkable
Access to the Hudson River.
city center, the authentic character and small town feel of the city, as well as the presence of great educational institutions and the emerging creative arts community. Despite these and other assets, Troy needs to address a number of challenges and opportunities in order to improve the quality of life the city offers to its current and future its residents.
Troy has seen some activity in the creative economy sectors. (Source: bizjournals.com)
Troy has many diverse neighborhoods.
Troy is part of a dynamic regional economy that is projected to grow. The city however, has not captured its share of regional growth and must carefully leverage key city assets to capture future growth.
Healthy, attractive and safe neighborhood prosperity are key to the city’s overall health. Today, Troy struggles with a number of challenging neighborhood and housing issues.
The Capital Region’s economy is growing and will add 50,000 more people by 2030. Significant job growth is expected to occur in the health and social assistance sector, followed by jobs in professional, technical and scientific services industry, manufacturing, and construction. Yet, the City of Troy is not projected to experience growth during this time period and Rensselaer County’s population will see modest growth. The City of Troy needs to take action to reverse past trends and carefully position itself to capture a portion of projected regional population and employment growth to grow the tax base, improve the overall financial circumstance of the city, and improve the level and quality of services provided through taxation.
Troy’s neighborhoods are unique and many offer a historic character and charm that makes them attractive. Yet, a number of issues are impacting many neighborhoods. These include concerns about personal safety, high vacancy rates and disinvestment, and the lack of quality housing choices and quality of life concerns. Additionally, over 60 percent of homes in the city were built before 1940 and many require significant reinvestment. These conditions have negative consequences impacting the desirability and value of some of Troy’s neighborhoods.
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SNAPSHOT TROY
Troy’s Farmer’s Market draws large crowds to the downtown. (Source: Times Union)
Troy offers several movement opportunities, but there are some physical barriers.
Troy is socially and culturally diverse, but not everyone is experiencing a high quality of life.
A focus on multi-modal movement and addressing physical barriers will enhance mobility in the city.
Fundamental to building a healthy and sustainable city is ensuring the social well-being of the people who live there. Although many enjoy a high quality of life in Troy, not everyone is sharing in the opportunities the city offers. Nearly 26 percent of Troy’s residents live below the poverty level and housing affordability remains a challenge for many in the community. Like all cities, Troy faces a number of social challenges that will require collective effort to overcome.
Since its early days, Troy has benefited from a well-connected and logical street grid which has provided many choices for moving through the city. Following the development of the 1962 Comprehensive Plan, highway and street improvement projects were undertaken to largely facilitate automobile movement. These have created new barriers which separate various areas of the city making pedestrian, cycling and vehicular movement difficult. Hoosick Street, where feeder on and off ramps connect with very wide local streets, and the Congress Street access ramp which occurs without warning as an extension of River Street, are examples of poorly designed infrastructure that create a range of physical challenges and barriers to moving around the city by foot, bicycle and car.
TROY TODAY
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The city offers a number of parks and open spaces.
Troy features many environmental assets.
Parks, open spaces, recreation and culture assets can contribute to enhancing the health and vibrancy within the city.
Environmental conditions will require action on a number of fronts.
A city’s open space network, recreation and cultural offerings provide opportunities for both physical activity, and spiritual and intellectual development which can contribute to overall community health. Today, green and open spaces are one of the largest land uses in Troy, occupying 16.2% of the city’s total land area. Frear Park, Knickerbacker Park and Prospect Park provide opportunities for active and programmed recreation. However, the City is significantly challenged with operational and maintenance costs associated with its inventory of parks and recreational facilities. Troy is fortunate to have many cultural assets and destinations including visual and performing art facilities and a significant collection of historic buildings. Troy hosts a number of events throughout the year which are highly successful and draw visitors to the city. Events and festivals reinforce a strong community identity, add to the enjoyment of living and working in Troy, and make troy a culturally alive and vibrant city. This in turn will enhance Troy’s ability to attract future workers and population. 16
SNAPSHOT TROY
Troy has a significant number of environmental and natural features including the Hudson River, Wynantskill and Poestenkill, topographic features, and healthy natural ecosystems. However, the legacy of industrial use along these waterways has resulted in significant environmental degradation. As a result of previous industrial development, brownfield lands are more challenging and costly to redevelop and reuse. Flooding is a significant issue facing the city as a substantial portion of developed land is located within the 100-year floodplain. Climate change and resultant sea-level rise on the tidal Hudson River are also a threat that will require consideration and research to best understand how to minimize and mitigate damage to life and property.
Troy’s downtown offers multiple events such as Troy Night Out.
Troy’s waterfront holds significant potential.
Troy’s downtown is a remarkable asset.
The waterfront holds significant potential but today is underperforming.
Today, the downtown is an important regional destination and its success and development can benefit the entire city. The downtown’s urbanity, visual and architectural richness, compactness, walkability, diversity of use and new and emerging destinations are among its greatest strengths. Parts of downtown, however, have suffered urban renewal and highway building projects, resulting in large gaps and fragmentation of the built fabric and poorly designed suburban building forms which are out of character with the extensive heritage fabric of most of downtown. To fully leverage and capture the value of downtown, the city must reinforce and build upon the best of its downtown, embrace its urban architectural legacy, and work to repair the holes in the fabric.
The waterfront has a diversity of uses and environments that reflect the evolution, growth and decline of the city. Parts of the waterfront are currently home to active industry and business. Much of this land is considered brownfield and challenged by the real or perceived presence of environmental contamination. While marina and boating activity exists along the River, many of these facilities and access points are in need of reinvestment. Troy’s downtown is situated on the river, but the downtown largely turns its back to the waterfront and a high quality public realm or riverfront promenade is missing where one would expect this to be. North of the Troy Lock and Dam, the waterfront is comprised of residential development and neighborhoods, yet it does not provide many opportunities to access the waterfront. Across North America, postindustrial cities are re-positioning their waterfronts to bring a host of new activities which can reinvigorate the city, neighborhoods and the local economy. There is tremendous potential to reposition Troy’s seven miles of waterfront and ensure this remarkable asset contributes to the city’s health, quality of life and economic prosperity.
TROY TODAY
17
Troy is endowed with numerous heritage resources and a walkable downtown.
THEMES TO BE EXPLORED The long-term Comprehensive Plan, Downtown Economic Development Strategy and Local Waterfront Revitalization Plan will address a range of key topics. These are grouped under the nine guiding themes described in the pages that follow. These guiding
the waterfront
themes are interrelated, as plans and actions under one topic have implications for others. These themes address key aspects related to Troy’s future and are critical to establishing a sound foundation for a successful, sustainable and prosperous city.
economy, jobs & education neighborhoods & housing
the downtown
mobility
land use policy, planning & current initiatives
open space, recreation & culture social well being
environment
Economy, Jobs & Education Considered the birthplace of the American industrial revolution, Troy’s fortune has been shaped by steel and iron, textile and collar manufacturing. Its geographic location along the Hudson River and Erie Canal enabled transport of these goods and access to vast markets to the east and south contributing to the rapid growth and wealth of the city in the 1900s. However, with the decline of industrial manufacturing and water-based transport in the 20th century, Troy’s economic base has both shrunk and shifted in conjunction with a significant decline in the city’s population. Today, Troy’s economy is entwined with the larger regional economy and focused on government, heath care, and education, all part of a shift toward a knowledge-based economy. Yet, ongoing population loss and a resultant decline in tax base means that there is a need to focus on how best to diversify and grow the economy while improving the quality of life and prosperity in the city.
To capture population and job growth expected in the region, Troy must seek to leverage and build upon its strengths and core assets including the historic downtown, educational institutions, an underutilized waterfront, and emerging activity in the creative economy, innovation and technology sectors. To ensure growth, it will be critical to focus on key opportunities. These include: maintaining and attracting a skilled workforce by focusing on greater retention of graduates from the city’s educational institutions; strengthening neighborhoods; and reimagining the city as a riverfront community, one with a remarkable set of historic assets offering a vibrant and urban lifestyle in which people are proud to live and others desire to visit. An important question for Troy is how the city can best leverage its community assets to capture an increased share of projected growth in the region, in both people but also jobs.
Troy within the Capital Region
The larger Albany-Schenectady-Troy area is poised to grow by
50,000 people by 2030.
Rensselaer County’s population is projected to increase by only
10,000 from 2010 to 2050.
Yet, Troy is not projected to grow during this time. 20
SNAPSHOT TROY
Troy’s economy is strongly linked to the Capital District Region The region’s employment base is highly focused on the public sector, in particular dominated by the State government related jobs. While this cushioned the impact of the latest economic downturn there has recently been a reduction in public sector jobs. The Region also has a strong hightech industry sector. In recent years, job growth in the region has come from educational and health services, professional and business services, construction and manufacturing, led by technology-related industries.
61% of Troy’s residents travel outside of Troy for work. 64% of Troy’s workforce commutes into the city for work. Opportunities to both live and work in Troy would reduce commute times and increase the resident population in the city.
In 2013, there were
26,500 jobs in Troy. Of these jobs,
52% were in four sectors: Health Care and Social Assistance Educational Services Retail Trade and Public Administration Jobs within government and public administration reflect the fact that Albany is the State Capital and many public institutions and service agencies are located in Troy. The accommodation and food services, professional and technical services, manufacturing and finance and insurance represent the next tier of employment representing 24% of all Troy’s jobs.
A robotics demonstration at the Center for Gravity. (Source: Lori Van Buren / Times Union)
Growth in jobs in the arts, entertainment, and recreation category as well as professional, scientific, and technical service have outpaced those created at a national level, indicating the growth of the creative economy within the region. The ability to grow and strengthen these sectors should be part of the city’s broader economic development strategy and these sectors would logically be attracted to the amenities, character and availability of office and commercial space in Troy’s downtown. ECONOMY, JOBS & EDUCATION
21
Projected job and population growth within the region can help to strengthen Troy’s economy Most of the major employers in Troy fall into the government, medical, or education fields. Projections of regional employment indicate that the greatest job growth will occur in the health and social assistance sector, followed by jobs in professional, technical and scientific services industry, manufacturing, and construction. Growth in these sectors could help further solidify Troy’s economic base while creating expanded job opportunities within the region.
Major Employers As of 2008-2009, the top employers in Troy were (in alphabetical order): • Commission on • Rite Aid Economic Opportunity • Ross Value • CVS • St. Peter’s Health Partners • Duncan & Cahill Seton Health and Northeast Health • Dunkin’ Donuts • State of New York • Emma Willard School • The Sage Colleges • Express Scripts • Troy City School District • Greco Cast • Unity House of Troy, Inc. • Hannaford Supermarkets • • • • • • •
Projected Number of Employees by Sector in 2026 health and social assistance sector
16,300
professional, technical and scientific services industry
8,300 6,800
manufacturing
6,200
construction
5,300
education 0
Hudson Valley Community College Lansingburgh School District Pioneer Bank Price Chopper Rensselaer County Rensselaer County Chapter, NYSARC, Inc. Rensselaer Polytechnic Institute
Samaritan Hospital on Burdett Ave. (Source: Lori Van Buren / Times Union)
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SNAPSHOT TROY
5000
10000
15000
20000
Troy has a number of important assets that can be leveraged to improve the city’s overall economic outlook Troy has the potential to generate a stronger economic base, diversify its economy, broaden the tax base and build great places. By building on strong local and regional assets, Troy can expand its economic base and capture job growth in particular in the creative economy, technology and innovation sectors, and the tourism sector. The downtown has a strong role to play in this growth given the array of amenities, architectural and place making qualities, and available inventory of spaces that are highly attractive to these sectors.
Innovation, technology, and the maker movement are growing knowledge-based employment sectors The Capital Region Economic
Development Council created a Strategic Plan in 2011 that identifies the region’s economic strengths as: technology and innovation, higher education, the availability of an educated workforce and array of recreational, cultural, and environmental amenities. The Council has branded the region as “Tech Valley” referring to a number of large and small technology-related businesses within the Capital District. The presence of these high tech industries and their relationships to key educational institutions are important factors that can help advance these sectors, generate future jobs, and support the retention of highly skilled workers. While most of this knowledge-based activity is located throughout the region, some is occurring in Troy, particularly in the downtown.
The Tech Valley Center of Gravity, a makerspace and incubator located in Troy, provides individuals with access to a physical space in which to pursue arts- and technology-based production. Today, the Center of Gravity both supports local culture that retains and attracts creative and technology-focused individuals and is home to 170 members and 20 small businesses.
Rensselaer Polytech Institute has an enrollment of 7,000 students.
Educational institutions are fundamental anchors of Troy’s economy Aside from being highly respected and influential, Troy’s educational institutions function as key anchors of the local economy. They result in a high concentration of well-paying localized jobs and the total student body population, approximately 20,500 students, adds energy and vitality while supporting local business activity. A higher retention rate of these graduates would have a powerful economic impact for Troy. Every additional graduate from Troy’s institutions of higher learning who stays in Troy will occupy housing, work either in Troy or the region, shop locally, contribute to and expand the city’s economic activity. The challenge for Troy is to determine what attributes would make living and working in Troy more attractive to college and institute graduates. What role should existing businesses and the educational institutions play in advancing the retention of recent graduates?
As the downtown grows and becomes better known as a regional destination, the city has the opportunity to attract more technology and innovation related jobs to the city based on the amenities it offers. ECONOMY, JOBS & EDUCATION
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Troy’s major institutions and employees are a critical asset Troy’s existing education institutions, schools, nonprofits and major employers are an asset that can potentially be better leveraged to address some of Troy’s workforce challenges, and better prepare individuals to participate in the workforce. This includes considering how new and existing economic opportunities can be offered to populations most in need, including those who only hold a high school diploma, and are recipients of public assistance. While a challenge, it is important to community health and stability that all members of the community have the opportunity to participate in Troy’s future success. Rensselaer Polytechnic Institute (RPI) employs 500 faculty and has an enrollment of 7,000 undergraduate and graduate students. RPI offers degrees in science and technology sectors, and it is estimated the economic impact of RPI within the region is over $1 billion annually. Hudson Valley Community College serves approximately 13,000 students each semester and employs more than 650 faculty members. It is the second-largest institution of higher learning in the Capital Region and offers more than 75 degree and certificate programs.
Culture and the creative economy are important drivers for economic success A recent report by the Regional Alliance for the Creative Economy, “Leveraging Regional Assets for a Vibrant Future,” highlights the potential of the Capital Region to generate significant economic activity from its impressive base of artists, journalists, and writers, media producers, artisans and handcrafters, performing arts, and heritage and cultural assets. At present these creative industries generated approximately 30,600 jobs in the region as of 2013. Troy and Rensselaer County account for 2,700 of these jobs. There are a number of important regional creative economy assets in Troy including programs in communications design offered at RPI and Russell Sage College. Troy is home to the EMPAC performance venue and the historic Proctor’s Theater. The Troy Farmer’s market, many festivals and cultural events draw people from across the city and region. The city should determine how it can proactively support a convergence center for the creative economy that brings arts and technology, creative markets, education and talent development together to support additional entrepreneurial activity which could benefit the city as a whole.
Russell Sage College serves 3000 undergraduate students on two campuses including the founding Russell Sage College for women and the co-educational Sage College of Albany.
Every year, over 3,700 students are awarded degrees from RPI, Russell Sage College, and Hudson Valley Community College. Once they have graduated, most leave the area and launch their careers elsewhere. A focus on retaining this population could significantly boost Troy’s skilled workforce and economy.
Troy’s undergraduate and graduate students can have a significant impact on the city’s economy (Source: Wikimedia/Kaligula) 24
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Troy has significant potential to develop as a cultural hub for recreational tourism within the region
In 2011, tourism in the Capital-Saratoga region was a
$1.6 billion industry, supporting 33,400 jobs Rensselaer County captured 6 percent of all traveler spending,
at just over $100 million. This supported an estimated
2, 210 jobs in the county, as well as $6 million in local taxes. Travelers to Rensselaer County spend the most on
food and beverages ($37.5 million) and retail and services ($20 million). In the Capital Region, Albany, Saratoga, and Schenectady counties outpace Rensselaer County for traveler spending. Rensselaer County and the City of Troy should examine ways to encourage more spending and overnight stays to support tourism related spending in their jurisdictions. Troy could leverage the assets of its historic downtown, its walkability, architecture assets, riverfront location, boutique shopping experience and a growing ‘foodie’ offering to increase visitation and length of visitor stays. Another opportunity to enhance tourism could be to upgrade and expand the downtown marina as a gateway to the Erie Canal linking this to regional excursions and increasing recreational boating and tours. Finally, there is significant potential to better position the downtown as a cultural and amenity-rich base from which to explore regional attractions.
A Focus on Reinvestment in Troy’s remarkable and underutilized existing building stock
A focus on reinvestment in Troy’s remarkable and underutilized existing building stock Troy has a significant inventory of vacant and underutilized buildings including vacant second and third stories in the downtown. As Troy is largely built out, it will be through reinvestment in existing areas of the city that growth can be accommodated.
Promoting the rehabilitation and/or adaptive reuse of a large number of small-to-medium sized multistory buildings will be an important component of a reinvestment strategy. The office space inventory for example, is small, primarily Class B space offered at rents that are priced below the Capital Region market average, which should provide a competitive advantage. Technology firms, artist, and government tenants have been drivers of Troy’s office demand, but the relatively high vacancy rates show that there are some constraints to marketing and renting office space in small, inefficient floor plates that may also lack parking. Troy needs policies, implementation strategies and potentially financial incentives to support reinvestment in existing structures.
Leveraging underutilized and waterfront areas as a catalyst for reinvestment and job growth Troy also needs new development that can support future employment growth and investment. Most of the vacant land in the city is along the south waterfront and consists of industrial land with scattered, functionally obsolete structures. Some of this land provides low cost space for custom manufacturing, artists’ studios, small businesses and technology enterprises, and startups. The market analysis indicates there is demand for modern flex space (office or showroom space at the front with warehouse/assembly space in the back). Clearly, 150 acres of vacant or underutilized land along Troy’s south waterfront are a remarkable opportunity. Redevelopment in the south waterfront as well as other areas of the city has the potential to deliver new and exciting opportunities for employment uses and mixed-use development. This reinvestment would raise assessed values and generate new tax revenue to spread the city’s fixed costs of public services over a wider and stronger tax base. ECONOMY, JOBS & EDUCATION
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Land Use Policy, Zoning & Implementation Land use policies and zoning ordinances are regulatory mechanisms that cities and towns utilize to shape their evolution and guide strategic decisions aimed at improving community well-being and overall prosperity. These tools are typically derived from a comprehensive plan process, which assesses community challenges and opportunities and sets out a roadmap of strategic actions, initiatives and polices that are needed to achieve broad based community benefits and improvements.
Troy’s current land use planning framework is out of date Troy’s current land use policies and much of its regulatory framework are based on the 1962 Comprehensive Plan, which is vastly out of date and not reflective of the way in which the city has changed over the last 50 years. The 1962 Plan anticipated population growth and created a series of planning districts that were intended to “serve as the basis for future renewal and improvement programs.” Dominant land uses in each of these planning districts were defined and were intended to dictate the character of each area of the city. For example, the Plan proposed that much of the south waterfront should be dominated by large-scale industrial operations as well as shopping centers, without consideration of the effects on the neighborhood’s internal fabric, or whether this would be compatible with surrounding neighborhood uses. The Plan also lacked a contemporary vision for how the city should evolve and the underlying goals or objectives it seeks to achieve. The current Comprehensive Plan is not useful as a guide to the future and is not functioning as a regulatory tool that can effectively shape the future of the city.
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A new Comprehensive Plan is needed to support investment and growth To address the deficiencies of the 1962 Comprehensive Plan and the challenges of the future, the city has embarked on the preparation of a new Comprehensive Plan. The Plan will be developed within the context of a clear understanding of community challenges and opportunities and will include a community-based vision focused on improving community prosperity and quality of life. Background research and consultation to date indicate that some of the greatest challenges to address within the new Comprehensive Plan are the impacts and results of population loss over the last 100 years. Troy has been a shrinking city and has lost approximately 30% of its population since its peak population in 1910.
The impacts of population loss have had a number of negative consequences for Troy including a shrinking tax base, a decline in community and neighborhood investment, high levels of poverty, a high number of vacant and dilapidated buildings, job growth outside the municipality, and increasing competition within the city for limited resources. These conditions tend to fuel continued outmigration. The city must carefully examine and leverage its core assets to begin to reverse this trend, and find ways to capture its share of future job growth to build a stronger economic base, and support reinvestment and encourage population growth. The Comprehensive Plan will need to include contemporary strategies to encourage investment and population and job growth over the next 20 years.
Appendix 2 1962 Land Use Map
1962 Land Use PlanAppendix 2 1962 Land Use Map Appendix 2 1962 Land Use Map
Appendix 2 1962 Land Use Map
The 1962 Comprehensive Plan created land uses which promoted segregation of industrial, commercial and residential uses and housing types.
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27
Troy’s existing land use pattern stems from the city’s historic evolution and development Troy’s earliest settlement patterns were laid out in the late 18th century and included a regularized rectangular street and block pattern oriented north-south generally parallel to the Hudson River. Development blocks and subdivided building lots were laid out on the flat land adjacent to the river, and development was concentrated and constrained by significant topographic features to the east which resulted in a relatively compact and dense community structure. The downtown core emerged adjacent to the navigable portions of Hudson known previously as the village of Vanderheyden, with residential uses to the north and south. Today, Troy has many strong neighborhoods, a distinct and walkable downtown, major postsecondary institutions and significant open space and parks. As much of the city developed prior to the emergence of the planning profession, Troy’s development has occurred with a number of land use incompatibilities and today we see industrial uses immediately adjacent to residential neighborhoods. As an older city, most of the flat land adjacent to the river front was developed in the previous century. Since that time, development has progressed up the hill along the primary roadways leading to the core of the city. This development was primarily residential in nature and at much lower densities than seen on the flat lands of the early city. The city’s topography and slopes made direct east-west connections difficult, and moving up the hill occurs generally on diagonal roadways making inclines more traversable. These conditions result in a development pattern that reflects two very distinct urban conditions which include a very walkable and connected dense urban core on the flat lands, and more isolated low density, car-oriented residential enclaves situated in the hills above. Today, the City of Troy is almost completely built out to its municipal boundaries. In looking at the overall land base, approximately 57% of the land base is made of up non-tax generating uses, which includes the public right of ways for streets, parks, cemeteries, institutions and vacant residential lands. While 12% of the city’s land base is identified as vacant residential area, much of this land lies on steep slopes and is likely not developable. Only 43% of the total land base today is contributing to the tax base. Residential uses make up 32% of this total, and the remaining 11% includes commercial uses, the downtown core and industrial and manufacturing uses. 28
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Existing Conditions
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Troy’s can accommodate future growth through infill and redevelopment As Troy is largely built out, opportunities for change, development, growth and community revitalization will largely occur within developed areas, through intensification or infill development. Infill development can support improvements to public transit as well as walking and cycling infrastructure. It can also revitalize neighborhoods and areas of the city that contain brownfield and greyfield sites. The term ‘brownfield’ is used to describe an abandoned, vacant, derelict or underutilized industrial property that may be complicated by environmental issues. The term ‘greyfield’ refers to a vacant or underused commercial property that has potential for infill development. Infill development makes use of existing structures and infrastructure and is therefore considered a more sustainable city building approach compared to continued outward expansion which has occurred in the counties of the Capital District.
In terms of Troy’s infill development, the 11% of the current land base which is today held in existing and vacant commercial, downtown and industrial designations, offers the greatest potential for reinvestment that can bolster the tax base and enhance economic prosperity.
Major Reinvestment Areas could include parking lots along the waterfront.
This is, however, not a large land base and so opportunities must be carefully examined and harnessed to optimize beneficial returns and outcomes to the city as a whole. Additionally, targeted neighborhood infill development can be utilized in conjunction with public realm improvements to help stabilize neighborhoods and support the goals of neighborhood revitalization. Localized job creation associated with neighborhood infill can bring local employment opportunities to neighborhoods.
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Gradual Change Areas could include blocks around Hoosick Street.
A logical urban structure will be fundamental to shaping future growth As Troy considers opportunities for change and future growth, it needs to ensure that areas of change can contribute to and reinforce a logical framework of land use patterns, transportation networks and servicing infrastructure. A logical urban structure is fundamental to the efficient movement of people and goods, the efficient delivery of municipal services, and the creation of a land use pattern that successfully allows differing activities to successfully co-exist. Currently, Troy lacks an intentional planned urban structure or a hierarchy of areas of change that is embedded in the policy framework and which articulates the types of activities, built form, infrastructure and mobility patterns for distinct areas of the city. The first step in developing an urban structure that can support appropriate investment and development is to recognize that different parts of the city have distinct characters and require place-specific policies and guidelines. An urban structure can identify a range of typographies that recognize and respond to this distinct character and guide appropriate development responses in the following areas:
Stable Neighborhoods and areas where major change is not required or appropriate.
• Major Reinvestment Areas, such as large vacant areas within and adjacent to downtown, older commercial areas, underutilized industrial sites, brownfield sites and greyfield sites can provide opportunities for significant change bringing new residents and jobs. • Gradual Change Areas are typically located along major transportation corridors and routes where sensitive infill can support better transit service and local business. • Stable Neighborhoods are residential areas where major change is not desired or appropriate, and where any change should largely maintain the character of the neighborhood. • Neighborhood Enhancement Areas are residential areas where targeted reinvestment through infill development and other actions such as public realm improvements can improve the character of the neighborhood and stimulate additional private sector investment.
Neighborhood Enhancement Areas may include neighborhoods with Community Development Block Grants and other revitalization initiatives. LAND USE POLICIES, ZONING & IMPLEMENTATION
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Limited new development has occurred in Troy in the last few decades Over the last few decades, a few residential and commercial developments have been carried out in Troy. Some of the recent and proposed projects include: • The Stoneledge Terrace Development, which was constructed in a Planned Development zone. The project is a rental apartment community located in Lansingburgh. • The Monument Square Redevelopment: a $27 million redevelopment of the former City Hall site to create a mixed-use development with apartments, retail uses, and a plaza, as well as a permanent space for the city’s Farmer’s Market. The project will provide for open spaces with direct access to the river and will contain a large parking garage, serving both this development and the surrounding area.
The Quackenbush building is being renovated for the Center of Gravity. (Source: Lori Van Buren/ Times Union) 32
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• The Quackenbush Building: with financial support from Rensselaer County, the City of Troy, private developers and a grant from the Empire State Development Corporation, the Tech Valley Center of Gravity is renovating the historic Quackenbush Building at the intersection of Broadway and Third Street. The building will become the Center of Gravity’s new home, providing maker space for a range of independent and organized entrepreneurs. • Finally, there have been a number of proposals for a redevelopment along River Street. Capital Roots (formerly Capital District Community Gardens), recently renovated a 165-year-old industrial building on River St. north of the Collar City Bridge, and First Columbia has reintroduced a new mixed use community, the ‘Hedley District’, along River St. from approximately Jacob St. to Hoosick St.
New Stoneledge Terrace development.
A new Comprehensive Plan is an important opportunity to integrate and implement current initiatives Throughout the last several decades a number of master plans and studies for parts of the city have been developed. Many of these outline a series of project recommendations intended to improve mobility in the city, support redevelopment and new housing construction, revitalize neighborhoods and improve access to waterfront areas and recreational opportunities.
Despite many strong ideas outlined in these studies, there has not been a lot of success in implementing the action items and specific recommendations coming out of these plans and studies. The creation of a new Comprehensive Plan, affords an opportunity to revisit these studies and integrate key findings in one strategic document. The Comprehensive Plan will also consider a range of implementation mechanisms including zoning, form-based code, partnership incentive programs, and pilot projects to ensure that the recommendations of the plan come to fruition. The consultation process for the Comprehensive Plan provides many opportunities for Troy’s citizens, institutions, organizations and entrepreneurs to share in the process of developing a clear vision and set of strategic goals to guide Troy’s development and evolution over the next 20 years. This represents a tremendous opportunity to create a holistic, comprehensive and contemporary vision that can both address the challenges the city faces now and in the future. It also affords the opportunity to capture and build on opportunities to strengthen the city’s key assets and leverage opportunities for increased employment and tax revenue within the city. This process must carefully examine the range of development and infrastructure investment opportunities and develop the right land use and regulatory policies and tools to fully capture the potential of these opportunities. The direction and policies established in the Comprehensive Plan will have the potential to create a more complete and resilient city where Troy’s residents can successfully participate in the city’s many offerings.
Residents providing input into the Comprehensive Plan process at the project kick-off.
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Neighborhoods & Housing The quality neighborhoods and housing in Troy are key to quality Appendix 1 ofNeighborhoods & Districts of life and overall economic prosperity. Healthy, attractive and safe neighborhoods are critical community assets that help a city attract new residents and workers – both key to retaining and growing Troy’s economic base. Strong, safe communities with diverse and affordable housing and access to educational and employment opportunities are the foundation of good city building. This foundation is critical in particular for low income and struggling households. While many of Troy’s neighborhoods offer a historic character and charm, a number of issues are impacting many of Troy’s neighborhoods. These include: increased concerns about personal safety, high vacancy rates and disinvestment, and the lack of quality housing choices. Many of these issues reinforce a cycle of Appendix 1 Neighborhoods & Districts market and neighborhood challenges that are difficult to address.
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A city of distinct neighborhoods and districts Troy has many neighborhoods, each distinct in their history, composition, character and context. Troy’s residents have a strong affiliation with and pride in their neighborhoods, and today we see many community leaders and residents undertaking initiatives to ensure the health, safety and quality of life in their neighborhoods.
Troy’s Neighborhoods and Districts
Vacant and neglected properties comprise some neighborhoods Vacant housing has a destabilizing effect on adjacent properties which can reduce property values and overall neighborhood desirability. Vacant housing is directly linked to the lack of demand for housing in Troy. Compounding this issue is the age of Troy’s housing stock and the lack of investment in upgrades and repairs needed to maintain safety, contribute to neighborhood attractiveness and compete with newer, better quality housing in the region.
Vacant housing is having a destabilizing effect on some of Troy’s neighborhoods.
60%
of the city’s existing housing stock was built before 1940
Troy’s Occupied and Vacant Housing Stock Unoccupied Units: 1,100
only 7% was built in 1990 or later
Vacant Units: 2,100
Occupied units: 19,870
Along with vacant and deteriorated housing, many of Troy’s neighborhoods struggle with a high proportion of owners who have neglected the care and maintenance of their properties and who are not concerned with neighborhood stewardship or adverse neighborhood conditions. Troy’s housing and neighborhood challenges include neighborhood appearance, safety, and the quality of local schools which impact choices to locate and invest in Troy’s neighborhoods. Many of these issues cannot be addressed by local residents and neighborhood associations. They require sustained support and action by the City and other stakeholders aimed at strengthening the city’s neighborhoods and housing conditions.
Over the past several decades, Troy has struggled with a range of housing market challenges Much of Troy’s housing and neighborhood fabric was built in the previous century and is concentrated along the Hudson River. In some cases these neighborhoods are situated in close proximity to employment areas including existing and former industrial areas. Sixty percent of the city’s existing housing stock (about 14,000 units) was built before 1940, and only 7% was built in 1990 or later. In comparison, approximately 30% of the four-county region’s housing was built before 1940 and 19% was built in 1990 or later. Though there has been growth and housing development in the region over the past several decades, very little of this growth has come to Troy.
Troy currently has approximately 23,100 housing units and approximately 2,100 or 9% are vacant or unused. NEIGHBORHOODS & HOUSING
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Despite low housing values housing affordability is still an issue for many of Troy residents In 2014, Troy’s median market home value was approximately $132,500. While the cost of housing is relatively affordable, many residents still struggle with finding housing that they can afford. At the root of this challenge is the gap between low income levels of a large segment of Troy households and the income levels needed to support a healthy housing market.
In 2013, Troy‘s residents had a median household income of $39,000 while Rensselaer County
residents had a median income near $58,000.
21% of Troy households report a median income below $15,000. About
Affordable housing in Troy (Source: troyhousing.org)
Troy’s housing market is sufficiently affordable to many of the city and region’s households, but the lowest market-rate rents are still out of reach to the city’s lowest income households. To support lower income residents, the Troy Housing Authority (THA) provides subsidized housing. THA manages 1,273 units of public housing in 10 housing projects. The THA’s housing programs are supported primarily through federal funding. Capital investment in public housing and the need to maintain or expand operating subsidies, are critical issues for Troy as it is in many other communities. Addressing affordable housing needs for the city’s lowest income residents, particularly its lowest income renters, will require policies and strategies that seek to increase the earning potential and economic sufficiency of many of Troy’s households. At the same time, there is a need to expand funding sources available to support affordable housing. The long term goal is twofold: to provide a range of quality affordable housing options that meets the needs of residents while at the same time strengthening the value of the housing market, thereby creating the conditions which can encourage upwardly mobile households to remain in Troy, or choose to live in the city.
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New streets planted along 6th Avenue. (Source: Google Inc.)
Community development initiatives are bringing reinvestment back to Troy’s neighborhoods In response to challenges in some of Troy’s neighborhoods, a number of community development iniatives have been introduced. In 2014, the City of Troy established a land bank initiative to address blight and harness neighborhood revitalization opportunities presented by vacant and abandoned property. Since its startup, the Troy Community Land Bank has developed a Strategic Plan that focuses on a targeted area within the North Central neighborhood (one of the most distressed areas in the Capital Region). The land bank structure, authority and funding streams will bring a catalytic change to North Central with a range of economic development, human capital and community engagement initiatives that will form the basis of lasting, comprehensive neighborhood improvement. As the land bank increases its capacity, its resources can be integrated into other neighborhood-specific strategies. Also active in the revitalization of Troy’s neighborhoods is the Troy Rehabilitation and Improvement Program (TRIP). TRIP has evolved to support Troy’s low and moderate income households and its mandate includes assisting qualified residents in achieving homeownership, managing high quality rental property, leading housing rehabilitation and neighborhood improvement projects, and increasing resident capacity through leadership skill development and community organizing.
The Comprehensive Plan creates an opportunity to develop a neighborhood and housing improvement strategy In recent years, Troy has seen the construction and occupancy of new multi-family projects which have added a number of new units, mostly in the downtown. Market trends show support for residential conversion and new construction of multi-family rental properties and investments and renovations of historic buildings which can take advantage of federal historic tax credits. Building on these market trends and tax advantages, Troy can leverage the affordability of its neighborhoods and develop a comprehensive neighborhood and housing improvement strategy that focuses on the physical housing needs as well as the social well-being and human capital needs of the community.
This strategy should explore a range of approaches, including: • Targeted, market-oriented neighborhood improvement strategies can support incremental neighborhood renewal and should involve the strategic development, renovation, marketing and disposition of cityowned property and housing and involve the Land Bank. • Strategies that can link housing renovation, affordable housing and historic preservation to job creation and skills development through apprenticeships and small business development initiatives should be explored to create a sustainable workforce while building an improved sense of community and self-sufficiency. • Focusing Community Development Block Grant (CDBG) investments to the public realm in areas with active revitalization and renovation projects can have a much larger impact when multiple projects are aligned to form a revitalization district. • Developing a marketing strategy promoting Troy’s affordable and historic neighborhoods to self-employed persons who may be priced out of other cities can bring investment and population growth needed to bolster the housing market and build the tax base. • Finally, the city should capitalize on its distinct urban fabric, an asset which is increasingly in demand by households of all types, including seniors and baby boomers, millennials and families.
The long term goal is to build a strong and diverse housing market Over the long term, the City of Troy needs to create market-based strategies to effectively attract new households that have many choices in where to locate. Troy’s neighborhoods have many positive features, including their affordability and their historic and walkable character. Residents are responding to these features and developing financial and social investments in neighborhoods where they see opportunities. However, perceived and real impediments faced by prospective households have to be addressed - including the level of neighborhood amenities, code enforcement, public safety, and educational quality - in order to substantially increase demand for housing and support investment. Public sector investment and revitalization activities should be carefully structured to build momentum over time and catalyze neighborhood investment from the private sector. NEIGHBORHOODS & HOUSING
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Social Well-being Fundamental to building a healthy and sustainable city is ensuring the social well-being of the people who live there. A community should provide opportunities for everyone to share in its prosperity and enjoy a high quality of life. It should offer access to affordable housing, healthy and nutritious food, parks and community recreational facilities and educational opportunities. In designing safe and inclusive cities, we need to address current and future needs of the existing community and anticipate the needs of future residents. Although many enjoy a high quality of life in Troy, not everyone is benefiting or sharing in the opportunities the city offers. Like all cities, Troy faces a number of social challenges that will require collective effort to overcome. The city employs a range of assistance programs to meet the needs of the individuals and families its serves. Recently, healthy food programs and additional social service supports have been put in place to better address some community challenges. However, housing affordability and neighborhoods with concentrated poverty are contributing to a city, where the income and geography between the “haves” and the “have not’s” is increasing.
Parts of the city and the community are challenged with high levels of poverty Historically, many upwardly mobile residents chose to move out of the more dense neighborhoods that abutted the Hudson River, in favor of newer housing on larger lots located up the hill or in the county, leaving residents with fewer choices behind. Higher levels of poverty are concentrated within particular neighborhoods, including North Central, parts of Lansingburgh and parts of South Troy. Residents in lower income neighborhoods often feel segregated and isolated from other parts of the city. Due to income based inequalities, residents can feel that they are not being effectively engaged by the city or that their particular circumstance is not well understood by representatives of the city. The participation and contribution of all citizens in the development of the city is vital to meeting the challenges of the future. In terms of nurturing future workers, and creating healthy desirable neighborhoods, it is too costly to ignore poverty or leave any segment of the community behind. 38
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Housing affordability is a significant concern for many residents, especially those with extremely low incomes There is a significant proportion of lower income residents in Troy in comparison to the state and to the county. As a result, there are greater numbers of households that are challenged by the cost of housing despite the fact that housing prices in Troy are relatively affordable.
Approximately 60% of renters and 30% percent of owners pay more than 30 percent of their income towards housing costs each month, making them “cost-burdened.” To help support lower income residents Troy’s Housing Authority manages over 1200 public housing projects and provides subsidies with the support of Housing Choice Vouchers and Low Income Housing Tax Credits, but the need for public and subsidized housing has outpaced the resources available and more funding is needed to meet the current need. Ensuring many neighborhoods offer diverse housing options, including housing for moderate and lower income residents and affordable housing, will lead to a more socioeconomically integrated community.
Percentage of residents who live below poverty level 26%
Troy 12%
Rensselaer County
15%
New York State 0
5
10
15 20 Percentage
25
30
There is an opportunity to work with the city’s institutions to support workforce skills development The city has a lower number of residents with a high school education or higher in comparison to the County and the state. This has made it more challenging for residents to find long term employment as current and projected jobs generally require high school diplomas or advanced degrees and certification. In order to spread the benefits of regional and local economic growth to broader segments of the local population, it will be important to explore opportunities to increase education and training opportunities for Troy’s residents and workers. Troy’s strong institutions can be important leaders and partners in championing local skills development. Anchor institutions offer a range of skills development courses and could work with local business, particularly those involved in housing renovation and construction to encourage apprenticeship programs aimed at advancing local residents skill development. Overtime, these types of programs
can be important contributors to the local economy through job creation and the development of worker-owned businesses. Additionally, major institutions such as those found in Troy, spend millions of dollars annually on everything from construction projects to furnishings. Adopting a ‘Buy Local’ procurement policy would support local business and increase employment opportunities. Troy must work with its community support agencies, strong educational institutions and school boards to develop strategies to increase educational attainment levels and develop programs which can enhance the skill base of the local work force, particularly focused on neighborhoods in need. Education and skills development are key to building a better city with more opportunities for more members of the community to participate in Troy’s economy and quality of life.
Hudson Valley Community College (Source: Wikipedia)
EMPAC at RPI (Source: Wikipedia)
Russell Sage College (Source: Wikipedia)
Workforce skills development would have a positive impact on Troy’s economy. (Source: Wikimedia) SOCIAL WELLBEING
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Troy’s quality of life and image are impacted by the real and perceived rate of crime in the city In 2010, the rate of violent crimes in Troy offenses which involve force or threat of force, was over 420 per 10,000 residents. A number of complex societal issues, including poverty and substance abuse contribute to the overall crime rate. In response, new initiatives are being developed by the Troy Police Department (TPD) to allow police officers to work more closely with community members in local neighborhoods and schools. Part of the Department’s challenge is addressing the perception of crime in certain neighborhoods. Perceived high crime rates are a major barrier to achieving a more socioeconomically integrated city. Despite the many attributes of Troy’s historic neighborhoods that lie adjacent to the Hudson, and the legacy of heritage buildings that make these neighborhoods appealing to new residents, concerns about personal safety and property crimes deter many prospective residents from purchasing within these neighborhoods. Troy has recently seen a rise in the number of young people take up residency in Troy’s historic neighborhoods due to their affordability. This renewed interest and investment in the restoration and modernization of buildings has contributed to an improved sense of community safety and well-being. A continued commitment to improving safety and encouraging reinvestment in Troy’s historic neighborhoods are needed to help ensure the city can evolve as a more healthy, safe and diverse place to live, work and raise a family.
Troy’s residents face difficulties locally accessing goods and nutritious food options Currently, many of Troy’s residents drive to stores or shopping centers outside of the city to access goods and nutritious food options, as these amenities are not available to them within their respective neighborhoods. This issue is especially true in the downtown, where there is limited access to daily fresh food at affordable prices. The Troy Farmer’s Market is an exception but only operates one day per week.
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Community gardens throughout Troy increase access to healthy food options.
Healthy communities promote healthy food choices, active transportation and effective health care. In many communities, strategies to increase food choices include ensuring grocery stores are located within walking distance, or up to a 20 minute walk from neighborhoods or along major transit routes. Prioritizing food access could be linked to broader economic development strategies with the recognition that promoting food access within Troy will also mean greater gains for the city’s local economy. If individuals do not have to leave the city to shop, city business are better served.
Through the Comprehensive Plan, the city can begin to prioritize strategies to better enable resident’s access to healthy food choices, recreational amenities and active transportation choices within the city.
Troy is home to an array of helping agencies who support many of Troy’s residents There are many helping agencies in the city that offer support for lower income individuals and families. Joseph’s House and Shelter, for example, provides shelter, nutritious meals, medical care, access to personal items, laundry facilities and other services to those in need. The Capital District Community Gardens (CDCG) also works to improve the quality of life for residents of Troy by maintaining 39 community gardens, planting hundreds of trees every year and working with community members to offer nutritional and horticultural education for all ages. There are also a number of supports for youth and young children including the Troy Boys and Girls Club and the Troy Youth Association which provide after school and summer programs. Helping agencies working in Troy have noted that the availability of programs have not kept pace with the growing need in the city. Funding shortfalls and competition for grants are making it more challenging to provide the quality and level of services needed to provide basic supports for lower income and underserved segments of the community.
The Troy Boys and Girls Club is an important community agency (Source: Cindy Schultz/Times Union).
Opportunities for social connection can be found in the City’s many programs, events and festivals Troy is evolving as a community of festivals. Events, programs, and festivals in the city offer opportunities for enhanced social involvement, entertainment and skills training. The Troy Farmer’s Market and Troy Night Out festival regularly draw hundreds of locals and visitors and provide opportunities for social interaction and community engagement. Despite the many opportunities for collective gathering spaces and events, some neighborhoods in the city still feel isolated and disconnected. Most events and festivals occur in the downtown or on the Hill, close to RPI. Citywide events showcase downtown businesses and organizations. While smaller scaled get-togethers occur at local meeting places - either at community centers or churches. There is need to better connect communities outside of the core to the larger events and programs that are available in the city.
Events within the downtown provide opportunities for social connection (Source: Wikimedia).
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Mobility The way people move through their neighborhood and city contributes greatly to their quality of life and place. The presence of a transportation system that provides equal resources and convenience for all travel modes – walking, cycling, transit and driving - and all abilities is increasingly becoming not only a tremendous asset for cities, but a critical ingredient for continued growth. The design and function of the transportation system has an effect on, and works in concert with, all the other elements of a city; its land use, housing, waterfront, environment, social wellbeing and recreation, as people need to travel among these various destinations. An important component of this system is offering people transportation choice or options in the way they move within Troy. These options should include walking, cycling, public transit as well as the private automobile. Using alternative travel modes has many benefits, including reduced congestion, road and parking facility cost savings, improved public health and safety, and pollution and emission reductions.
The 1962 Comprehensive Plan focused on moving cars In the 1960s mobility was identified as a key issue in Troy as increased congestion was developing along the City’s main corridors and intersections. These conditions were primarily observed along the few north-south streets that stretched the entire length of the city, as well as east-west streets crossing the Hudson River. Streets with higher traffic volumes included Pawling Avenue, Congress Street, Burden Avenue, Spring Avenue, and Mill Street. During this time it was anticipated that traffic volumes would increase by 55% by 1980 and add to already congested conditions. In an effort to address this, the City’s 1962 Comprehensive Plan recommended the development of a controlled-access arterial highway to connect to New York State Route 7, increased right-of-way width of major and collector streets, conversion of two-way streets to one-way, and on-street parking reduction to improve traffic flow. This led to the development of transportation infrastructure in the city that was largely auto oriented and little investment was made in improvements to transit, cycling or walking infrastructure. In addition, the significant highway infrastructure that developed during this period created a number of barriers for pedestrians including limiting access to parks and open spaces, amenities and neighborhoods.
Troy is experiencing a shift from planning for cars to planning for people and places Today, however, transportation planning practices have shifted to an increased emphasis on public transit, bicycle and pedestrian mobility. The City of Troy has adopted multiple policy initiatives that deviate from the 1962 Master Plan in an effort to encourage local placemaking, environmentally sustainable development, mixed-use, and mixed-income neighborhoods. All of these directions support multiple modes and increase transportation choice. Most of the developed areas within the City of Troy are now within a ¼ mile of a bus route and stop and provide access to many destinations such as schools, shopping, recreational facilities and entertainment venues.
The downtown is walkable, contributing to a higher quality of life 42
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There is a notable network of one-way streets within the city In the City of Troy, conversion of streets from two-way to one-way traffic was implemented following the Comprehensive Plan’s adoption. The intent of the conversion was to funnel traffic as quickly and efficiently as possible from the local street network to the regional highway system. The one-way network is primarily limited to the downtown, street connections around the Hoosick Street Bridge, and the Lansingburgh neighborhood. The challenge with the one-way street network is that it tends to force drivers to follow out-of-direction routes to their destinations, causing decreased vehicular access and confusion. This is particularly problematic for occasional visitors and is exacerbated by the feeder highway system which tends to force motorists to access the one-way street network. Troy’s one- way streets also tend to increase vehicle speeds by reducing the number of visual conflicts for motorists. Through street design and way-finding strategies, the one-way street network can be balanced to serve all modes of travel, support local businesses and contribute to the downtown parking supply.
Troy’s downtown is generally a network of one-way streets.
Residents and visitors enjoy biking in Troy (Source: albanybicyclecoalition.com)
There are numerous events in Troy’s downtown, such as the River Street Festival, that close off streets to traffic (Source: alloveralbany.com) MOBILITY
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Outside of the downtown, few of Troy’s main roads are designed to encourage walking and cycling. While sidewalks are present on many of the streets within the City of Troy, the availability of pedestrian facilities decreases in the eastern portion of the city. This coincides with varying topography, discontinuation of the street grid, and an increase of single family residential uses. Sidewalks are generally only present along collector and arterial streets and are absent from residential subdivisions. This is largely due to physical and perceived barriers, including the presence of rail lines, vacant former industrial properties and a lack of streets connecting to and along the waterfront. Bicycle and multi-use trails are very limited in the city. The most significant bicycle infrastructure is the Uncle Sam Bikeway located along a former rail right-of-way extending from Middleburgh Street to Northern Drive in Lansingburgh. To help encourage walking and cycling, streets and paths throughout the City of Troy must be safe and comfortable for users and should provide opportunities to easily access shops, services, schools, parks, campuses and places of employment. While new investments in pedestrian and cycling infrastructure has increased in recent years, the City should explore opportunities to create more integrated walking and cycling networks in the city with a particular focus on key assets such as along the waterfront, connecting major parks and public spaces, key destinations and campuses.
The Uncle Sam Bikeway is a 3-mile, paved path along Troy’s old rail track. (Source: randombitsbytes.com) 44
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Many streets outside of downtown lack sidewalks and are unfriendly for pedestrians
Troys downtown is highly walkable.
Complete streets can play an instrumental role in building healthy communities in Troy With the right balance, streets can accommodate both people and vehicles and become destinations and experiences for shopping and strolling, encourage transit use, and allow for neighborhood activities. In 2014, the City of Troy passed a Complete Streets Ordinance, one of the first steps in creating strategies to achieve multi-modal complete streets. The Ordinance provides guidelines for alternative transportation accessibility for transportation projects considered by the city.
Troy’s Complete Street Ordinance was recently ranked as the second strongest complete street policy in the United States by Smart Growth America. To ensure Troy’s streets develop into successful places, the complete streets ordinance should be complemented with effective urban design standards, land use policies and implementation strategies.
A Complete Street in Vancouver, Canada (Source: raisethehammer.org)
Complete Street in Portland, Oregon (Source: dirt.asla.org) MOBILITY
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The Comprehensive Plan creates an opportunity to transform Hoosick Street Hoosick Street functions as both a local city street and a feeder to the regional highway network but serves neither well. The transition between Hoosick Street and the Collar City Bridge over the Hudson River is problematic for drivers as the existing alignment causes confusion for motorists traveling from east to west along Hoosick Street. Especially for firsttime users, motorists often mistakenly continue on Hoosick Street when trying to access the Collar City Bridge or continue on the Collar City Bridge when trying to continue on Hoosick Street. As a local street, it is congested, hard to cross and auto-oriented. The Hoosick Street Corridor Plan was developed in 2004 to provide a transportation vision for the future of Hoosick Street by developing improvements to both land uses along the corridor and the street right-ofway. The Plan envisioned Hoosick Street as a corridor that is both pleasant and safe to traverse by non-vehicular travel modes, while continuing to support traffic circulation: not just a transportation corridor, but a place of social activity and commerce. Specific improvements intended to transition Hoosick Street to a corridor that supports the local, multi-modal transportation user rather than the regional commuter, included: traffic calming measures (raised landscaped medians, street trees, etc.), pedestrian crosswalks and signals, attractive streetscaping, travel lane reductions and other measures. The transformation of Hoosick Street represents an opportunity to connect residents and destinations from one part of the city to the other via a safe and efficient urban and multi-modal corridor.
Today, there are approximately
1,400 off-street parking areas
located within the City of Troy. These parking areas comprise approximately 460 acres,
which makes up nearly 7 percent of the land area of the city. 46
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Hoosick Street is a significant barrier within the city.
The downtown needs a parking management strategy Today, parking areas are concentrated within the flat, lowland area along the Hudson River that is made up of the densest development and traditional street grid. Downtown and South Troy have the most amount of parking. Parking supply in the city varies by location, time, special events and other factors. It is for this reason that many residents have described the current parking condition both positively and negatively. Some residents are concerned about parking availability for residents as well as downtown workers and commercial patrons. Conversely, concerns have been expressed regarding the presence of too much surface parking in relation to the existing urban fabric, and a desire to infill surface lots to support a more walkable community.
Initial assessments indicate that while there is a lot of parking, in particular in the downtown and waterfront areas, the location, access and availability of parking at key times such as events, creates the impression that there is a parking issue in Troy. To address this situation, strategies for parking management that could be considered include: shared parking facilities, flexible parking standards, metering, improved bicycle facilities, signage and way-finding and enforcement. Utilizing a variety of these strategies presents an opportunity for the City to make adjustments to its parking supply that balances the needs of all users. By shifting parking utilization to more strategic locations and implementing shared parking strategies, the City could increase parking revenue, provide greater user satisfaction, and encourage utilization of alternative transportation options.
Recent transportation projects are helping to improve mobility in the city For decades, significant infrastructure investments were made that favored car movement. Today, funding for transportation infrastructure projects has decreased, yet maintenance costs continue to increase. Investment in a multimodal transportation network that includes provisions for public transportation, bicycle and pedestrian infrastructure is necessary to improve mobility for Troy residents. This investment would need to balance cost /feasibility to achieve a convenient, safe and attractive system that also promotes economic development. For example, the Ferry Street, Congress Street and 6th Avenue Master Plan recommended the reopening of 6th Avenue between Congress Street and Ferry Street. As part of this reopening pedestrian improvements were also made to upper and lower Congress Street. The City’s new Complete Streets Zoning Ordinance helped introduce “sharrows” (bicycle road markings that indicate sharing of the lane between bicycles and cars), and sidewalk improvements in South Troy. These transportation infrastructure projects provide a successful precedent for future transportation infrastructure investment in the city.
Along the waterfront, there are a significant number of parking lots (Source: Google)
Like many North American cities, Troy is challenged by its aging infrastructure and a reduced tax base The issue of aging infrastructure is common among urban areas throughout the United States. Infrastructure including roads, bridges, and utilities need regular capital investments to function safely and effectively for users. Roads and bridges are constructed with finite lifespans (typically 25 – 50 years) and utility infrastructure such as sewer, water, electric and gas lines need regular maintenance and upgrades to accommodate contemporary uses. Since the Comprehensive Plan was adopted in 1962, the City of Troy’s population has decreased while infrastructure has been expanded within both the city limits and adjacent suburban areas. This population loss and the corresponding decline in available tax revenue has resulted in deferred maintenance. As a result, pavement conditions on some roads throughout the city are poor and several bridges are classified by the NYSDOT as structurally deficient or functionally obsolete. Currently, the city is addressing aging infrastructure on a reactive basis and must work to develop a strategic approach to maintaining and or replacing the city’s core assets. MOBILITY
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Open Space, Recreation & Culture A city’s open space network, recreation and cultural offerings are important contributors to livability. They provide opportunities for both physical activity, and spiritual and intellectual development which can benefit overall community health. Further, many people and businesses are attracted to and will move to cities that offer a vibrant cultural environment, a diverse range of recreational activities and enjoy an attractive public realm. Not only are these elements important to quality of life, many residents often take great pride in them as distinguishing features of their community.
While the City of Troy offers a significant amount of green space, not all neighborhoods are well served by parks and open spaces Troy is fortunate to have many parkettes, a number of large parks, cemeteries and campuses which function as publically accessible open space. Major public parks include Prospect Park, Frear Park, Knickerbacker Park, Seminary Park, and Riverfront Park.
In fact, open space is one of the largest land uses in Troy,
occupying 16.2% of the city’s total land area.
Many of these open spaces are generous in size and provide opportunities for informal recreation. Some of them, including Frear Park, Knickerbacker Park and Prospect Park provide opportunities for active and programmed recreation. Other notable open spaces include the channelized lower section of the Poestenkill along Canal Ave, and Wynantskill and many would consider the open space elements of RPI’s campus and Hudson Valley College as contributing to the open spaces within the city. Additionally, there are many small local parks or parkettes within the city’s neighborhoods.
A total of 5.6 acres of open space is provided per 1,000 residents excluding institutional open space and cemeteries.
However, most of the large open spaces are located up the hill and serve lower density neighborhoods. Higher density neighborhoods located on the flat lands adjacent to the Hudson, such as Lansingburgh, North Central neighborhood and parts of South Troy, south of Division Street, are underserved by large open spaces. Recent community initiatives resulted in a number of small art park and parkette improvements in North Central and other areas. This is indicative of the importance and community interest in creating better open spaces for community members to gather and socialize. In addition, many of the recreational facilities offered in the larger parks including skating rinks, tennis courts and spray pools are minimally maintained. Currently, the maintenance budgets allow for regular visits to city parks 2-3 times per week with regular mowing and routine maintenance, with extra budget for response-based maintenance to damaged facilities. This has resulted in a decline of facilities in some parks including Prospect Park and has made it more challenging for the city to expand the open space system or explore sustainable solutions to address the aging park infrastructure.
The City needs a comprehensive open space plan that promotes access to parks and optimizes the broader open space network While Troy enjoys a generous set of open spaces and parks, topography, lack of connectivity and few trails limit the enjoyment of these public spaces. Troy’s topography creates a challenge regarding open space accessibility. On average, the city sits 50 feet above the elevation of the river. However, much of Troy is flat land along the Hudson and these lands are separated from the lands up the hill by the steep incline of the Hudson Valley. In order to connect the open spaces of Troy, accessibility needs to be addressed at all elevations. Significant changes in topography have kept the Hudson River and the lower portions of the Poestenkill and Wynantskill from being fully integrated within a connected network of open spaces. Focusing on better connecting and linking open space assets through trail, pathways, cycle-ways and streetscape improvements would improve resident’s access to these resources. Seeking opportunities to create open space ‘lobbies’ at the riverfront, and linking these lobbies through a northsouth streetscapes could provide a linear green connection better linking the neighborhoods to the riverfront.
Parks, Open Spaces and Recreational Facilities In recent years, the Uncle Sam Bikeway has been developed on the decommissioned rail line. While there are plans for more bikeways in Troy, in some cases existing trails are missing key segments. Improving these conditions would help integrate and connect various parts of the city and in some cases, better connect people to distinct environmental features and ecologies such as the Poestenkill and Wynantskill. To celebrate the city and encourage use, bicycle trails should also be developed with interesting stopping points for rest or other passive activity. South Troy is currently lacking a greenway, trail, or bikeway and could benefit from the development of an active green linkage. An open space plan that would consider the City’s parks, public spaces and trails in a comprehensive manner could optimize these spaces and provide strategies for enhancement of existing spaces.
List of Recreational Facilities and Uses in Troy Knickerbacker Park
Frear Park
Prospect Park
112th Street Park
• Baseball Fields • Basketball Courts • Football Fields • Ice Skating Indoor Arena • Ice Skating Outdoor Rink • Playgrounds • Soccer Fields • Swimming Pool • 400 Meters Oval Track • Tennis Courts • Spray Pool
• Golf Course • Hockey Rink in Frear Park • Nature Trails • Pagoda • Playgrounds • Tennis Courts • Spray Pool
• Basketball Courts Handball Courts • Nature Trails • Pavilion • Picnic Areas • Playgrounds • Soccer Fields • Softball Fields • Tennis Courts
• Basketball Courts • Spray Pool • Kinloch Ave Park • Dog Park
Parks and Open Spaces
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Enhanced access and signage could improve the enjoyment and use of Troy’s major parks Larger city-wide parks including Prospect and Frear Park could benefit from greater utilization. Part of the challenge is the perception of safety within large parks which can discourage optimal use. Limited points of entry into Troy’s major parks, Prospect Park for example, make them inconvenient to access for pedestrians and they provide limited obvious and safe connections back to adjacent neighborhoods in the event of an unsafe circumstance. Safety and walkability are also compromised by the absence of walkways for pedestrians once inside the park and often, automobiles and pedestrians share narrow roadways. Because of these conditions, most large park users are reliant on the use of their car to access and enter the park. As a result, these parks are mostly used for structured or organized events such as outdoor sports games, while receiving far less use for informal leisure or recreation.
Creative ideas are needed to animate and define large parks and make them feel safe Many cities with significant topographic changes have funicular railways, or inclined rail cars which become part of the experience of progressing up a steep hill or slope. The historic core of Quebec City and Castle Hill in Budapest are two good examples where funicular railways are part of unique tourism and visitor experience in these cities. One opportunity Troy might consider is introducing a funicular railway from the downtown to Prospect Park. Animating Prospect Park with a funicular and establishing a significant destination at the top of the hill within the park, such as a boutique hotel and conference facility with commanding views over the city. This could better connect and integrate the park into the downtown, enable it to generate revenue for the city, and through greater use, make it feel much more safe and attractive.
Providing convenient access for pedestrians and increased connections to the surrounding communities can make Troy’s parks feel safer with better and more obvious connections back to surrounding neighborhoods. These subtle changes will make these parks more appealing to a wider range of people and thus increase overall usage. Where there are environmental sensitivities or topographical obstacles, low-impact pedestrian-only greenways combined with clear signage indicating park access can be located at various points along adjacent streets, increasing ease of access for local residents.
Signage at the entrance Prospect Park (Source: alloveralbany.com) 50
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A view of the Quebec funicular railway – a prominent central attraction which travels up a steep cliff face. (Source: panoramio.com)
Troy’s got culture Troy is fortunate to have a number of cultural assets and destinations including visual and performing art facilities and a significant collection of historic buildings and districts. The city also accommodates a number of regular festivals and events that draw people in from across the region and form part of its rich cultural identity. The cluster of Farmer’s Market, restaurants and cafes in the downtown contributes to the cultural offering in Troy. The Central Troy Historic District is recognized for its significant historic buildings and wide range of architectural styles. Since the early 1970s, historic resources in the City have been placed on the National and State Registers of Historic Places. These include buildings, structures, districts, objects, and sites determined by the National Park Service and the New York State Office of Parks, Recreation, and Historic Preservation (OPRHP) as significant in the history, architecture, and culture of New York and the nation. In 1976, Troy City Council created the Historic District and Landmarks Review Commission as a means to protect, enhance and preserve Troy’s historic and/ or architectural districts and landmarks. Local landmarks in the city include; The Burden Iron Company Office Building, The Gasholder House (Troy Gas Light Company) and the Herman Melville House. But there is more to Troy’s cultural scene than important architectural and heritage structures. The EMPAC building at RPI is a state-of-the-art 220,000 square foot performance venue that features innovation in information and media technology showcasing the convergence of art, science and technology. The monthly Troy Night Out arts and culture event regularly draws over 1,000 locals and visitors out onto the streets of the city’s downtown. These types of events reinforce a strong community identity, add to the enjoyment of living and working in Troy, and work to improve the perception of Troy as a culturally alive and vibrant city. This in turn will enhance Troy’s ability to attract future workers and population. Continuing to leverage and build upon Troy’s growing arts and culture scene is a smart marketing and branding theme and ties directly into the growth of the creative economy.
In Troy, there are approximately
35 state and national registered historic resources
The cultivation of creative industries will help drive increased tourism and the attraction of new residents and businesses to the city. Troy has a significant number of creative industries including the Tech Valley Center of Gravity, the Experimental Media and Performing Arts Center (EMPAC) at RPI, as well as the many creative-industry focused programs also available at RPI. Given the location of these creative sectors in or nearby the downtown, combined with the significant legacy of urban and historic buildings, the downtown serves as a natural location for fostering a cultural ‘hub’ aimed at attracting individuals working in the technology and creative sectors. This could be promoted as part of Troy’s brand for attracting future population and employment growth, and this will complement tourism development in the city. Mapping and cataloging the cultural assets found within Troy, can be very useful in understanding and making new connections between different individuals who could benefit from creative collaboration, but it can also begin to celebrate and market Troy’s creative industries and culture to attract tourism and job growth.
The Burden Iron Works building is a romanesque-revival building constructed between 1881-82, and is one of the many state and national register-listed buildings in Troy. (Source: upstateearth) OPEN SPACE, RECREATION & CULTURE
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The Environment Troy is endowed with a spectacular natural environment– from magnificent gorges, an expansive riverfront, to a wide array of mature open spaces. Troy’s historical development is directly tied to its natural environment and Troy’s residents continue to value these assets within their city. In order to protect the natural environment however, the city needs to consider a range of sustainable city building strategies such as growing the urban canopy, improving the health of the river ecosystems, introducing green infrastructure, and conservation measures in development.
Combined Sewer Overflows (CSOs) are a significant contributor to poor water quality in the Hudson River. (Source: richmondgov.com)
The city has a range of environmental features, many of which are associated with aquatic systems. The seven-mile long Hudson River waterfront played a critical role in Troy’s growth and evolution, and continues to provide opportunities for economic and recreational activities. Other significant ponds and streams within the city include the Poestenkill, Wynantskill, Paensickill, Piscawenkill, Wright Lake, Bradley Lake and the Vander Hyden Reservoir. Along the Troy waterfront, there are also tidal and freshwater wetlands that are regulated by the State, including tidal wetlands that extend from the southern border of the City, to the Troy Dam, and a freshwater wetland north of Campbell Avenue, east of Delaware Avenue and Burden Environmental Park, which encompasses Burden Pond.
These environmental systems have been impacted by industrial and urban development Pollutants from various urban and industrial operations were discharged into the waterways degrading water quality, eroding banks and significantly reducing habitat for wildlife. For the purposes of water transportation, the majority of the Hudson River bank south of the Collar City Bridge was also channelized, interrupting or removing natural ecosystems. As a result, sediment from the Hudson River is no longer deposited on the banks, and limited habitat is available for fish and wildlife. 52
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Troy has several vacant sites throughout the city.
Though the City’s economy is no longer dominated by industrial uses along its waterfronts, pollution point sources are still located along the Hudson River. These include industrial discharges and sewage discharges primarily from Combined Sewer Overflows (CSOs). As part of a group of Capital Region communities (known as the “Albany Pool”), Troy is in the process of addressing CSOs through a Long Term Control Plan under a consent order with the NYSDEC. This will involve upgrades to wastewater treatment infrastructure to capture and treat 85% of the CSO volume in the next 10-15 years.
Troy is threatened by flooding risks that affect parcels in low-lying areas of the city Though the edges of the Hudson River have been most conducive to the city’s development, these areas also prone to significant flooding risks.
Flooding is one of the most significant issues facing Troy as a substantial portion of the developed city is located within the 100-year floodplain. The most recent Flood Insurance Rate Maps from 1980 show that the 100-year and 500-year floodplain areas are located along the Hudson River flat land area and the Wynantskill and Poestenkill. On average, the floodplain extends approximately 1,000 feet east from the edge of the river in Lansingburgh north of 113th Street. As a result, the city has experienced two major floods in the past century, in 1913 and 1936, when the water level rose 28 feet above regular levels. There was another flood in 1994 that caused significant damage to properties. The city, working with state and federal agencies, needs to implement flood protection strategies, as some of the most important areas of the city, with respect to its economy and character, are located within the floodplain.
Through the introduction of a linked open space system, including public spaces and green corridors, Troy can begin to implement stormwater and flood management strategies. As the entire city slopes towards the river, there are opportunities to create open spaces designed primarily for stormwater management, green infrastructure, and habitat that may double for educational opportunities for the city to teach its residents about the importance of water quality in promoting ecology and a healthy river. Since the burden of storm water must pass through the lowlands of Troy, there is the potential of opening canals and piped storm water and the creation of more sustainable practices of green infrastructure. Installation of street trees and bio retention pits in the gridded streets would also improve the city’s tree canopy and reduce issues of flooding and overflow, all while improving the health of the Hudson River.
Floodplains and Brownfields Along the Waterfront
ENVIRONMENT
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Troy is challenged by a significant number of brownfields As New York State and Troy developed during the 19th and 20th centuries, their industrial sites often released significant pollutants on sites, not just in water bodies, over a significant number of years. Though there are fewer industrial and manufacturing operations and many former industrial sites are now vacant or underutilized, they are still environmentally contaminated. Such sites are called brownfields. In Troy, these are generally located along the Hudson River, Poestenkill and Wynantskill in South Troy. They include former industrial properties and gasoline and service stations as well as closed landfills. There are approximately 18 brownfield sites, that are part of the Environmental Restoration Program (ERP), the State Superfund Program, or Voluntary Cleanup Program (VCP). As a result of past industrial land uses, there are likely additional brownfield sites that have not yet been identified through environmental testing. Brownfield remediation and reinvestment has been slow because no funding has been secured to remediate contaminated sites and any funding available relies on state and federal programs that have been defunded and underfunded.
Brownfield sites not only impact the quality of Troy’s environment but also have become a significant constraint for redevelopment.
Sites appearing contaminated are located throughout the city. 54
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A need to anticipate changes in climate patterns to minimize future risks and impact In addition to the negative environmental effects of Troy’s industrial legacy, is the threat the city faces due to global climate change.
The Comprehensive Plan needs to anticipate changes in climate patterns and identify resiliency strategies to minimize future risks and impacts. The potential impacts include housing security as a result of sea-level rise and increased flood risks that can affect local businesses and industries. Additionally, as weather patterns and weather events such as severe storms change and increase, city infrastructure systems may not be able to accommodate such conditions. In particular, it is estimated that the City of Troy could face over 3 feet of sea-level rise on the tidal Hudson River due to global climate change by 2080. While climate change is primarily an imposed global challenge a number of local activities also contribute to climate change. These activities typically include low density development patterns, reliance on the automobile as the primary form of transportation, solid waste generation with limited diversion rates and increased energy consumption with reliance on fossil fuels.
Flooding of the Hudson River bank after Hurricane Irene. (Source: alloveralbany.com)
There is significant tree cover in Troy’s downtown.
Troy’s urban canopy is limited in the central area The areas of the city with the steepest slopes are also the most vegetated, and include Frear Park, Prospect Park, Oakwood Cemetery, Wynantskill and the Poestenkill. There isn’t much natural vegetation within the developed flat lands of Troy, and Lansingburgh and South Troy are especially sparse when it comes to the number of street trees. There is an opportunity to extend the urban canopy down the slopes and along streets and parks within the city’s neighborhoods and central areas. Trees offer a beautiful, cost effective way to purify air and provide shade, thereby decreasing heat island effects and reducing demand for electricity for cooling, and have been demonstrated to increase real estate values. Healthy urban canopies correlate with human health and have been associated with lower rates of asthma and respiratory problems. Trees also improve soil quality, provide biological corridors and habitat, increase biodiversity, store carbon and can reduce infrastructure costs by absorbing storm water. By extending the upland tree canopy through street trees and increasing it in open spaces, much could be added to the urban landscape in terms of environmental sustainability.
The Poestenkill is a significant water resource in Troy that shaped its historical development (Source: Wikipedia/UpstateNYer)
The Comprehensive Plan needs to interpret a multi-faceted environmental strategy, including a set of environmental sustainability goals. Building on the assets of a spectacular natural environment, the Comprehensive Plan should include the creation of an environmental strategy that outlines goals and targets. This would help to implement a vision for the future of Troy where the environment can be enjoyed by current residents without compromising the ability of future generations to enjoy Troy’s parks, open spaces, waterfront and gorges.
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The Downtown The role of downtowns in contemporary cities is evolving quickly. Historically considered a city’s “central business district” housing a range of employment, civic and public administration functions, today, our understanding of the role and function of a downtown is much more sophisticated. The character, quality and offerings of a downtown play a significant role in advancing a city’s overall competitiveness, its ability to attract employment and population growth and increase visitation and tourism development. As our society continues to shift toward a more knowledge-oriented economy, workers and employers are attracted to cities that offer not only good jobs but also a vital and vibrant urban environment and this is most obvious in a city’s center or downtown. A vibrant downtown is critical to the overall health of a city. There will always be more vitality, vibrancy, cultural actives, economic opportunity, wealth creation, cultural expression, visitation, tourism potential, architectural interest, creativity and innovation in a city’s downtown, than anywhere else. Troy is fortunate to have a downtown which is on the rise and seeing signs of increased business development and visitation. Key to Troy’s future is leveraging the character and quality of its downtown as a driver for future job creation and economic development. The downtown is a pivotal asset and its success and development can lead to benefits across the entire city including revitalization of Troy’s neighborhoods and waterfront. In turn, job creation in downtown will support increased demand for housing in Troy’s neighborhoods.
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Troy’s Farmer’s Market draws shoppers from around the Capital Region
Painting the sidewalks during one of Troy’s many downtown events (Source: babyaspirinyears.com)
Residents and visitors enjoying Riverfront Park. (Source: apartmentsatcountrygardens.com)
The downtown hosts festivals such as the Victorian Stroll (Source: lucasconfectionary.wordpress.com)
Riverfront Park provides recreational opportunities close to downtown. (Source: John Carl D’Annibale/Times Union)
Troy’s downtown houses many restaurants. (Source: indulgy.com)
Residents and visitors in Monument Square during the Farmer’s Market. (Source: Michael P./ Farrell/Times Union)
The downtown attracts many visitors to downtown.
Troy’s popular restaurants draw residents and visitors to the downtown. (Source: lucasconfectionary.wordpress.com)
THE DOWNTOWN
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Troy’s downtown is a composite result of many layers including growth, decline stagnation and revitalization, a cycle that continues today Downtown Troy is remarkable for many reasons. Its walkability, architectural heritage, human scale, urban character and quality, and the range of medium and small scale enterprises and businesses make Troy’s downtown a very interesting and rich environment in which to shop, dine, entertain visitors or attend one of many cultural offerings. Its urbanity, visual richness, compactness, and diversity are among its greatest strengths, and these characteristics completely distinguish Troy’s downtown from competing suburban environments. It is these layers and the architectural and built form legacy that the city must leverage to strengthen its economy and grow its population base. Troy’s downtown, however, is not all spectacular. Industrial and population decline in the 20th century, and the development of competing suburban shopping alternatives brought the closure of a number of stores in the downtown through the late 60s and 70s. Additionally, initiatives such as the 1962 Comprehensive Plan, Highway 7 improvement projects, and the actions of the urban renewal agency, resulted in the demolition of many downtown buildings. This resulted in large gaps and holes in the urban fabric particularly in the north end of downtown, and along 6th Avenue, which in some cases were filled in with projects that did not fit the character of the rest of downtown, such as Uncle Sam’s Atrium and brutalist parking structures. The community ultimately rallied against the loss of its heritage fabric and created a number of Historic Districts which have preserved large parts of the downtown and other historic neighborhoods from similar fate. To fully leverage and capture the value of downtown, the city must reinforce and build upon the best of its downtown, embrace it as truly unique urban architectural legacy, and work to repair the holes in the fabric and ultimately rework the suburban projects which undermine its character and quality.
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Historic buildings such as the Troy Library are located throughout the downtown (Source: Wikimedia)
Uncle Sam Atrium (Google Inc.)
Downtown Urban Structure The downtown district is a dense area that is mostly composed of mixed and commercial use areas. River Street and Broadway are the major retail streets. They contain the main commercial activity in the city, in the form of boutiques and restaurants, and are the location of many of the city’s festivals and fairs. Residential uses are located in the northern and southern portions of the downtown, with commercial blocks located in the central area. Significant parcels of land also contain institutional buildings, which house Russell Sage College, several churches, RPI buildings, and government buildings such as the county courthouse. The effects of urban renewal and the development of highway infrastructure have created large gaps in the built fabric of the city. There are also many vacant and underutilized buildings and sites within the downtown and along the water’s edge.
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Troy’s downtown should evolve as a more complete, mixed-use center with amenities that can support downtown living Troy’s downtown has become much more vibrant in recent years supported by new cultural destinations, retail and a number of new restaurants. New developments such as the refurbishment of the Quakenbush building which will become the new home for the Center of Gravity will bring new entrepreneurs and innovation to support an increasingly hip vibe in the downtown. Across the nation, many people are choosing to live downtown to take advantage of the amenities and diverse experiences the center of the city can offer. Troy should establish a target population for the downtown and work to encourage downtown living so that the downtown can evolve as a healthy active neighborhood.
More people living in the downtown would make it safer, more vibrant at all hours, and would better position the city to attract continued investment, job and population growth. Over time, and through population growth, the downtown could attract neighborhood support amenities that are not there today, like a small scale grocery store.
Troy;s downtown has become more vibrant in recent years. 60
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Troy’s downtown can evolve as a center for the creative economy within the region There are a wide range of occupations in the downtown including arts and culture, business and finance, government, sales and service and trades. With Rensselaer Polytechnic Institute (RPI) and Russell Sage College adjacent to the downtown core, there is a young and vibrant population that is naturally drawn to the downtown making it interesting and lively. There are an increasing number of jobs in the arts, entertainment and professional, scientific and technical service sectors that could be drawn to the downtown because people in these industries are looking to work in environments that offer interesting and rich experiences such as those found in downtown Troy.
Branding the downtown as the center of the creative economy, with a focus on innovation, technology and the maker movement could significantly help to grow interest and jobs in these sectors. Developing creative strategies to attract this type of employment growth and supporting it though incentives and other strategies will be important factors in retaining a young well educated population to contribute to Troy’s future success.
There are many jobs which support the creative economy. (Source: Wikipedia)
Neighborhoods that surround the downtown are important to its long term success and vice versa The city’s downtown and the neighborhoods that surround it have important roles to play in the future prosperity of Troy. Residents surrounding the downtown generally support the use of downtown businesses and attractions and many of them work downtown and walk, use transit or ride a bike to get to work. As the downtown improves and sees business and population growth, some of this growth and investment will naturally come to core neighborhoods which surround the downtown. Targeted neighborhood infill and reinvestment strategies can further strengthen core neighborhoods. Collectively, reinvestment in the downtown and core neighborhoods will extend many benefits to the entire city.
Supporting a sustainable downtown core The neighborhoods surrounding the downtown are important to its success (Source: Wikimedia)
Troy already has a healthy inventory of retail stores that could be complemented by more employment and residential opportunities. (Source: apartments.com)
By targeting residential and employment growth in the downtown and creating new attractive places through careful infill development that can happily coexist with Troy’s legacy of heritage buildings, the downtown can be enhanced as a more sustainable dynamic center for the City. This can create an improved ‘live-work’ balance that supports transit use, as well as walking and cycling to work. At the same time, the frayed and ragged edges of the downtown can be repaired offering an enhanced setting for a range of cultural events and providing a more complete and intact experience that is attractive to newcomers and visitors. This will provide an improved quality of life and opportunity for residents of Troy. As part of the Comprehensive Plan process, a Downtown Economic Development Strategy will be prepared to fully capture opportunities to improve the downtown, and ensure it benefits the larger city. This process will examine the role of the marina and other attractions which are here today, as well as examine elements that are missing and should be developed to better support the city’s economic growth.
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The Comprehensive Plan process creates an opportunity to develop the right policy tools to effectively shape Downtown Across North America, cities are developing new planning and policy tools to better direct investment to strengthen and leverage important city assets, including downtowns. The City of Troy needs to encourage significant investment in adaptive reuse projects which can restore and repurpose many valuable heritage structures. Existing and expanded heritage tax credits and incentives could be utilized to advance heritage restoration. Many of Troy’s small and vacant class ‘C’ office buildings would potentially be more suited to residential conversions to attract a greater residential population, which would enliven the downtown, and provide additional voices to champion downtown’s continued revitalization. The Development of a municipal parking strategy for the downtown, could also support private sector redevelopment projects, and increase interest in downtown re-investment. A clear set of built form policies that articulate how to successfully add a new building to Troy’s downtown in ways that respect its built form legacy are greatly needed. An emphasis on the character and design quality of the public realm, streetscapes, downtown parks and alleyways can also help to strengthen the attractiveness and draw of downtown.
The pursuit of a UNESCO World Heritage Site Designation for downtown troy and its broader environs would be a significant game changer. Troy’s urban fabric demonstrates an outstanding example of an architectural ensemble which illustrates a significant stage in human history, and would certainly qualify for such designation. This would significantly elevate Troy’s status within the country, differentiate it from other heritage communities, and provide a significant boost in terms of expanding economic development opportunities and tourism. With easy access to several highways, and proximity to the historic Erie Canal, Troy has the potential to build on its heritage and current events and festivals in the downtown to become a cultural and tourism hub from which to explore the region. 62
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The city of Budapest has been designated a UNESCO World Heritage Site because its architecture and urban fabric demonstrates the evolution of a city in Central Europe. (Source: Wikimedia)
The historic resources in downtown include: 3. Cannon Building
17. US Post Office-Troy
4. McCarthy Building
20. Troy Savings Bank and Music Hall
5. National State Bank Building 6. W.& L.E.Gurley Building 7. Troy Gas Company 9. Church of the Holy Cross 10. Hart-Cluett Mansion 11. Old Troy Hospital 12. Troy Public Library 15. Proctor’s Theatre 16. St. Paul’s Episcopal Church
22. Winslow Chemical Laboratory 23. Public School No. 10 25. Illium Building 27. Pumpkin House 29. J.C. Osgood Firehouse 31. Fire Alarm Telegraph and Police Signaling Building 40. Troy Waste Manufacturing Co. Building
Historic Resources in the Downtown
Troy’s Frear Cash Bazaar. (Source: Flickr/Joseph)
Proctor’s Theatre. (Source: Wikipedia)
Illium Building. (Source: wikigogo.com) THE DOWNTOWN
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Waterfront Located on the eastern banks of the Hudson River, the City of Troy has seven miles of waterfront. Troy’s early development and success were directly related to its ability to harness the power of water, including the Poestenkill and Wynantskill, which powered early industrial and manufacturing growth. The use of the Hudson River and the Erie Canal as water highways, enabled the city to evolve as an important trans-shipment point for a range of goods and this connected the city to growing markets to the east, west and south enabling it to grow and prosper. In the 20th century, however, changes in transportation and shipping, communication and information technology, and the emergence of a globalized economy, saw the decline in manufacturing in many American cities, including Troy. Today, Troy’s waterfront is made up of many different environments reflecting the city’s particular evolution. The decline of industry has left behind many derelict and underutilized industrial areas south of downtown. Some of these areas are currently home to active industry and business, however, much of this land is considered brownfield and is challenged by the real or perceived presence of environmental contamination. Troy’s downtown is situated on the river, but generally turns its back to the waterfront and a high quality continuous pedestrian
Troy’s spectacular waterfront. 64
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experience or promenade along the length of the downtown is missing. Parts of the waterfront north of the historic navigable portions of the river, north of the Troy Lock and Dam, were developed primarily for residential use, and do not provide many opportunities to access the waterfront. Across North America, many post-industrial cities are unlocking the potential of their waterfronts in order to bring new energy, development and host of new activities which can reinvigorate the city and local economy. This includes re-imaging the kinds of uses and experiences that can be provided in differing waterfront settings and considering how these environments can successfully contribute to an enhanced quality of life and experience in the city. Along the seven miles of waterfront, Troy has a significant potential to build a distinct range of waterfront places and opportunities that can strengthen the economy, accommodate jobs, deliver opportunities for neighborhood revitalization, and enable the waterfront to again play a significant role in Troy’s growth and prosperity.
Troy’s Waterfront Uses Along the seven miles of the Hudson River there are a range of uses, including neighborhoods, employment uses and recreational opportunities.
A salt pile along the waterfront (Source: Eric Anderson_Times Union)
Riverfront Park is one of the few rustic spaces along Troy’s waterfront.
State prison along the river’s edge.
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A number of planning and environmental challenges complicate the City’s ability to attract business and development to the industrial waterfront Troy’s industrial waterfront is generally located between the Congress Street Bridge, between Ferry Street and the Menands Bridge. This area was home to numerous steel and foundry manufacturing companies, as well as enterprises moving and storing water-based goods. This industrial waterfront includes 2 miles of channelized sea or dock wall, which includes the lower portions of the Poestenkill and Wynantskill. The Hudson River dock wall was historically dredged to remove sediments, enabling maritime ships immediate access to the wall for ease of loading and unloading. Today, the industrial waterfront contains many abandoned, ill-maintained and low value buildings, underutilized sites and some active businesses. Approximately 36 percent of the industrial parcels fronting the river are comprised of vacant or underutilized sites. Active uses represent 64 % of the frontage, and there are only a few businesses that require dock wall frontage as their business operation includes land to marine operations and shipping.
The seawall along the Hudson.
The lack of a north-south connective roadway infrastructure within the industrial waterfront forces truck delivery and movement onto the local residential street system and diminishes residents’ ability to peacefully enjoy their neighborhood. With the decline of industrial uses, dredging along the dock wall has not been maintained, undermining the ability to attract future water dependent uses. Additionally, the state of ‘good repair’ or condition of the dock wall is unknown, which is a significant locational risk for potential water dependent users. River bank erosion, poor visual quality of the area, the presence of brownfields, and the degradation of water quality due to the accumulation of pollutants and polluted sediments are all resultant effects of Troy’s industrial past, and these conditions hamper the city’s ability to attract viable uses to the area and will take time to address.
26% of the river frontage is occupied by parking lots
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Vacant industrial buildings are located along the waterfront.
There are a number of businesses operating on Troy’s industrial waterfront. These include: • CD Perry is a marine construction company that employs between 50 to 100 people at different job sites; • Servidone Construction company fabricates steel for the ongoing Patroon Island Bridge reconstruction; • Lehigh Cement and Warren Fane trucking, which loads cement from truck to barge over the Troy dock for shipments to the Brooklyn Navy Yard; • Troy Slag Company, an affiliate of CD Perry, trans-loads much of their equipment over the dock for work in the Ports of Albany and the Champlain and Erie Canals; • Fane Asphalt, a distributor of rock salt.
Proactive strategies are needed to unlock the waterfront’s potential To date, the city has undertaken a number of initiatives to address river bank erosion issues as well as water quality issues. These have included inspecting and maintaining all Class C dams, upgrading sludge collection equipment, as well as monitoring and analyzing sewer overflows. Additionally, in the face of traditional industrial decline, the city has undertaken two studies aimed at diversifying the types of uses and economic activities occurring along the industrial waterfront. The Economic Development Strategy for Neighborhoods and the Waterfront, 2000, recommended the restructuring of Troy’s waterfront from traditional manufacturing and heavy industry toward attracting knowledge based sectors such as technology, innovation, advanced manufacturing, commercial uses and recreational uses. The study recognized the need to focus on the redevelopment of existing sites to remediate brownfield conditions and that relocation of certain uses further south could have many positive benefits aimed at improving the visual appearance of the area. In 2003, the city undertook the South Troy Working Waterfront Plan which built on the recommendations of the Economic Development Strategy and outlined the potential benefits of redeveloping large areas of vacant waterfront lands to transform the narrow corridor and better respond to changes in the economy. The plan created three distinct waterfront districts each with different opportunities and characteristics to accommodate a broad range of future uses and diversify the economic base. The Waterfront Mixed-Use District in the northern portion of South Troy envisioned an urban mixed use waterfront as an extension of the downtown. The Waterfront Commercial District in central South Troy, envisioned technology and innovation uses in a business park setting and the Waterfront Trade District in the southern portion of South Troy was the location for traditional industrial use as well as recycling and logistics and waste to energy facilities.
An industrial building along the waterfront. WATERFRONT
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Despite specific action item recommendations within the South Troy Working Waterfront Plan, its only implementation mechanism was the South Troy Waterfront Zoning Ordinance which focused on guiding future uses according to the three use districts. More proactive strategies are needed to bring forward the working waterfront vision, including infrastructure development, relocations of existing uses to areas where the use is more suited, and the consideration of a range of redevelopment and incentive programs and brownfield tax credits.
The state prision along the waterfront.
South Troy Waterfront Districts
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The downtown waterfront largely turns its back on the waterfront Remarkably, there are very few opportunities to experience the waterfront within the downtown, and waterfront places are somewhat disappointing. Unlike many waterfront cities, Troy’s downtown looks inward on itself and not outwardly toward the water. In many areas in the downtown, along River Street for example, one can be just a few feet from the waterfront and not know it. With very few exceptions, notably at Riverfront Park, Troy’s waterfront is not very visible or apparent within the downtown, and the downtown turns its back to the river. This is clearly obvious considering the vast difference between the character and quality of building facades that front River Street, which are splendidly crafted and architecturally rich, compared to the utilitarian brick facades which face the river. This again reflects the fact that the downtown waterfront was historically a messy working waterfront and there was no need to create attractive waterfront building facades amidst a loud, dirty and odorous working environment. Additionally, in a number of locations, parking lots abut the waterfront and reduce the attractiveness of both the waterfront and the uses along it. Where one would expect to see a beautiful well-landscaped waterfront pedestrian promenade with many opportunities to sit and enjoy the waterfront, there are chain link fences, parking structures and asphalt pathways which do not convey a sense that the city is connected to or loves its waterfront.
Buildings along the downtown waterfront turn their backs on this natural asset and amenity, above and below.
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The waterfront downtown has significant potential. It is an untapped and under exploited asset that needs careful attention There are a range of physical improvements that can make the waterfront a much more important and meaningful place in the downtown. The reinvestment in Riverfront Park is an important step in creating gathering places along Troy’s downtown that can bring new energy and vitality to the core through ongoing programing, events and festivals. The development of a waterfront trail or promenade should enhance opportunities to be near or at the riverfront, and, overtime, parking lots should be transformed to create new mixed-use, tax generating uses that can enliven the downtown, and take advantage of high value waterfront lands and views. Troy also has the opportunity to introduce additional recreational, entertainment and tourism uses to strengthen the waterfront as a focus for recreation, leisure, and social interaction. Making improvements to the Troy Downtown Marina could be an initial step in reinvigorating Troy’s position as a waterfront city and a gateway to the Erie Canal for recreational boating and tourism. The marina could be expanded to accommodate both recreational and commercial vessels, and Troy’s waterfront could evolve as an important service center for transient boaters using the Erie Canal and Hudson River. Focusing on inviting recreational boaters into the city, to experience more of the waterfront while providing access to a range of hospitality and cultural amenities within the downtown will help to strengthen the core of the city and reconnect Troy’s citizens to a reinvigorated waterfront.
Troy’s waterfront can provide more recreational resources (Source: edsaplan.com) 70
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An active waterfront in Portland (Source: Wikimedia)
The lively waterfront in Owensboro, Kentucky. (Source: edsaplan.org)
The northern waterfront could have an important role in neighborhood and community revitalization North of the downtown, much of the waterfront is occupied with private residential uses and there are few opportunities to experience the waterfront. In North Central and Lansingburgh, many streets and sidewalks do not extend all the way to the river limiting public access to the river. In conjunction with the Land Bank, there are opportunities to explore the potential for the acquisition of vacant and abandoned waterfront properties, and through redevelopment, create projects that can fuel neighborhood reinvestment and community renewal while creating new opportunities to experience the waterfront.
Community revitalization projects can be linked to other community areas through investments in streetscaping helping to activate a district, not just a property or two. Waterfront investment projects can also seek to explore the introduction of new water-based activities such as boating, canoeing, and kayaking that can be used by residents and visitors to the city. Commercial uses could also be considered in revitalization projects to better provide day-to-day necessities and create local employment opportunities. Small-scale commercial operations may include restaurants and the rental or sale of water-based materials or goods for fishing, canoeing, or kayaking. Strategically linking waterfront revitalization projects through additional streetscaping and trail development could also create a more attractive and informal riverfront trail which could better provide access to waterfront destinations while increasing connectivity between neighborhoods and the water’s edge.
Many streets terminate at the waterfront.
A plan for the waterfront in Lansingburgh from the Lansingburgh Village Study. WATERFRONT
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Opportunities to enhance water recreation and boating activity will animate the waterfront There are a number of water-based recreational and commercial uses along Troy’s waterfront. These include: • The Troy Motor Boat and Canoe Club, located at 121st Street and 1st Avenue; • The 123rd Street Boat Launch, located on the waterfront in Lansingburgh north of the Troy Motor Boat and Canoe Club, which is used for fishing boats and kayakers, and also offering access to the river for land-based fishing; • The Troy Downtown Marina, a full service dock located at the foot of Jacob Street within a short walk of Troy’s city center; • The Captain J.P. Cruise Line docks at the intersection of State Street and Front Street, offering cruises throughout the summer months along the Hudson River; • The Madison Fishing Pier at the foot of Madison Street in South Troy, allowing fishing access to Hudson, with plans by the City to add a kayak and canoe launch. Despite the existence of several recreational opportunities along Troy’s waterfront, the City should expand its offering in order to attract both residents and visitors to the waterfront
Troy’s marina and fishing pier could provide more recreational and tourism opportunities for the city (Source: troyny.gov)
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Troy’s waterfront should be developed with a strong focus on the public realm The creation of a set of urban design guidelines will ensure that waterfront places and destinations will be developed with high quality buildings, open spaces and infrastructure that can respect the city’s architectural legacy and deliver projects that are attractive, urban and will stand the test of time. Currently, only the South Troy waterfront in South Troy is subject to development criteria through designation as part of the Waterfront Overlay District. This overlay, however, does not specify how buildings, public spaces and streets should be developed to best contribute to the public interest and result in a well-designed physical environment. The Comprehensive Plan creates an opportunity to explore that types of policy and zoning that can successfully deliver high-quality built environments and create a beautiful, accessible, sustainable, and enjoyable waterfront of the future. The city needs to identify priority locations to acquire and assemble further land for new public parks and open spaces in addition to Riverfront Park. The locations should be selected based on representing the best opportunities for creating a high-quality and easily accessible public space. These lands may already be in public ownership, or may need to be acquired. By identifying these locations, the strategy could employ a long-term approach to gradually purchase and secure land, and to also make certain that any surrounding private development is compatible and contextual to future plans for the public space. Once sites have been identified, there is the need create a series of new high quality and welldesigned public spaces, strategically located to both leverage the benefits of the surrounding area and encourage further revitalization. These spaces may include parks and parkettes, boat launches, pedestrian plazas, and other such publically accessible spaces.
Strong public realm along Vancouver’s waterfront (Source: lmnarchitects.com)
Public realm elements at the Georgetown waterfront park in Washington, DC (Source: Wikimedia)
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SOURCES The following reports and articles were consulted to prepare this document. While this is not a comprehensive list of all sources, it serves to highlight many of the primary materials reviewed and consulted as part of the development of this document. American Planning Association. Investing in Place for Economic Growth and Competiveness, a Research Summary. May 2014. Cadman, Klinger & Droste and Candeub, Fleissig & Associates. Troy Master Plan. 1962. Camoin Associates in partnership with SUNY Albany. Economic Impact Report-East Region Case Study. 2010. Capital District Regional Planning Commission. 2012. Capital District Regional Planning Commission. City of Troy Strategic Action Plan. 1995. Capital Region Economic Development Council. 2013 Progress Report: The Tech Valley Advancing. 2013. Capital Region Economic Development Council. Collaborating to Strengthen our Economic Ecosystem. 2012. Chung-Wha Hong. To End Poverty among Immigrants, Address Language Barriers. Gotham Gazette. September 25, 2006. City of Troy, New York. Local Historic District Designations Map. 2004. Dan D’Ambrosio. GlobalFoundries: Essex fab open for ‘foreseeable future.’ Burlington Free Press. October 2014. Debbie Mukamal. Confronting the Employment Barriers of Criminal Records: Effective Legal and Practical Strategies. Journal of Poverty Law and Policy. 597: Jan-Feb. 2000. Don Rittner. Images of America: Troy. 1998. Don Rittner. Remembering Troy: Heritage on the Hudson. 2008. Don Rittner. Troy. 2007. Don Rittner. Troy: A Collar City History. 2002. Fraser, Glatting et al.,& URS. Lansingburgh Village Study: Final Master Plan. 2004. Greenpoint Manufacturing and Design Center. <www.gmdconline.org/about-us> 2013. Accessed March 2015. Healthy Capital District Initiative. 2013 Community Health Needs Assessment: A Compendiun of Public Health Data for Albany, Rensselaer and Schenectady Counties. 2013. IBM News Release: IBM Research to Lead Company’s Advanced Computer Chip R&D at SUNY Polytechnic Institute. College of Nanoscale Science and Engineering. January 2015. Jason Fisher and Jeremey Reiss. Closing the Skills Gap: A Blueprint for Preparing New York City’s Workforce to Meet the Evolving Needs of Employers. Center for an Urban Future and Community Service Society. January 2010.
John L. Crompton. Impact of Parks and Open Space on Property Values and the Property Tax Base. National Recreation and Park Association. 2001. Katherine Lucas McKay. Innovations in Microbusiness: Enhancing the Financial Security of Low-Income Entrepreneurs. Corporation for Enterprise Development. March 2014. Kenneth C. Crowe II. Troy Planning Commission gets Monument Square Plans, Times Union. February 12, 2015. Lauren Halligan. Ribbon Cutting marks official start of renovations to Tech Valley Center of Gravity’s future home, The Record. May 28, 2014. Management Analysis, Incorporated. A Study of the Torpedo Factory Art Center. February 2010. Marcia Perritt. Arts-based Community & Economic Redevelopment: Artist Relocation Programs. Mark Byrnes. Bethlehem Steel’s Redevelopment: Winners and Losers in Public-Private Partnerships. CityLab. January 2013 Mark Foggin. Off the CUF: Recipe for Growth. Center for an Urban Future. June 2008. Mt. Auburn Associates & Regional Alliances for a Creative Economy. Captivate: The Capital Region’s Creative Economy. 2014 Patricia McGrath. Hedley District. 2015. Program on Applied Demographics. Cornell University. 2014. River Street Planning and Development. South Troy Working Waterfront Revitalization Plan. 2013. River Street Planning. City of Troy Master Plan: Community Profile/Existing Conditions Report. 2003. RKG Associates Inc. Economic Development Strategy for the Neighborhoods and Waterfront. 2000. Saratoga Associates. Hoosick Street Phase II Corridor Plan. 2004. The Economic Impact of Tourism in New York: Capital - Saratoga Focus. Tourism Economics. 2011. Thomas Phelan. The Hudson Mohawk Gateway: An Illustrated History. 1985. Troy Downtown Collaborative Inc. Office and Parking Assessment. 2003. UNESCO (2010). Benefits of Ratification. 2015. United Group. Congress, Ferry & 8th Street Corridor Mixed-Use Initiative: Conceptual Master Plan. 2006. United Nations Educational, Scientific and Cultural Organisation. Operational Guidelines for the Implementation of the World Heritage Convention. 2013.