Report on Highlands

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

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Community Issues

Sample Itinerary

The Exchange Team

The Exchange Team Report

Heritage Resources	Heritage Identity	Heritage Interpretation and Education
Main Street Revitalization	General Observations	Physical Planning and Design
Tourism	Land Use Development	Making Things Happen
Organization and Funding	Community Involvement and Unity	Government Efficiency

Community Description

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

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

Community Issues [Top]

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

1. Historic Resources

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

2. Main Street Revitalization

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

3. Tourism

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

4. Making Things Happen [Top]

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

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

The Town of Highlands Exchange Team [Top]

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

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

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

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

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

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

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

Exchange Team Report [Top]

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

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

I. Heritage Resources [Top]

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

Heritage Identity [Top]

Observations

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

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

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

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

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

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

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

"The storefront is usually the most prominent feature of a historic commercial building, playing a crucial role in a store's advertising and merchandising strategy...The rest of the building is often related to [the storefront] usually through a unity of form and detail. Identifying, retaining, and preserving storefronts and their functional and decorative features such as display windows, signs, doors, transoms, kick plates, corner posts, and entablatures is important in defining the overall historic character of the building. The removal of inappropriate, non-historic cladding, false mansard roofs, and other later alterations can help reveal the historic character of a storefront."

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

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

Recommendations

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

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

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

Utilizing National Register criteria and procedures for listing provides a legally established and credible basis for review and implementation of design guidelines. If this route is followed, the Town will need to seek the assistance of professionals who hold qualifications established by the Secretary of the Interior's Guidelines for Professionals.

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

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

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

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

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

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

Heritage Interpretation and Education [Top]

Observation

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

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

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

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

Recommendations

Fort Montgomery

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

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

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

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

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

Heritage Trails

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

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

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

Heritage Education

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

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

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

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

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

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

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

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