Section II

Section II
Inventory and Analysis

A. REGIONAL SETTINGS AND COMMUNITY CHARACTERISTICS

The Town and Village of Waterford are located in the southeastern corner of Saratoga County in the Albany-Schenectady-Troy Metropolitan Statistical Area. The Town of Waterford encompasses approximately 6.6 square miles and has a total population of 8,695. The Village of Waterford, the oldest incorporated village in the United States, occupies 0.3 square miles in the southeastern portion of the Town and has 2,492 residents.

The Town and Village of Waterford are uniquely positioned at the convergence of the Hudson River, the Mohawk River, and the New York State Barge Canal. The Town of Waterford is bordered by the Town of Halfmoon to the north and west. The Town of Schaghticoke and the City of Troy in Rensselaer County lie directly to the east, across the Hudson River, while the City of Cohoes and the Town of Colonie in Albany County are located on the opposite side of the Mohawk River, south and west of the Town.

The Town of Waterford includes five high, rocky, small islands that are situated in the Fourth Branch of the Mohawk River, which runs between Peebles Island and Waterford. Although their names have varied considerably over time, these islands include Peebles Island (the largest), Polrump Island, Bock Island, Second Island, Goat Island and a small unnamed island.

B. HISTORICAL BACKGROUND1

The Town and Village of Waterford have a rich architectural, industrial, cultural and maritime heritage. Part of New York State's Capital District, the town and village have always been defined by their location along the banks of a horseshoe bend in the Mohawk River, where the Hudson and Mohawk Rivers and Champlain and Erie Canals intersect. As a result of this ideal location at the head of Hudson River sloop navigation, Waterford served historically as a hub for a network of waterways which opened far reaching markets to the north and west. It now serves as the keystone of the RiverSpark Heritage Area (formerly Urban Cultural Park) and the Hudson Mohawk Industrial Gateway, with the other participating communities of Troy to the east, and Cohoes, Watervliet and Green Island to the south. Waterford is also the eastern anchor of the Mohawk Valley Heritage Corridor and Erie Canal, and the southern anchor of the Champlain Canal Trail.

¹See Sydney E. Hammersley, The History of Waterford, New York, 1957; Hayden & Brown, Saratoga County Heritage, 1974; Saratoga County Historical Survey; Saratoga County Historical Society's Narrative History of Founding; Paul R. Huey, History & Cultural Resources of the Islands Within the Fourth Branch of the Mohawk River, Village of Waterford, Saratoga County, New York, New York State Office of Parks, Recreation and Historic Preservation Research Unit, February, 1997; and Paul R. Huey, An Archeological and Documentary History of Peebles Island State Park, Waterford, New York, NYSOPRHP Research Unit, June 1996.

Section II - 1

In addition, Waterford has been designated as a model community within the Hudson River Greenway network and the Hudson River has been designated as an American Heritage River.

The history of Waterford can be traced back nearly 400 years to 1609, when Henry Hudson sailed his ship the Halfmoon up the Hudson River. The principal inhabitants of land at the confluence of the Mohawk and Hudson Rivers were the Mohican or ^"river^" Indians, who recognized both the strategic importance of the area and its abundant water and fertile land for agriculture. Archeological excavations and site disturbance related to building construction and human habitation in the 1800s and 1900s have revealed numerous Indian burial sites and artifacts around Peebles Island and within Waterford village. Mohican settlements and related activity are mentioned in the correspondence of early Dutch settlers and travelers, and the Van Rensselaer Patent Map of 1630 identifies Peebles (or Haver) Island as the site of the Mohican's Moeneminnes Castle. The Mohicans continued to inhabit and farm portions of Peebles Island and the present-day Village of Waterford into the early 1700s.

The first European settlers, who were mainly Dutch traders and trappers relocating from Manor Rensselaerwyck to ^"Halfmoon Point^" (as Waterford was originally known), arrived in Waterford in 1622. Within a short time, these early settlers numbered approximately 80 people, including eight slaves. The Waterford area held tremendous potential for the new settlers, offering excellent land for farming, plentiful fish and game in the rivers and woods, and an excellent location for the lucrative fur trade. To the consternation of the Dutch, the success of the fur trade attracted many English settlers from Connecticut and elsewhere in New England.

The area now known as Waterford was originally part of the old Van Schaick (or Half Moon) Patent, which was granted to Captain Goosen Gerritsen Van Schaick and Philip Pietersen Schuyler in 1664. This patent included 1,124 acres of land and water and encompassed the present-day Village of Waterford, the northern portion of the Town of Waterford, half of Cohoes Falls, ten Mohawk River Islands, and additional lands. In 1674, Schuyler deeded his interests to Van Schaick, and upon Van Schaick^'s death in 1676, the land passed to his wife. In 1678, she sold two parcels containing the 1,124 acres to Roelof Garretse Vanderwerker. This final land deal is considered to be the founding of Waterford.

The name ^"Waterford^" is derived from the ford (a shallow part of a water body where one can wade across) that used to exist across the Mohawk River in the area of the existing Peebles Island bridge. First used by the Mohicans, this ford appears on numerous early maps. Peebles Island and the ford were heavily used by soldiers from Fort Orange (Albany) as the northern route along the Hudson to Canada throughout the 1700s, and are mentioned in the correspondence of soldiers and commanding officers during the French & Indian War and the American Revolution.

Section II - 2

Samuel Blodget^'s 1755 annotated map indicates that the ford was never more than two feet deep during summer. The name Waterford was not in common use until it was popularized by soldiers during and after the American Revolution.

Numerous historians have noted that military action in and around Peebles Island was directly related to major battles at Valcour Island, Oriskany, Bennington, Saratoga, Fort Montgomery, Klock^'s Field, Yorktown and Johnstown. Most notably, the northern tip of Peebles Island was fortified under the direction of Polish engineer Thaddeus Kosciuszko when General Schuyler^'s northern army was encamped at Van Schaick Island to the south. This area was considered strategically important as the most eligible point at which to make a stand in defense of Albany against British attacks from the north and west.

Although somewhat disturbed by the construction of railroad bridges and the Cluett Peabody Company bleachery during the nineteenth and twentieth centuries, these fortifications are still extant.

A military outpost consisting of officer^'s barracks, soldiers^' barracks, a commissary room, and storehouses was also located at Halfmoon Point in the 1700s.

The Village of Waterford was formally incorporated in 1794, and is oldest continuously incorporated village in the country. It was laid out in a grid pattern of streets, blocks and numbered lots. The original street plan of the Town and Village was nearly the same as it is today. A bridge was constructed over the Mohawk River to Cohoes in 1795, ending much of Waterford's importance as a river fording place. A more impressive covered wood truss bridge was built over the Hudson River to Lansingburgh in 1804. Known as Union Bridge, it spanned 797 feet and was the first bridge to cross the Hudson River. After surviving for 105 years, Union Bridge was destroyed by fire on July 10, 1909.

The Town of Waterford was established in 1816 and encompassed the same boundaries as it does today. The 1866 Beers map of the Town shows the same basic street layout, including Hudson River Road, Middletown Road, Fonda Road and Saratoga Avenue, as well as the Champlain Canal and the Albany, Vermont & Canada and Rensselaer & Saratoga railroad right-of-ways. For the most part, the Town was sparsely settled during this period, with the greatest concentration of buildings found along the southern end of Hudson River Road, along Fonda Road just outside the village, and along Saratoga Avenue.

By 1818, the Village was prospering, prompting the New York State Legislature to incorporate Mrs. Emma Willard^'s female seminary at Waterford. A building known as Demarest^'s Tavern was rented for the use of the school and Mrs. Willard relocated from Middlebury, Vermont to Waterford and opened the school with a number of pupils.

Section II - 3

Although she hoped the Waterford school would receive financial assistance from the state legislature, little was forthcoming, and by the time the lease on Demarest^'s expired in May 1821, Emma Willard had agreed to take charge of a girl^'s seminary being established by some wealthy citizens of Troy.

The greatest influence on Waterford^'s development were the construction of the Erie and Champlain Canals, which opened in 1823 and 1825, King^'s Power Canal, which opened in 1828, a highway between Troy, Waterford, and Ballston Spa, and the Rensselaer and Saratoga Railroad, which opened in 1832.

The Champlain Canal became a major transportation route to the north, opening markets in northern New York, Vermont and Canada. As the southern terminus of this 60-mile long canal, Waterford became a major hub for shipping during the canal^'s operation. Similarly, the Erie Canal, which was originally 338-miles long and included 83 locks, quickly became the gateway to the west, conveying goods and immigrant settlers to newly opened or accessible land. Both canals acted as a major spur to economic development across the state and had a dramatic impact on the history of Waterford. They are discussed at greater length in Section B below. King^'s Power Canal was largely responsible for the development of the Northside and Dial City sections of Waterford.

With the completion of the Champlain and Erie canals, Waterford experienced tremendous growth as houses for the canal workers, stores, warehouses, stables, hotels, saloons and other buildings sprang up along their banks and along surrounding streets.

As this development took place, the area south of Broad Street and east of Fifth Street became known as ^"Canal Town.^" Broad Street included a mixture of houses and businesses such as a grocery store, offices, leather store, drug stores, saloon, lumber office, hardware store, shoe store, meat market, tin shop, blacksmith shop and a hotel. Other canal town streets were predominantly residential between Broad and the Champlain Canal and Mohawk River, with other uses concentrated along the canal and scattered among the residential uses. Button^'s Engine Factory was located along the Champlain Canal on the east side of Third Street. Other industrial uses were concentrated along King^'s Power Canal. These neighborhoods are still characterized by narrow streets with many small wood frame and brick buildings consistent in scale and architectural detailing. The canals also necessitated the development of several large barns for mules and at least forty saloons and eating places were located in the town and village during the 1800s.

In 1828, local entrepreneur and inventor John Fuller King constructed King's Power Canal along the Fourth Branch of the Mohawk River. This section of the river dropped sixteen feet, making it ideal for power generation.

Section II - 4

Consequently, two dams were built across the Mohawk between Waterford and Bock and Peebles islands to divert water into the '/z-mile long, 53-foot wide canal. Although much of the canal has been filled in, it still appears on USGS quadrangle maps. King^'s Power Canal (also known locally as King^'s Ditch) was considered one of the major engineering feats of its time and was a major stimulus to the development of Waterford, particularly the ^"Northside^" area, which was named because of its location on the north side of the Cohoes Falls and the Cohoes manufacturing district.

Early maps indicate the location of numerous factories along the canal, including flour mills, twine factories, a screw plate manufacturer, a twine factory, and a machine shop. Other products made at factories in this area included lathes and knitting machinery; lamp black factories; a cement plant in which hydraulic cement was made by Canvass White, engineer of the Erie and Champlain Canals; furniture factories; barrel factories; and distilleries; tools such as pliers, stocks, dies, pipe taps, and reamers; cold-pressed nuts; buttons; strawboard; clothing, cook stoves, ink and fire engines. Each factory included its own sluiceway and gateway to the canal. Factory ruins still exist along the canal. The barrel factory business, which was in existence until the 1970s, was also related to the canals, since barrels for liquids and flour were needed for shipment. As a result, at least six barrel factories were located in this area during the nineteenth century. With the general concentration of factories and mills in this area, Saratoga Avenue became known as "Mill Owners Row.^" William Mansfield and Hugh White, brother of Erie and Champlain Canal engineer Canvass White, had both built Greek Revival houses in this area by 1830.

Before the 1830s, a stage coach was the only means of transportation in and around Waterford. In 1832, some businessmen from Troy were granted permission to built a road from the City of Troy through Waterford to Ballston Spa.

The contract gave businessmen the right to move people, animals and property along the route ^"...bythe power and force of steam, animals, or any mechanical power...^" The road was constructed and operated with very limited success. For many years, the line carried a single horse-drawn car, called ^"Old Fiske's Hearse.^" It was used mainly for local business between Troy and Waterford. However, due to its limited success, the line was eventually turned over to its creditors.

The next stimulus to Waterford^'s development was the incorporation of the Rensselaer & Saratoga o & S) Railroad on April 4, 1832. This line originated in Troy, crossed the Hudson River to Watervliet (West Troy) to avoid the steep tolls a Lansingburgh crossing would have entailed, ran northward across Van Schaick and Peebles Island and continued on to Mechanicville, Ballston, and Saratoga Springs. Preceded by the Albany & Schenectady Railroad and the Saratoga & Schenectady Railroad, the R & S was the third railroad to be built in New York State.

Section II - 5

The line primarily served tourists and sightseers to Saratoga Springs. Waterford was also served by the Albany, Vermont & Canada Railroad. Between 1832 and 1870 the R & S expanded its route offerings by leasing lines from other companies, and became part of the Delaware & Hudson system in 1870 through a series of durable leases. By the late 1800s, the D & H Railroad had taken over most rail service through Saratoga County. In 1896, D & H built a combined passenger station and freight house at the northern end of the Village of Waterford. Today, only the D & H freight lines run through Waterford; no passenger service is available.

Following the opening of Main Street in 1846, a small community known as "Dial City" had sprung up on the small island formed by the Fourth Branch of the Mohawk to the south, the Erie Canal to the north, and the old Champlain Canal to the west. The ensuing residential and industrial neighborhood derived its name from a sundial which graced the street. Dial City's earliest industries included the William Burton and Sons Sawmill and the Mohawk and Hudson Iron Foundry and Machine Shop (later Eddy Valve). Burton and Sons was one of the country's earliest and finest veneer works, importing mahogany, rosewood, satin and zebra wood and shipping five million feet of veneer each year to all parts of the world. The Mohawk and Hudson/Eddy Company originally made iron castings and steam car wheels, lathe chucks, wine and straw presses, iron statuary and stoves, but later focused on valve and hydrant manufacturing. The community did not fully develop until after the Civil War, but by the late nineteenth century it included several factories surrounded by small, frame working-class residences, support businesses, commercial enterprises and a public school. Following several fires, demolition and the construction of a town park, Dial City has lost much of its historic character. A historic mill building and a small residential neighborhood are the only survivors of this once heavily industrial area.

There is a limited amount of published information available describing the history of roadways in Waterford. There was a toll road running through the Town called the Waterford Turnpike. The road crossed the southern portion of Saratoga County from Waterford to the Cross Tavern in Halfmoon, to Van Camp's Tavern in Clifton Park, the southern end of Ballston Lake, and on to its terminus at Johnstown. Described as one of the first county highways in Saratoga County, there was a north-south arterial linking Waterford with Mechanicville. The paving of roads in Saratoga County began in the early 1900s. In 1909, there was a recorded 55 miles of State and County highways, 16.5 miles of resurfaced and oiled roadways, and 6 miles of asphalt road.

The original Troy-Waterford (Union) Bridge was replaced by an iron truss bridge which was constructed for the Union Bridge Company by the Phoenix Company, with Boller & Hodge Engineers in 1909.

The 1866 Beers maps indicate a highway transportation network nearly identical to that found today. The Village street system is essentially the same as the modern system, although it does not show Columbia and State Streets.

Section II - 6

These streets were probably added in the late 1800s or early 1900s. The 1866 Beers map also shows similar street patterns as those now existing in the Town.

Roadways include Hudson River Road, Fonda Road, Waterford Flight Road, and Saratoga Avenue, although these streets are not named. Since this map was prepared, numerous side streets have been built to accommodate new development, particularly residential housing developments from the 1940s to the present.

Waterford was also home to a fire engine production industry. For a short time in the early 1830s, John F. Rogers made the "Rogers Patent" hand pump engines along King's Canal until the business was taken over by William Platt and Nicholas B. Doe. Doe and Platt soon became partners with Lysander Button and Robert Blake, who later acquired the entire business. In 1850, the plant was moved from King's Canal to a new steam-powered plant in the Village alongside the Champlain Canal. The new factory produced both hand pump and steam powered engines. In 1860, Button sold the company to his son and the company became known as L. Button & Son. Their high quality machines were sold throughout the United States and in Canada, Europe and South America. In the late 1800s, the Button Company joined with other small companies and eventually became known as the American-LaFrance Fire Engine Company, which is still in operation in Elmira, New York.

In 1847, George Washington Eddy founded the Mohawk and Hudson Iron Foundry and Machine Shop, which manufactured stoves, machine castings, railroad car wheels, architectural ironwork, statuary, and valves. Eddy won a medal for his tapered seat valve at the 1893 Columbian Exposition. Located on South Street, the company became known as the Eddy Valve Company and produced a variety of goods until the 1960s. It was destroyed by fire in 1978. John Ford incorporated the Ford Manufacturing Company in 1891 and constructed a large textile mill on the Hudson River to the north of the village. Later purchased by the Reis Company, the mill was also in operation for much of the twentieth century. Its buildings have also been demolished. The Ormsby-Morris Textile Mills (later Laughlin) constructed a textile mill along Mohawk Street in 1894. Currently occupied by Ursula of Switzerland, these buildings have housed the Waterford Knitting Company and the Laughlin Company.

The Waterford Gas Light Company was chartered in 1858 and first produced gas in 1860. With buildings located on South Street, the company was headed for much of its history by William Humphreys, who learned to manufacture gas by burning resin and sawdust in England. The gasworks included a gas generator and a circular gas holder, and continued in operation until 1909. The Waterford Waterworks were constructed to the north of the Ford/Reis Company textile mill in 1914 and are still in operation.

Section II - 7

The Erie Canal was substantially enlarged and improved between 1905 and 1918. During these years, most of the original locks were abandoned and the famous Waterford Flight was constructed, extending from the Mohawk River at Lock 2 in the Village to Crescent Lake on the Mohawk River above the Cohoes Falls at Lock 6 in the Town. The New York State Barge Canal (part of the New York State Canal System) allows for the shipment of goods on much larger vessels.

The five islands in the Fourth Branch of the Mohawk have also played an important role in the history of Waterford and the surrounding area. For the most part, these islands have always been used predominantly for agricultural and recreational purposes and, with the exception of Peebles Island, never experienced significant development. Peebles Island was a popular location among the social groups and organizations of Cohoes, Waterford and Troy for picnicking.

At least eight families lived and operated farms on the island until 1909, when Cluett Peabody & Company acquired the island, demolished most of the houses and farm buildings, and built a large bleachery complex.

The Cluett Peabody bleachery, which was built between 1910 and 1912, included eighteen buildings and structures for administrative offices, the storage of chemicals and materials, and operation of its various departments (greige and singe, mercerizing, bleaching, finishing, compressive shrinkage/sanforizing, fold and examine, and ship storage and shade departments). The bleachery was in operation for most of the twentieth century. By the 1960s, the company was struggling to remain competitive and finally closed, selling Peebles Island to the New York State Office of Parks, Recreation and Historic Preservation (OPRHP). In the ensuing years, several of the buildings have been rehabilitated for use by OPRHP^'s historic sites bureau, field services bureau, collections care and security staff.

In 1930, the colorful Frederick W. Kavanaugh deeded Second/King^'s Island (next largest after Peebles) to Camp Kavanaugh, Inc. of Waterford, noting that ^"this conveyance is made with the desire that the premises ... be used as a camp by the Boy Scouts of Waterford and other uses it shall determine.^" Although Camp Kavanaugh was incorporated in 1929, little else is known about its history or use. Frederick Kavanaugh was the son of knitting mill owner Luke Kavanaugh. After working in the mill as a boy and young man, he and his brother became partners in the mill upon his father^'s death. He later owned a hotel in Cody, Wyoming that was named after his lifelong friend William F. ^"Buffalo Bill^" Cody and had real estate interests in Queens, New York City. He also served as Saratoga County sheriff, chaired the Saratoga County Republican Committee, and represented Waterford in the New York State Senate.

Section II - 8

The islands are considered to be archeologically sensitive and likely to produce significant information regarding Native American habitation, Depression-era Boy Scout camping, and early industrial and building practices.

Many of Waterford's industries remained in operation for much of the twentieth century. However, as freight traffic on the canals diminished and these older industries closed their doors, Waterford, like most of the northeast, experienced an economic decline.

This situation has been somewhat reversed as large industries such as G.E. Silicones, American Tissue, Golub Corporation (Price Chopper), Degussa-Huls, and others located in the northeastern part of the Town. Mohawk Paper is the only major industry remaining in the once heavily industrial Northside and Dial City areas of Waterford.

Today a number of state historical markers call attention to Waterford's rich history. These markers are intended to call attention to the White Homestead; "Up Country," the home of William Punderson Mansfield, Halfmoon Fort, Colonial Military Route along Fonda Road; a colonial river fording location; and the Village of Waterford (oldest incorporated village). In recognition of the importance of their historic and cultural resources, and the potential of heritage tourism as an economic revitalization tool, the Town and Village have joined with neighboring communities as part of the Hudson Mohawk Industrial Gateway; Hudson Valley Greenway; RiverSpark Heritage Area; Champlain Valley Heritage Corridor; Mohawk Valley Heritage Corridor and similar efforts.

Community Planning and Development Initiatives Historic Preservation and Greenway Initiatives

The Hudson-Mohawk Industrial Gateway, a nonprofit educational corporation chartered in 1972, was founded for the purpose of encouraging the adaptive reuse of commercial and industrial buildings in the five communities of Troy, Waterford, Cohoes, Green Island and Watervliet. The Gateway sponsors annual tour programs, research and publication on the area's industrial past and serves as an advocate for the preservation and re-use of historic industrial architecture at a local and state level.

Commissioned by the Gateway in 1975, the Hudson Mohawk Industrial Gateway City Edges Final Report: The Preservation and Utilization of 19th Century Industrial Architecture in the Hudson-Mohawk Region outlined the significance of industrial sites throughout the region, including Waterford, and described how their preservation could have a positive impact on downtown revitalization. Preservation efforts were suggested along three main courses: the placement of sites on the National Register of Historic Places, guidance on proper maintenance to property owners, and the development of plans for adaptive reuse. The study also recommended tourism programs to publicize historic sites and open ongoing industrial processes to public observation.

Section II - 9

The RiverSpark Urban Cultural Park 1984-86 Management Plan for the Hudson Mohawk Urban Cultural Park Commission (now Heritage Area Commission) included projected programming for the communities of Troy, Waterford, Cohoes, Green Island, and Watervliet. These communities came together to plan for and develop the Hudson-Mohawk region as a new type of park that would preserve national historic legacies and encourage many beneficial uses from a unique cultural landscape. The concept of RiverSpark formed the basis of a new statewide system of Urban Cultural Parks (UCPs), with the four goals of preservation, education, recreation and economic development, focused on labor and industry. Through RiverSpark, the historic resources and rich heritage of the area would be preserved, interpreted, and promoted.

In spite of a positive early start and strong plans, UCP plan implementation has been slow. The economic development component of the program has never been adequately funded or promoted, and several theme attractions planned for key locations within the region did not materialize. However, visitor centers have been developed at the Burdett Building in downtown Troy and at the Cohoes Music Hall in Cohoes. The RiverSpark Visitor Center in Troy is currently operated by the Hudson Mohawk Industrial Gateway under contract to the City of Troy.

The passage of the Hudson River Valley Greenway Act of 1991 combined the efforts of the Hudson River Valley Greenway Council and the Heritage Task Force for the Hudson River Valley, establishing a redefined Council and the Greenway Conservancy to provide direct assistance to its ten county constituency. The main goal of both the Council and the Conservancy was the development of a regional planning compact focused on both the riverfront and the countryside immediately beyond.

The Hudson River Valley Greenway Report (1991), produced by the Greenway Council, established that the quality of the natural environment and the protection of the Valley's heritage are the basis for the Greenway, recognizing that the Valley is a place where the future must be built in harmony with the region's natural and historic heritage.

Since the passage of the Greenway Act, the Conservancy has designated model communities in each of its ten riverfront counties. Waterford was designated as Saratoga County's community, and has received funding assistance from the Greenway for the development of a new comprehensive plan, which is being prepared simultaneous with this LWRP.

Champlain Canal Trail Scenic Byway

A scenic byway has been proposed for a 64-mile section of Route 4 from Waterford to Whitehall along the Hudson River and the Champlain Canal.

Section II -10

The byway includes lands within Saratoga and Washington Counties and encompasses historic and recreational sites within eleven towns, nine villages, and one city. The byway would be called the Champlain Canal Byway.

A Champlain Canal Scenic Byway Steering Committee was established in 1996 and includes representation from each community along the route, including the Town and Village of Waterford. A number of subcommittees were formed to address the New York State Byways nomination criteria of public participation, stewardship, transportation, marketing, interpretation, and finance and management. Coordinated by the Saratoga County Chamber of Commerce, the Steering Committee has met regularly for several years and has conducted numerous outreach meetings with local officials and residents to generate support.

The Steering Committee received a grant from the NYS Department of Transportation in 1999 to develop the corridor management plan required for designation of the scenic byway. The Draft Enhancement Plan was completed in January 2000, and is expected to be submitted to the NYS Department of Transportation's Scenic Advisory Board for nomination in April 2000.

The Draft Enhancement Plan outlines the visions, goals, objectives and recommendations for designating and promoting the Champlain Canal Byway. The proposed theme for the byway focuses on the corridor as a historic resource that also offers scenic and recreational opportunities, and is captured in the phrase, "Pathways for America's History."

The plan identifies a marketing strategy and describes how the resources of the corridor will be managed, protected, and promoted. It also recommends transportation improvements along the corridor taking into account roadways, bike paths, walkways, and boat launches as well as signage. The goals of the Champlain Canal Byway include the identification, promotion and interpretation of historic resources; improved physical and visual access to the Hudson River and Champlain Canal; strengthened links between historic villages, attractions, and adjacent waterways; enhanced stewardship of historic, water and scenic resources; and the development of services and facilities to meet the needs of visitors and residents.

Benefits of participation in New York State's Scenic Byways Program include increased tourism business, tax revenue and jobs; access to government, private and foundation funds; coordinated marketing efforts; and enhanced community pride. Designated scenic byways are also identified on federal, state, regional and auto club maps.

The proposed Champlain Canal Byway is expected to link current and proposed scenic byways along key transportation routes in New York State, fostering tourism growth and increasing awareness of the region's historic and recreational opportunities.

Section II -11

Although formal designation of the scenic byway is still pending, the Saratoga County Chamber of Commerce has developed and distributed brochures to promote the Champlain Canal Byway. One such brochure lists the Waterford Flight of Locks and the Waterford Museum and Cultural Center as attractions to visit along the Route 4 corridor. In addition, several communities have identified historic sites, proposed recreational enhancements, and developed new initiatives to coordinate with the scenic byway effort. The Canal Harbor Center project in Waterford, including the Welcome Center currently under construction (see below), is expected to be an important component, since it will help to interpret the rich history of the Champlain Canal/Hudson River region.

Canal Projects

In 1993, the administrative authority for the New York State Barge Canal System was transferred from the NYS Department of Transportation to the NYS Canal Corporation, a newly-created office within the NYS Thruway Authority. The Canal Corporation was charged with revitalizing the canal system as an historic and recreational resource, leading to expanded tourism and economic development. A Canal Recreationway Commission was formed and charged with developing a statewide plan for the revitalization and redevelopment of the canal, with recommendations to improve access, increase recreational opportunities, preserve and interpret historic and natural resources and foster economic development. During the development of this plan, several community members formed the Waterford Canal Development Committee.

The role of this committee was to promote the Town and Village and facilitate their involvement in the statewide canal plan, recognizing Waterford's location in the canal system as a potential asset for economic development, tourism, and recreation.

In the New York State Canal Recreationway Plan, Waterford was designated as a major canal harbor, an important node and landing site along the State Barge Canal System. These sites are intended to provide "enjoyment for tourists and residents and access to canal-related amenities and services."

In addition, four specific proposals for the waterfront in the Town and Village of Waterford were included in the August 1994 Eastern Gateway Canal Regional Plan: the Waterford-Old Champlain Canal Linear Park (Cohoes to Erie Canal Lock 2), located along a section of the old Champlain Canal between the Mohawk River and Erie Canal Lock 2 Park; the Waterford Docks, a narrow sliver of land along the stretch of waterfront between Button and Battery Parks; Battery Park to the Flight of Locks, a series of recreation-oriented parks surrounding Erie Barge Canal Locks 2-6; and Flight of Locks to Vischer Ferry Trail, a segment of the Saratoga County Heritage Trail, extending from the Waterford Flight of Locks westward to the Vischer Ferry Nature Preserve.

Section II -12

Since the completion of these reports, the Waterford Canal Development Committee has remained active in promoting waterfront development and supporting canal projects in the Town and Village. The committee has worked with the NYS Canal Corporation to access funding for projects, developed trails (one of which follows the historic towpath of the old Champlain Canal), and printed brochures.

The committee also produces several annual festivals, including the Canalfest and the popular Tugboat Roundup, which provide food and entertainment and celebrate the history of the canals.

One of Waterford's most ambitious planning initiatives began in 1997 with the U.S. Department of Housing and Urban Development's Canal Corridor Initiative. The Canal Corridor Initiative made federal CDBG and Section 108 Loan funds available to communities located along the New York State Canal System. The funds were targeted for the economic revitalization of these communities. The Town and Village of Waterford developed a Waterford Welcome Center and a business loan fund, and the development of an inn/restaurant.

The Waterford Welcome Center, which opened in 2000, is the result of collaboration between the Town and Village of Waterford, the Mohawk Valley Heritage Corridor, the NYS Canal Corporation and the U.S. Department of Housing and Urban Development. The facility has been constructed on a waterfront site owned by the NYS Canal Corporation, south of Lock 2, overlooking the eastern end of the Erie Canal and Peebles Island. Although the Canal Corporation retains ownership of the land, the Welcome Center is maintained by the Town of Waterford.

The Waterford Welcome Center serves as the primary visitor contact point at the eastern end of the Erie Canal and the navigational head of the Hudson River. The image it projects directly impacts the degree to which the Town and Village of Waterford are able to tap into New York's heritage tourism potential for economic development and community revitalization purposes.

It also directly influences the desire of visitors to return to the region and the ability of the state to market the region in its statewide tourism promotional efforts.

A two-story design was selected for the Welcome Center. The first floor of the structure houses a storage area for interpretive displays and maintenance equipment, restrooms, and showers for boaters. The second floor serves as an exhibit hall and main point of public access. It will contain models of both a canal lock and the area surrounding Waterford to demonstrate the natural and man-made characteristics of the landscape and, in particular, the physical interaction of the Canal System and the Hudson and Mohawk Rivers.

Section II -13

Visitor services information, displays describing various historic and cultural themes and a kiosk provided by the Mohawk Valley Heritage Corridor are also located in this large second floor exhibit hall.

The Town of Waterford completed a waterfront promenade along the Canal wall leading northwest from the Welcome Center to Lock 2 of the Waterford Flight. Interpretive signs and benches are provided for visitors to enjoy the natural characteristics of the landscape and learn the history of the area. Services for boaters will be enhanced in the future. These elements constitute future phases of the Welcome Center and the Town is pursuing additional funding for these features.

The Business Loan Fund established through the Canal Corridor award is designed to assist both start-up and existing businesses in the Town and Village, create employment opportunities for Town residents, and preserve and expand the local tax base. Capitalized at $500,000, the loan fund is administered by the Town of Waterford Industrial Development Agency. Business activity to be undertaken with assistance from the loan fund must directly result in job creation; at least 1 FTE position must be created for every $33,000 in loan funds provided. Loans are provided at a below-market rate of interest.

The first loan request, from Burniche Piping, a start-up mechanical contracting business, was submitted to HUD in September 1998 and closed in May 1999. Seven jobs have been created to date as a result of the $100,000 loan. The owner is looking to expand by building a new facility and may request additional funds for the project in the near future.

The third project for which the Town and Village of Waterford received funding involved the construction of an inn and restaurant at the Point, a site located on the south side of the Canal in the Village of Waterford south of Lock 2. The project was designed to support business development and job creation and expand visitor amenities in Waterford, an identified Canal Harbor in the NYS Canal System. The HUD award allowed the Town to provide a loan at a reduced rate of interest to a qualified developer for construction of the facility.

The Environmental Review for this project was completed. However, the Town received no formal responses to a Request for Qualifications (RFQ) for developers. Developers who had expressed an interest in the project are being interviewed to determine how to proceed with the planning and implementation process. Results of the developer interviews suggest that the proposed site (which is owned by the NYS Canal Corporation) is too limited and too costly to develop given current funding available. The Town was unable to identify a new site prior to the expiration of the HUD funding.

Section II -14

The Town and Village of Waterford have sought additional funding from state and federal agencies for other projects linked to the canal. These initiatives complement existing projects planned or underway in the Town and Village of Waterford. In combination, the proposed activities will improve public access to the waterfront and create greater opportunities for water-based recreational activities in the Town of Waterford.

In August 1999, funds were requested from the NYS Department of State for the improvement and repair of the existing state boat launch at the western end of the Waterford Flight of Locks of the Erie Canal, located at the end of Flight Lock Road in the Town of Waterford. The property, which is commonly known as Alcathy's, is owned by the NYS Thruway Authority and operated by the NYS Canal Corporation. Elements of the project include the improvement of the existing bulkhead at the summit of the historic flight, the construction of new bulkhead, the extension of utilities to the site from an adjacent residential subdivision, and the installation of lighting along the canal walls and boat launch to provide night access to the site. The application was denied.

The Town and Village of Waterford also applied to the Hudson River Valley Greenway Council and the NYS Office of Parks, Recreation and Historic Preservation in August 1999 for funds to construct the Waterford Flight Trail between Lock 3 and Lock 4 of the Erie Canal and enhance existing access points and recreation areas near the Trail. The result of ongoing collaboration between the Town, the Village and the NYS Thruway Authority, the project would be the first of several phases of development for the Waterford Flight Trail, which would eventually extend from Lock 2 in the Village of Waterford out the Waterford Flight of the Erie Canal, along the Mohawk River connecting to the Town of Halfmoon. Although the 1999 application was not funded, the Town of Waterford will continue to identify sources and pursue additional funding for the trail project.

In addition to the wide range of canal improvement projects the Town and Village have undertaken, the Village has undertaken several initiatives to revitalize the Broad Street commercial area. Between 1983 and 1987, the Village received four grants under the U.S. Department of Housing and Urban Development's Community Development Block Grant (CDBG) Small Cities program to implement a facade improvement program. The funds were used to rehabilitate facades of many of the commercial buildings along Broad Street between Second and Fifth Streets. The Village also expanded the municipal parking lot during the reconstruction of Broad Street by the NYS Department of Transportation.

In 1999, the Village applied to the Hudson River Valley Greenway Council for funding to rehabilitate Knickerbocker Park, located on the Hudson River at the intersection of Broad and First Streets, to create a more attractive gateway to the Village.

Section II - 15

The Village is also working with the NYS Department of Transportation and NYS Office of Parks, Recreation and Historic Preservation to rehabilitate the Peebles Island Bridge (North Bridge).

Recognizing the importance of the downtown business district to the community's economic health, the Town and Village of Waterford are making additional improvements in the future to encourage development of specialty retail business, attract visitors, and meet the needs of local residents.

Both the Town and Village have recently received several funding awards to achieve these goals. In 2000 the Town of Waterford received funding for the establishment of a microenterprise program through the U.S. Department of Housing and Urban Development CDBG Small Cities program the Town of Waterford’s Canal Harbor Enterprise Center Microenterprise Assistance Program is a comprehensive program includes classroom training, direct technical assistance, and start-up financing for new business enterprises.

In 2001, the Village secured a $165,000 matching grant through the NYS Environmental Protection Fund administered by the NYS Office of Parks, Recreation and Historic Preservation for the preparation of design guidelines and implementation of various streetscape improvements within the Village’s historic district. The project targets streets connecting the waterfront areas to Broad Street that are in need of improvements to make them more appealing to residents, business owners, potential investors and visitors. The design guidelines and streetscape improvements are scheduled to be completed by the end of 2004.

Most recently, the Village has secured CDBG $400,000 in funding through the NYS Governor’s Office of Small Cities to implement a façade rehabilitation program and microenterprise loan program for businesses on Broad Street in the downtown business district. The microenterprise program will assist existing and start-up businesses located on Broad Street with business improvement and expansion projects by providing technical assistance and low interest loans. Both the façade rehabilitation program and the microenterprise loan program will begin in 2005.

Economic Development

Waterford's economy is based primarily on small- and medium-sized businesses, although General Electric Silicones, the largest employer in Saratoga County with approximately 1,000 workers, is located in the Town. There are several smaller manufacturing businesses in Waterford including the Doghouse Corporation, Ursula of Switzerland, Mohawk Paper Mills, Maximum Security, American Tissue, and All-Ten Energy Systems.

Broad Street in the Village of Waterford is the community's downtown business district and contains a mix of local merchants, antiques dealers, service businesses, and professional offices.

Section II -16

The Town and Village are interested in renovating this area and recruiting additional small businesses to complement canalize activities. Commercial activity is also concentrated along Saratoga Avenue leading north from the City of Cohoes.

Employed residents of the Town and Village work predominantly in three sectors: services, retail, and manufacturing. According to the 1990 Census, 20.2% of Town residents and 28.1% of Village residents work in the service sector, which includes health care and education. Approximately 11% of Town residents and 20.6% of Village residents are employed in the retail trade. Public administration is also an important source of employment for both Town and Village residents, a reflection of the opportunities residents have to work in government in the Capital Region.

Manufacturing employs about one in ten Town residents and one in five Village residents. However, changes in the regional economy have generally meant fewer opportunities for employment in the manufacturing sector and greater opportunities in various service fields. During the 1980s, there was a significant decline in the number of Waterford residents employed in manufacturing, coupled with an increase in resident employment in the service sector. Other changes have included increased opportunities for Waterford residents in finance, insurance, and real estate, communications and public utilities, and construction.

As in many small communities, Waterford's resident labor force has had to rely on commuting to employment outside the Town or Village -- or even the County. Approximately 75% of Town residents and 70.5% of Village residents work outside Saratoga County, but within the Capital Region. This can be attributed to the employment opportunities available in other parts of the region, including the City of Albany.

Demographic Analysis2

In 1990, the population of the Town of Waterford, excluding the Village, was 6,203. The Town has experienced steady growth over the last several decades, with the most dramatic increase in population occurring during the 1980s, a time when many new housing units were developed in the Town. Between 1960 and 1990, the Town (excluding the Village) experienced a cumulative 43.6% increase in population. Figures from the Capital District Regional Planning Commission (CDRPC) indicate that population growth in the Town through the year 2020 is likely to be moderate, with an increase of about 15% over the next twenty years.

²Amore detailed demographic analysis is included in the Town and Village of Waterford's Comprehensive Plan, which was prepared concurrently with this document.

Section II -17

According to 1990 figures, the Town of Waterford is growing at a faster rate than Saratoga County and at a much faster rate than the state. Compared to surrounding communities, Waterford's rate of population growth is higher than the Towns of Halfmoon or Schaghticoke. The Cities of Troy and Cohoes both lost population during the 1980s.

The Village of Waterford occupies a land area of 0.3 square miles in the southeastern section of the Town. With approximately 2,500 residents in 1990, the Village accounts for about 30% of the Town's overall population but less than 5% of its land area.

In contrast to the Town of Waterford, the Village of Waterford has lost population in recent decades, declining 14.5% between 1960 and 1990. Similar to other small communities in New York, the Village has had a relatively stable or declining population base, with little potential for significant growth. Projections from CDRPC indicate only marginal change in the size of the Village population relative to that of the Town. By 2020, the Village is expected to have about 2,400 residents, comprising 25.2% of the Town's population, compared to 40.3% in 1960.

According to the Census Bureau, there were 2,361 households in the Town of Waterford (excluding the Village) and 1,028 in the Village in 1990. This represents increases of 45.9% in the Town and 7.8% in the Village compared to 1980.

To some extent, the increase in the number of households correlates with the increased population count and the rate of housing growth in the Town outside the Village. It also reflects a decline in the average number of persons per household, paralleling trends nationwide. In general, the decrease in household size over the last several decades is attributable to three factors: lower birth rates, with fewer children per family; a concurrent increase in single parent families; and a greater number of single-person households.

C. Hudson River, Mohawk River, Erie Canal, Champlain Canal3

From its original settlement by Native Americans, and the European settlement that followed Henry Hudson's explorations in 1609, the history and development of the Town and Village of Waterford have largely been shaped by their location at the confluence of the Hudson and Mohawk Rivers and the Erie and Champlain Canals. As a result, the importance of the rivers and canals to the development and vitality of Waterford cannot be overemphasized.

³See National Park Service, The Erie Canalway (1998); A Hudson River Greenway, Report to Governor Cuomo and NYS Legislature (1991) and Regional Tourism Strategy Final Report (1995); Mary Means & Associates, Management Plan for the Mohawk Valley Heritage Corridor (June, 1997); Ralph Andrist, The Erie Canal (Mahway, NJ: Troll Associates; and Michele A. McFee, A Long Haul: The Story of the New York State Barge Canal (Fleischmanns, NY: Purple Mountain Press, 1998.

Section II -18

The waterways provided a crucial transportation link which allowed the movement of people and goods over long distances, and readily available water power fueled rapid industrial growth.

Although the need for water transportation and power has declined almost to the point of insignificance for local residents and industries, the use of waterways for recreational uses and the appreciation of their scenic beauty is on the rise. With this in mind, the Town and Village of Waterford continue to work closely with state agencies and other municipalities throughout the region to improve waterfront areas, to establish links between downtown and waterfront areas, and to connect the region's diverse recreational assets. Most of these efforts have been described in the Regional Settings and Community Characteristics section above; the purpose of this section is therefore to put the waterways into context and to highlight their continuing importance to the economic vitality of Waterford.

Hudson River

The Hudson River is the eastern boundary of the Town and Village of Waterford and provides these communities with a direct transportation link to New York City and Lake Champlain (via the modern Champlain Canal which is the Hudson River channel for much of its length).

The river, which begins as a crystalline stream at Lake-of-the-Clouds in the Adirondack Mountains and ends at the Verrazano Narrows Bridge in New York Harbor, is over 315 miles long and travels through 19 counties. It serves as a major transportation corridor for the port cities of Albany, Newburgh, Kingston, and Poughkeepsie, and links many other communities on both sides of the river.

Heading north from New York City, the river's breadth includes the expansive Tappan Zee, the Hudson River Palisades, numerous historic homes (Boscobel, Clermont, Hyde Park, Montgomery Place, Livingston Manor, Wilderstein ... ), West Point Military Academy, the impressive Storm King Mountain, the scenic Catskill Mountains which inspired the Hudson River School of painting, and the Adirondacks. The Hudson River Estuary, a unique natural resource, extends for 154 miles of the river's 315-mile length and is home to over 206 species of fish. The Hudson River valley is also an important flyway for migratory birds and is home to many endangered and threatened species such as bald eagles and heartleaf plantain.

Because of this abundance of natural, historical and cultural resources, the Hudson River was recently designated an American Heritage River by the federal government. It is one of America's most important commercial and recreational waterways and is recognized as an estuary of national importance.

Section II -19