28362.ps - 4/19/2005 4:56 PM BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA by Edward T. McMahon and Shelley S. Mastran THE CONSERVATION FUND in partnership with PENNSYLVANIA DEPARTMENT OF CONSERVATION AND NATURAL RESOURCES April 2005 28362.ps - 4/19/2005 4:56 PM © 2005 The Conservation Fund Library of Congress Control Number: 2005920574 ISBN 0970529228 E Printed on recycled paper using soy-based inks 28362.ps - 4/19/2005 4:56 PM Contents FOREWORD . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .iv BACKGROUND Purpose of Better Models . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1 Six Principles for Better Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5 Economics and Environment Can Work Together . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6 Tools to Use . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9 Barriers to Better Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .11 Principle 1. Conserve Farmland, Natural Areas and Scenic Assets Protect Open Space . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .15 Use Conservation Easements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .20 Preserve Scenic Views and Vistas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .26 Protect Riparian Areas and Special Habitats . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .30 Plant and Preserve Trees . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .33 Principle 2. Maintain a Clear Edge Between Town and Countryside Grow In, Not Out . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .37 Understand the Costs of Sprawl . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .41 Encourage Infill Development and Brownfield Redevelopment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .43 Use Conservation Design Techniques . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .46 Delineate Gateways . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .52 Principle 3. Build and Maintain Livable and Attractive Communities Enhance Cities, Towns, and Villages . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .57 Design Real Neighborhoods . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .60 Strengthen Downtowns and Older Communities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .67 Use the Main Street Approach . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .68 Reshape the Strip . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .74 Principle 4. Preserve Historic Resources Know the Value of Historic Preservation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .79 Identify and Designate Historic Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .83 Find New Uses for Old Buildings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .86 Designate and Develop Heritage Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .89 Principle 5. Respect Local Community Character in New Construction Set the Standard with Public Buildings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .93 Ask Franchises and Chain Stores to Fit In . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .96 Landscape Commercial Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .103 Control Signs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .106 Restrict Billboards . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .109 Disguise Communication Towers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .112 Principle 6. Reduce the Impact of the Car and Promote Walkability Design Streets for Healthy Neighborhoods . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .117 Build Greenway Networks for Non-motorized Transportation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .120 Reassess Road Standards . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .124 Designate Scenic Byways . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .127 APPENDIX Organizational Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .129 Useful Websites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .134 28362.ps - 4/19/2005 4:56 PM Foreword Building and maintaining sustainable and attractive communities are dependent upon thoughtful natural FROMITSBIGCITYSKYLINESto its rural land- scapes, Pennsylvania is a state rich in heritage, natural resources and beauty. These values have resource and economic development planning that is helped to define our image and our quality of life. integrated into land use planning activities at all levels Pennsylvania has distinguished itself as a leader in across the state. We must work hard to blend growth natural resource protection and and prosperity with protection of community revitalization. We have our precious land, waters and protected our lands, improved our wildlife. waterways, and reclaimed areas Our programs and policies must scarred by our industrial past. help smaller communities capitalize But trends in our growth and loss on tourism, cultivate small business, of our working farms and forest- and conserve their heritage. lands signal problems. Some of the We must encourage the redevel- choices we are making today are opment of towns and cities to take threatening the sustainability of our pressure off development of our communities and the quality of our open spaces. lives. According to the 2003 report We need to empower county gov- issued by the Brookings Institution, ernments and regional planning Back to Prosperity, some of the state's entities to conserve natural and her- richest, most productive soil is dis- itage resources and promote recre- appearing under a sea of macadam and concrete. ational activities through cooperative planning. Pennsylvania's population shift from cities and bor- We must advance projects and planning that oughs to suburbia, coupled with haphazard land-use demonstrate sustainable growth and green infrastruc- planning, has had significant negative impacts on our ture and conservation. communities and our natural and historic resources. This guide outlines many ways to accomplish these In an era when businesses and families can relocate goals. It is a helpful tool for local government officials across the country and around the world, location as they plan their communities' future. By creating makes a big difference. Companies seek areas that offer attractive and sustainable communities, we are ensur- the quality of life necessary to attract employees. ing a more prosperous Pennsylvania and a brighter Young people hunt for cities and towns that not only future for us all. have the jobs, but also have attractive landscapes and opportunities for life outside work. Families look for homes near parks, recreation, shopping, and safe Edward G. Rendell routes to school. GOVERNOR iv BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 28362.ps - 4/19/2005 4:56 PM Credits and Acknowledgments This book is the result of collaboration between The Conservation Fund and the Pennsylvania Department of Conser- vation and National Resources (PA DCNR). The publication was financed, in part, by a "Growing Greener" grant from the Pennsylvania Department of Conservation and Natural Resources, Bureau of Recreation and Conservation with additional support provided by the Governor's Center for Local Government Services and The Conservation Fund. Many people helped make the publication possible, but we would like to particularly thank Larry Williamson, Meredith Hill and Todd Stell from PA DCNR. Without their leadership, guidance and support, this book would not have been possible. We would also like to thank Neil Kinsey from the Governor's Center for Local Government Ser- vices and Larry Selzer, Chris Fanning and Nick Dilks from The Conservation Fund for their encouragement and sup- port. Finally, we would like to thank Sue Dodge for her good humor and outstanding design skills and Jennifer Hauck, Alison McDowell and Leigh Ann McDonald for their help with research and administration. Photos were supplied by Edward T. McMahon and the State of Pennsylvania unless otherwise specified. We also gratefully acknowledge the assistance of the following individuals who provided photos, examples of better development or reviews of the draft manuscript. Randall Arendt, Greener Prospects Ron Bailey, Lancaster County James Bell, Bohlin, Cywinski, Jackson, Wilkes Barre Anna Breinich, PA Environmental Council Ed Geiger, PA Department of Community and Economic Development Janet Ann Hall, Luzerne County Convention & Visitors Bureau Tom Hylton, Pottstown, Pennsylvania Paul Horning, Berkshire Construction Management, Inc. Ann Hutchinson, Natural Lands Trust Carl Knoch, York County Rail Trail Authority Barbara Kreider, Warwick Township, Lancaster County Audrey Littlehale, Drogaries Companies, Lancaster County Elissa Marsden, Delaware and Lehigh National Heritage Corridor Autumn May-Spiecher, Butler County Tourism Bureau John Mizerak, PA Department of Community and Economic Development Asaka Narumi, Greater Pittsburgh Convention & Visitors Bureau Shannon Ray, Pocono Mountains Vacation Bureau Phil Robbins, PA Department of Community and Economic Development Allen Saches, Delaware and Lehigh National Heritage Corridor Brian Sanders, PA Department of Transportation Marianne Scott, 10,000 Friends of Pennsylvania Michael Stokes, Montgomery County, Pennsylvania A. Elizabeth Watson, Watson Heritage Strategies Bonnie Wilkinson, PA Historic and Museum Commission The opinions, findings, conclusions, and recommendations in this book are those of the authors. They do not necessarily reflect the views of the funders, The Conservation Fund or the State of Pennsylvania. BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA v 28362.ps - 4/19/2005 4:56 PM vi BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 28362_007-010cx.ps - 4/21/2005 5:05 PM Purpose of Better Models Background "New Discount Retailer Threatens Downtown Pennsylvania is a Businesses" Special Place "Road Widening to Remove Historic Buildings" Pennsylvania is known worldwide for its mountains "Residents Protest Shopping Center Re-Zoning" and rivers, farms and forests, and cities and towns. It "Neighbors Oppose High Density Project at has productive agriculture, neighborly communities, a Hearing" diverse ethnic and religious heritage, and rich natural H beauty. The state's attractiveness, location, and natural EADLINES LIKE THESE are typical in many resources have attracted settlers since early Colonial communities throughout Pennsylvania. Peo- times. ple are concerned about changes in their way Although Pennsylvania has not grown as fast as the of life-decline in the character of their neighbor- national average over the last several decades, it is still hoods; increasing traffic congestion; encroaching com- expected to add nearly half a million people to its cur- mercial development; loss of farmland, open space and rent population of more than 12 million by 2020. trees; deteriorating water quality; or other environmen- Pennsylvanians are proud of their legacy. From tal problems. Community change doesn't have to be Native Americans to early pioneers, from the signers of traumatic, but it often is. As a result, the debate over the Declaration of Independence to the steel workers how to accommodate new development is frequently of Pittsburgh, from coal miners to farm families, loud and acrimonious and is almost always cast in Pennsylvania residents have long recognized the either-or terms-e.g., progress vs. preservation; growth Commonwealth's natural assets: magnificent moun- vs. no growth. tains, fertile farms, abundant forests, and rolling rivers, This book was written with the belief that this kind like the Allegheny, Delaware, Monongahela, Schuylkill, of debate is unproductive. The truth is that develop- and Susquehanna. Pennsylvania is also home to ment is inevitable, but the destruction of community numerous national parks and historic sites, such as character and natural resources that too often accom- Independence Hall, Valley Forge, and Gettysburg Bat- panies growth is not. Progress does not demand tlefield; the half-million-acre Allegheny National For- degraded surroundings. Pennsylvania communities can est; 2.4 million acres of state park and forest land, grow without losing their beauty, history, or livability. including America's third largest state park system; and Instead of debating whether growth will occur, we a model system of state heritage regions and corridors should be discussing the patterns that is nationally renowned. of development: where we put Erie it, how we arrange it, and what it looks like. If we start from this premise, communities can Scranton more easily balance conserva- Williamsport tion with economic develop- ment. What's more, this book State College presents many ideas on how to Allentown make development more Pittsburgh profitable and less costly for Harrisburg both the developer and the Philadelphia community. 28362_007-010cx.ps - 4/21/2005 5:05 PM Smart growth is pro-growth. We know that developers, banks and the entire community BUREAU rely on growth to fuel the economy. The goal is not to limit growth but to VISITORS& channel it to areas where infrastructure allows growth to be sustained CONVENTION over the long term. Hugh McCall, Jr., PITTSBURGH Former Chairman, Bank of America TER GREA© We should respect the land. It is our birthright, and Skyline, Pittsburgh almost every inch of it is densely layered with our his- tory. For all sorts of economic, social, and psychologi- But is this really what they see? Pennsylvania is one cal reasons, we should do more to protect the land, of the slowest growing states, but it has one of the and we should recognize that the landscape is the set- highest rates of per capita land consumption in Ameri- ting for all our buildings. New residential, commercial, ca. Between 1982 and 1997, the state's population and institutional buildings can either intrude on the grew by only 1.4%, but development consumed 47% landscape, or they can be designed and sited so that more land, with nearly 1.2 million acres of Pennsylva- they fit in. This book provides some ideas on how to nia farms, forest land and other open spaces lost to do this. suburbanization. According to a 2003 report by the Brookings Institution, Back to Prosperity, Pennsylvania We're Losing Ground is undergoing "one of the nation's most radical patterns Everyday in America people make decisions about of sprawl and abandonment." Pennsylvania's rural where to live, where to invest, where to vacation, or areas are growing much faster than the cities, which where to retire based on what our communities look indicates a high degree of sprawl. Development con- like. When people visit Pennsylvania, what do they sumes 350 acres of Pennsylvania's open space every expect to find? Beautiful mountains and valleys, day. In addition, much of the new development in the unspoiled natural areas, quaint small towns, and a Commonwealth is ill-planned and unattractive. Penn- unique sense of place. This is the image of the Com- sylvania's traffic congestion continues to worsen even monwealth-a reflection of its special character. in small towns and rural areas, and haphazard new development, combined with a lagging economy, is rapidly eroding the very qualities that make Pennsylva- nia unique. Southeastern Pennsylvania, for example, has experi- enced sprawling suburban growth for decades. Howev- er, in recent years, subdivisions, strip malls, office parks, and traffic congestion have spread from county to county. Sprawling development now threatens Adams, Franklin, Lancaster, York Counties and much of southeastern and south-central Pennsylvania. Between 1950 and 1990, the rate of land development in the Philadelphia region outpaced the rate of popula- Pennsylvania countryside tion growth by more than 6 to 1. In many cases, 2 BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 28362_007-010cx.ps - 4/21/2005 5:05 PM despite spending billions on new schools and trans- threat of sprawl development. portation projects, roads remain congested, schools Most Pennsylvanians love the overcrowded, local governments fiscally strained, nat- land and rivers and support Background ural resources threatened, and communities without a measures to protect them. Public sense of place. opinion surveys and local plan- In many parts of Pennsylvania, farms are giving way ning and visioning exercises demonstrate this. In 2001 to subdivisions. In the Poconos, beautiful views of the a survey of southeast Pennsylvania residents by mountains are marred by giant signs Millersville University's Center for touting fast food and gasoline. Even in Smart growth is growth Opinion Research found that 91% of economically distressed areas in north- that is economically respondents support increased public western Pennsylvania, the little growth sound, environmentally funding to protect open space. And that does occur often takes place on friendly and supportive of more than 80% support the use of the strip outside of town. Add to this community livability- government money to purchase land look-alike chain stores, big-box retail- growth that enhances our that protects open space from develop- ers, gaudy service stations, and soulless quality of life. ment. According to a recent poll in the subdivisions. Too often the results are Schuylkill watershed conducted by J. Ronald Terwillinger, brash, monotonous, or so out of place Former Chairman, Global Strategy Group, more than 80% that many citizens cringe at the Urban Land Institute of respondents would pay more for a prospect of more new development. new home if it had parks and/or natur- It is no wonder that national organizations have rec- al areas near by. And in fast-growing Lancaster County, ognized parts of Pennsylvania as "endangered." The a poll taken in 2004 found that 74% of respondents American Farmland Trust has ranked part of Pennsyl- think their community is growing too fast and that vania-including Adams, Bucks, Chester, Delaware, steps should be taken to better manage growth. Lancaster, Montgomery, and York Counties-as the nation's second most threatened agricultural area. In Using Better Models 1999 the National Trust for Historic Preservation listed This publication presents six principles for better Lancaster County as one of America's 11 Most Endan- development. Each principle is illustrated with numer- gered Historic Places; in 2000, it listed the Valley ous examples of alternatives to conventional develop- Forge National Historical Park. And Scenic America ment that are more attractive, more efficient, and more named Cooks Creek Watershed in Bucks County one profitable. There are many such models throughout of its Last Chance Landscapes in 2000 because of the Pennsylvania and across the nation. Downtowns are being rejuvenated, open space is being preserved, his- toric buildings are being restored, and farmers are working to protect their way of life. Attractive new affordable, walkable, and mixed-use developments are being constructed, and new transit systems are gaining awards and growing support. These real-life examples, in contrast to the image of standard development, are glimpses into one possible future-a future where development complements rather than conflicts with the state's unique character. The coming decades will determine what subsequent generations experience here. Either Pennsylvania's Pennsylvania State Capitol, Harrisburg small towns, suburbs, and rural communities replicate BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 3 28362_007-010cx.ps - 4/21/2005 5:05 PM tions, small jurisdictions have limited capacity to deal with growth and development issues. Furthermore, only about one half of all Pennsylvania municipalities have a comprehensive plan, and less than 60% of municipalities have a zoning ordinance. Better Models is not a call for more regulation. Rather, it is a call for a more thoughtful approach to new development and redevelopment. Successful com- munities use education, incentives, and voluntary ini- tiatives-not just regulation-to achieve desired out- comes. Many of the projects featured here were under- Downtown, Lewisburg taken by individuals, businesses, and communities of their own accord. At the same time, it is clear that the unsatisfying building patterns of fast-growing areas local governments need additional planning tools and in other parts of America, or we take action now. resources to better manage growth. In the meantime, Pennsylvania has 2,565 municipalities, 501 school creative use of existing tools, including strong zoning, districts, hundreds of agencies and thousands of comprehensive plans, corridor overlays, design guide- authorities. This means that land use decision-making lines, development impact fees, multi-municipal and is widely dispersed among numerous small jurisdic- regional initiatives, and conservation easements, can tions. All too often consumed with day-to-day opera- result in better development. 4 BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 28362.ps - 4/19/2005 4:56 PM Six Principles for Better Development 1. Conserve Pennsylvania's Farmland, 4. Preserve Historic Resources Natural Areas and Scenic Assets Pennsylvania's rich history is evident in the wealth of The first principle of better development should be historic buildings and archeological sites found in cities, identifying where not to develop. Successful communities small towns and rural areas throughout the state. Historic always identify the areas that are most important to protect, assets should be identified and protected, and developers whether it is farmland, forests, greenway corridors, riparian should be encouraged to rehabilitate and reuse historic buffers and groundwater recharge areas, natural areas, scenic structures. Protecting historic resources such as small-town views or wildlife habitat. Every community needs an open main streets is also important because historic preservation space protection plan and the resources to implement it. is a powerful tool for economic revitalization that generates Communities that have a blueprint for conservation are more jobs and attracts tourists and investors. amenable to accommodating growth in the areas where it is 5. Respect Local Community Character most appropriate. On the other hand, when citizens think all in New Construction land is up for grabs, they often oppose development every- Eighty percent of everything ever built in America has been where. Conserving natural and scenic assets is also important built since the end of World War II, and much of it is because working farms, forests, and scenic landscapes con- cookie-cutter, off-the-shelf junk. New buildings can either tribute to the economic vitality of our communities. complement the character of Pennsylvania communities, or they can turn the state into "Anyplace USA." Pennsylvania 2. Maintain a Clear Edge between communities should do more to ensure that new construc- Town and Countryside tion-particularly chain stores, shopping centers, and fran- Pennsylvania has many strong cities and towns as well as chises-respects local character. Pennsylvania's natural set- healthy rural landscapes. Safeguarding the rural character of ting, historical development pattern, and architectural tradi- Pennsylvania means maintaining a clear edge between cities, tions make this a distinctive place. By identifying what makes each community unique, and what harms that towns, and countryside.This can be done by protecting agri- uniqueness, localities can develop standards that foster dis- cultural land and open space while encouraging more com- tinctive, attractive communities with economic vitality and a pact building design and walkable communities. It also means strong sense of place. encouraging infill development in our older communities, on vacant, underused or overlooked land near transit and on 6. Reduce the Impact of the Car and reclaimed former industrial sites (brownfields). By working Promote Walkability to maintain a clear edge between town and countryside, Reducing the impact of the automobile means providing Pennsylvania can preserve its rural landscapes and at the more transportation choice. It also means designing trans- same time enhance the vitality of its existing communities. portation facilities that are beautiful as well as functional, that meet the needs of people as well as those of motor 3. Build and Maintain Livable and vehicles, and that respect and enhance local communities. Attractive Communities Design standards for neighborhood streets, roads, bridges, Attractive and livable cities and towns are the flip side of parking lots and other transportation facilities should be protecting rural character. Livable communities have a bal- reexamined to make them more human-scale and commu- ance of jobs, homes, services, and amenities and provide nity friendly. Even minor design improvements can lessen interconnections among these elements. Livable communi- the negative visual and environmental impacts of new roads ties provide housing choices and are walkable and afford- and bridges.Transportation choice can be expanded by able.They're also well designed and attractive.Vibrant providing better public transportation and building more downtowns are especially important because they are the sidewalks, trails, and bike paths that can create a network of heart and soul of Pennsylvania communities, appeal to all non-motorized transportation options within and between communities to allow citizens to increase their physical ages, and provide the distinctive image that people take activity close to home. Communities can also foster healthy with them.We can even reshape the strip to make it more lifestyles by considering walkable, mixed-use development appealing and functional.Wherever new development or and traffic-calming measures like roundabouts, curb exten- redevelopment occurs, location, scale, siting and design sions, or narrowing streets to slow down traffic and make decisions should be carefully considered. walking and biking more desirable. BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 5 28362.ps - 4/19/2005 4:56 PM Economics and Environment Can Work Together DEVELOPMENTdoes not have to mean destruc- ties believe that they must accept any and all develop- tion of the things that people love. The mod- ment. These communities will compete to the bottom. els presented in this book prove that econom- On the other hand, communities that set standards ic development and environmental protection can be compete to the top. This is because savvy communities compatible. In fact, maintaining the natural and histor- know that if they say "no" to bad development, they ical integrity of Pennsylvania is fundamen- will always get better development in its tally important to the state's economic Conservation is a place. All of us-citizens, elected officials, well-being. High quality of life increases the state of harmony business leaders, builders, environmental- state's ability to attract and keep a skilled between man ists, and community leaders-can deter- work force. Attractive, livable communities and nature. mine the future of Pennsylvania communi- have more choices. To sell short our natural Aldo Leopold ties, if we put a high enough priority on and cultural assets will cost more in the identifying the things we really care about. long run-socially, economically, and environmentally. Sometimes builders argue that if people didn't like Increasingly, communities across the country are rec- what they produced, consumers wouldn't buy it. This ognizing this link. is, of course, a vastly oversimplified version of what's really going on. Many homebuyers buy homes in com- It's Our Choice munities that they know are flawed. They buy because Pennsylvania communities have a choice about how of location, the quality of local schools, or the price- they grow. The quality and design of new development even though they might prefer neighborhoods and and redevelopment can be significantly improved, but commercial areas very different from what is offered. too often the debate over development is seen as an This book is based on the belief that there are better, either/or contest: development versus no development, more attractive, and more profitable ways to build. progress versus preservation. A more useful framing of the issue is to concentrate on how and where we develop. Once we define what is damag- ing or unsatisfying about conventional development patterns, we can address those concerns. The three most critical elements are the location, layout, and design of new development. Progress does not demand degraded surroundings. Pennsylvania can have a strong economy and abundant open space. It can have new development and a healthy environment. It's a matter of choice. Each community can choose how it develops. Communities that accept the lowest common denominator in new development will usually get it. Commu- nities that set higher standards achieve higher results. However, many communi- Successful communities identify key assets. 6 BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 28362.ps - 4/19/2005 4:56 PM ing. Only with widespread recog- Secrets of Successful Communities nition of what makes the state special do we have a chance to Background Successful communities that follow the six principles safeguard the treasure that is always have a few things in common.They typically: Pennsylvania. * Create a shared vision for the future * Identify key natural, cultural, scenic, and economic Who Can Help assets * Individual residents * Build all local plans-including economic develop- * Builders and developers ment, tourism, and land use plans-around the * Local business, labor, and citizen groups preservation and enhancement of key assets * Local governments * Use education, incentives, and voluntary initiatives, * Nonprofit conservation and preservation organiza- not just regulations tions * Pick and choose among development proposals * State agencies * Meet the needs of landowners, business interests, The protection of Pennsylvania's sense of place and the community depends on all of us. With a widespread ethic that this * Pay attention to community appearance as well as issue is important, the state can remain not just a spe- economics and ecology cial place that reflects what was given to us, but also a * Assess the impacts of land use policies special place where new development adds to this * Recognize the link between land use and trans- legacy. portation planning * Make Quality of Life a key organizing element of Identifying Key Assets the community vision Location ... location .... location. Successful communi- ties know where their assets lie. If a community's char- Creating a Shared Vision acter, as expressed through its natural, scenic, and his- No place will retain is special character by accident. toric assets, is to be safeguarded, the first step is identi- Successful communities always have a "vision" for the fying the location and significance of particularly future. And often the communities that have a shared important features. Among these might be historic vision are among the most desirable and economically buildings, sites, and neighborhoods, or natural sound in the nation. Working to maintain a distinctive resources such as riparian areas, special habitats, prime local identity can pay off. agricultural soils, large blocks of contiguous forest A well-articulated vision will benefit everyone. Once land, steep slopes, and scenic views. In Pennsylvania, clear expectations are set, builders know what the assets can be identified and protected through up-to- rules are and can plan accordingly. Similarly, time con- date county, municipal, or multi-municipal compre- suming reviews can be expedited for projects meeting hensive plans. these standards. This will free staff time for other Recognizing what is worth preserving is the first important matters and help reduce opposition to new step toward better development. Once citizens clarify development. what they care about, it is easier to find strategies to The key is for each community to develop its own protect special places or irreplaceable resources. A shared vision for the future and raise expectations clear public consensus on conservation can also give throughout the region. This sense of shared future direction to elected officials and offer builders and throughout Pennsylvania is especially critical for developers more certainty and predictability about regional issues like transportation, landscape protec- development. tion, recreation, heritage tourism, and affordable hous- The key to protecting the natural environment is BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 7 28362.ps - 4/19/2005 4:56 PM first to protect our rivers, streams, groundwater tive advantage by building on a community's strengths recharge areas, wetlands, critical habitats, steep slopes rather than its weaknesses. Second, these assets pro- and other environmental areas, then to protect the vide a "sense of place," a quality for which more and working landscapes: the farms and forests that auto- more Americans are searching. In an increasingly matically enhance rural economies and protect natural homogenous world, a community with its own feel habitat. Keeping large expanses of land in productive and flavor stands out. use is also essential to assure the critical mass needed to support a resource-based economy. The "rural her- Pick and Choose among Development Proposals itage" of Pennsylvania has meaning and relevance for Successful communities pick and choose among devel- all state residents, whether you live in a city, suburb, opment proposals because they know that "all devel- or rural area. opment is not created equal." They also know that The key to enhancing the built environment is first, when they say no to development that is contrary to to do no harm. This means protecting historic their comprehensive plan or bad for the community, places-buildings, neighborhoods, and landscapes- they will almost always get better development in its and second, ensuring that new construction respects place. community character. New buildings, whether stores, Successful communities have the courage to reject homes, offices, or government buildings, should be development that doesn't enhance local values. Yet, too good neighbors and respect the landscape. The historic many local officials are simply afraid to say "no" to fabric of Pennsylvania's towns and cities is one of the poor quality development. It has been shown time and most important characteristics of our state, and it is again that communities that set higher standards get vital to the health of our tourism industry. better results. On the other hand, communities that set no standards will compete to the bottom. At the same Build on Local Assets time, they should realize that they can't deal with the Successful communities craft land use and economic challenge of growth simply by resisting all change. development policies around their distinctive assets: river corridors or waterfronts, stunning views or his- Use Education, Incentives and Voluntary toric buildings, a local college or university, a particu- Initiatives, Not Just Regulations lar crop or manufactured product, a blue-ribbon trout We need regulations. They set minimum environmen- stream or a unique species of vegetation or wildlife. tal standards and help prevent bad things from hap- Building on distinctive local assets is important for pening, but successful communities use the carrot as several reasons. First, these assets provide a competi- well as the stick. Successful communities use incen- tives and voluntary initiatives, like conservation ease- ments, density bonuses, transfer of development rights, expedited permit review, stormwater credits and differential taxation to encourage higher quality devel- opment. Successful communities also understand the importance of community education. People won't VICES preserve what they do not understand. Education SER about the economic, social and envieonmental benefits MEDIA TH of historic preservation, conservation development, walkable communities, and other better development concepts goes a long way toward reducing opposition COMMONWEAL© to sensible land use regulations. Small towns are one of Pennsylvania's biggest assets. 8 BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 28362.ps - 4/19/2005 4:56 PM Meet the Needs of Both Landowners ance is fundamentally important and Community to economic well being. Every In most communities, problems don't result from single day in America, people Background development itself, but from the patterns of develop- make decisions about where to ment: Where it takes place, how it's laid out and what live, where to vacation and it looks like. Successful communities court reputable where to retire based on what our communities look developers who are willing to do more than meet legal like. Travel teaches you many things, not the least of mandates and who work closely with the community which is that new development doesn't have to be throughout the development process. ugly, but all too often it is. How a city or town looks to Conversely, communities that expect landowners new businesses is important to whether or not a busi- and developers to produce a responsible product must ness decides to locate in your community. also recognize that developers have legitimate expecta- Community appearance is especially important to tions as well. Developers who are willing to build envi- communities seeking to attract tourists and their dol- ronmentally sensitive projects have a right to expect lars. The more Pennsylvania communities come to flexible communities willing to modify standard zon- resemble everyplace else in America, the less reason ing and engineering requirements. there is to visit. On the other hand, successful commu- nities know that the more they do to protect their Pay Attention to Community Appearance unique characteristics, whether natural or man-made, Successful communities know that community appear- the more people will want to visit. Tools to Use Resource Inventories - Specific resources, including munity, or studying aerial photographs. All enhance natural areas, rare and endangered species, historic residents' awareness of how their community is laid sites, open space, scenic views, prime farmland, and so out and how it looks-with an eye toward planning on, should be identified, described, and mapped. The how it might look like in the future. process of inventorying key resources can be undertak- en by citizen groups, private organizations, or public Surveys of Visual Preferences - This widely used agencies-or a coalition of such groups. These inven- technique allows residents to view images of various tories can be indispensable for building community types of local development and then to rate the images awareness and consensus and for planning the future. on a scale from negative to positive. Discussion of the This kind of inventory is also an important foundation results clarifies what makes a development project for the Department of Conservation and Natural desirable or disappointing and helps pinpoint what cit- Resources County Greenway and Open Space Network izens care most about. These surveys can be profes- Planning Program. sionally conducted or they can be done simply by hav- ing people photograph what they like most and what Visual Assessments - Numerous visual assessment they like least in their community, and then comparing techniques can help local citizens and officials in the results in a community forum. understanding and evaluating their communities. These include mapping special places in the communi- Community Visioning - Successful communities ty, whether through geographic information systems always have a vision for the future. Community vision- (GIS) or some other means, designing a tour for visi- ing allows residents and local leaders to go through a tors, taking photographs of typical scenes in the com- series of exercises that helps them identify community BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 9 28362.ps - 4/19/2005 4:56 PM assets as well as community weaknesses or opportuni- trols. Communities are often surprised to see the ties, in order to articulate what they think the commu- extent of development allowed, by right, in their ordi- nity should be like in the future. This "vision" can then nances-and such realization can be the impetus for be established as a goal for policy making, and various revising them. strategies can be developed to achieve that goal. Design Charrettes - Through a community work- FOR MORE INFORMATION: shop, residents assisted by professional designers, including landscape architects, urban designers, archi- O, Say Can You See? A Visual Awareness Toolkit for Communi- tects, transportation engineers, or planners, can work ties. Scenic America, School of Landscape Architecture, to develop solutions to community design problems. SUNY Syracuse, and Rivers,Trails and Conservation Assis- For example, a charrette might focus on streetscape tance, National Park Service; (202) 638-0550, design, gateways, a community park, or new residen- www.scenic.org. tial development. PennSCAPEs (Pennsylvania Strategies, Codes and People Visual Simulations - New technologies allow com- Environments), CD-ROM, Pennsylvania State University, munities to see what proposed development will look College of Arts and Architecture, Department of Land- like before it occurs. Alternative designs for shopping scape Architecture; (814) 865-9511, www.penn- centers, road corridors, or subdivisions can be simulat- scapes.psu.edu. ed so that residents can evaluate the pros and cons of future development. Such simulations can be accom- Pennsylvania Blueprints: Best Land Use Principles and Results, plished through drawings, models, or computer graph- Interactively Shown, Pennsylvania State University, College of ics. The most realistic simulations are usually achieved Arts and Architecture, Department of Landscape Architec- through computers and video technology. ture; (814) 865-9511, www.larch.psu.edu.. Buildout Studies - Predicting future development in Planning for the Future: A Handbook on Community Visioning, the community, based on physical constraints, market Second Edition.The Center for Rural Pennsylvania; (717) demand, and current zoning and other regulations, 787-9555, www.ruralpa.org. can help residents evaluate existing development con- 10 BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 28362.ps - 4/19/2005 4:56 PM Barriers to Better Development A Background LL DEVELOPMENT is not created equal. Better High Development and development approaches can be more prof- Process Costs itable, more attractive, and more convenient Local fees and costs for development, including con- than conventional sprawl-type development. It makes struction impact fees, which fail to factor in the bene- more efficient use of land, provides more transporta- fits of better development can increase land and con- tion choice, reduces costs for new infrastructure, and struction costs. Also, a shortage of suitable infill sites is more respectful of Pennsylvania's beauty, history, and make smart growth more expensive and complicated. environment. However, despite these benefits, smart Local and state governments need to provide incen- growth represents only a small portion of recent devel- tives for the reuse of historic structures, brownfield opment in Pennsylvania. This is because applying the development, downtown revitalization, transit-oriented better development principles is often more difficult development, and other infill projects. than conventional development for several reasons. The key impediments to better development are: Financing by Formula A lack of comparables, the secondary financing mar- Inflexible Local Regulations ket, and bank structures and procedures can make Local regulations are often an impediment to smart securing financing for better development projects dif- growth. Most local zoning, subdivision, and land ficult. In general, bankers fund projects in a formulaic development regulations make it easier and faster to way, so that only standard types of developments, with build conventional, single-use suburban-type develop- predictable outcomes, receive financing. In addition, ment. For example, local regulations frequently man- excessive parking requirements that are often imposed date a separation of housing, shopping, and offices and by lenders add expense and may conflict with the provide little flexibility in lot size or street width. Local goals of both the developer and the community. officials should make zoning and subdivision regula- tions more flexible so as to encourage conservation Proposing High Density Without Amenity development, traditional neighborhood developments Many worthy projects, including both infill develop- (TNDs), mixed uses, narrower streets, and other better ment and greenfield development on the edge of town, development concepts. have met with community opposition. The public may Outdated Market Perceptions U.S. Household Types (2002 Census) Better development is an unfamiliar market to many developers and, as such, it is perceived as risky. Out- dated assumptions often inform current market and Living demographic analyses. This prevents developers from Family with alone children building projects for significant groups of consumers 26% under 18 yrs with specific needs, tastes, and preferences. Today 33% more than 70% of American households do not have Shared school-age children. As a result, empty nesters, home, Family without not retirees, unrelated singles and younger couples are all children under related 18 yrs growing market segments that crave more walkable, 6% 35% mixed-use neighborhoods. Yet the market provides them with few choices. Only about a third of all households have school-aged children. BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 11 28362.ps - 4/19/2005 4:56 PM Consumer Preferences for Neighborhoods and Amenities Percentage of Respondents For Neutral Against Town Center A. Town center has a village green surrounded by shops, civic buildings, churches, etc., and is the focal point for residential neighborhoods clustered around it. 86 8 6 B. No single community center: shopping and civic buildings are distributed along commercial strips and in malls. 23 20 57 Street patterns A. Narrow streets are centered on the town square and in a city block grid to encourage walking and discourage in-town driving.Traffic flows through all residential and commercial streets. 55 17 28 B. Streets are wide to make it convenient to drive in town. Shopping areas are farther apart so that walking is not practical. Neighborhoods have cul-de-sacs and courts that are linked by higher-speed major streets. 46 20 34 Parking and cars in town A. Town is less automobile oriented.Town center has parking structures instead of large lots. Higher-density development with walking and biking paths encourages people to get around town without a car. 69 16 15 B. Auto-oriented suburbs have acres of parking around commercial and public areas.Things are far enough apart that you need to drive to most places, especially for shopping. 25 21 54 Density of residential areas A. Lots are smaller, with houses closer to the street and smaller front yards in the style of small-town neighborhoods. Sidewalks are on both sides of narrower streets.The focus is on shared community recreation areas instead of larger private yards. 33 19 48 B. Larger lots and wider streets make lower-density neighborhoods. Houses are set farther back from the streets with larger yards.There is less space for shared community recreation. 73 14 13 Mix of housing types and ages of residents A. There is a wide range of housing types-single-family detached, row houses, duplexes, and apartments-in neighborhoods.Town center also has apartments above shops. Neighborhood is designed to attract a wide range of ages, including seniors and young singles. 44 17 39 B. Strict zoning separates single-family areas from neighborhoods with higher-density housing. Narrow age range and fewer family types are found within neighborhood. 50 21 29 Source: Brooke H.Warrick, conference report at "Techniques in Traditional Neighborhood Development," 1997. 12 BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 28362.ps - 4/19/2005 4:57 PM perceive compact development as a bad thing, but the of existing communities and problem is that in many projects density comes with- facilitate new development on out any compensating amenity. Density with amenity vacant or underutilized land Background will sell. Two of the most important amenities are high already served by roads and quality design and green space. For most people, the other public services. character of the neighborhood is far more important than the size of the lot. Low Expectations All development is not created equal. Communities that set higher standards get higher results, but some local officials are afraid to say "no" to poor quality development. Successful communities know that if they reject poor quality development, they will almost always get better development in its place. This is because most businesses will readily meet higher stan- dards to be in an economically profitable location. Adapted from Principles of Smart Development, American Planning Association, 1998. Infrastructure investments can either encourage or discourage sprawl. FOR MORE INFORMATION: Public Infrastructure Subsidies Principles of Smart Development, PAS Report #479, Ameri- The willingness of state and local government to pay can Planning Association, 1998; (312) 786-6344, www.plan- for new roads, utilities, and schools which service ning.org. far-flung greenfield development encourages sprawl while increasing the cost of government services. Smart Growth: Myth and Fact, by the Urban Land Institute, Smart capital investments can encourage revitalization 1999; (800) 321-5011, www.uli.org. BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 13 28362_020cx.ps - 4/21/2005 5:06 PM Principle 1: CONSERVE FARMLAND, NATURAL AREAS AND SCENIC ASSETS SAVE SAVE or or PA P VE? AVE? 14 BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 28362.ps - 4/19/2005 4:57 PM PRINCIPLE 1: Conserve Farmland, Natural Areas and Scenic Assets The first principle of better development should be identifying where not to develop. Successful communities always identify the areas that are most important to protect, whether it is farmland, forests, greenway corridors, riparian buffers and groundwater recharge areas, natural areas, scenic views, or wildlife habitat. Every community needs an open space protection plan and the resources to implement it. Every community needs an open space protection plan and the resources to implement it. Communities that have a blueprint for conservation are more amenable to accommodating growth in the areas where it is most appropriate. On the other hand, when citizens think all land is up for grabs, they often oppose development everywhere. Conserving natural and scenic assets is also important because farmland, forests, and scenic landscapes contribute to the economic vitality of our communities. Protect Open Space Would you rather see crops or concrete on Pennsylvania farmland? PENNSYLVANIAis the leading agricultural state in farms and forests attract new businesses and wealth to the northeastern United States, generating near- communities, increase property values throughout the ly $5 billion in annual revenues from farming. state, and support the tourism economy. Properly Pennsylvania's chief agricultural commodities include managed farmland and forests ensure viable long-term dairy products, cattle and calves, mushrooms, green- production and play a key role in sustaining healthy house and nursery crops, and eggs. Likewise, the forest natural systems by providing plant and wildlife habitat products industry contributes substantially to the and migration corridors, watershed protection, and wealth of the Commonwealth. But both farming and other benefits. forestry face many challenges. One of the greatest of Today, nearly 60% of Pennsylvania's land area- these is encroaching suburbanization. some 17 million acres-remains in forest, a renewable Farmland and forests are critical to Pennsylvania's resource that sustains the rural economy while provid- economic health not just because of the value of the ing aesthetic, recreational, tourism, and environmental products they generate, but also because they con- benefits. These forests support 10% of the state's man- tribute to the state's economy as scenic and environ- ufacturing work force. Residents and visitors are mental assets. Pennsylvania's working landscapes of attracted to state forests and gamelands for their recre- BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 15 28362.ps - 4/19/2005 4:57 PM ational and scenic value. They provide habitat for more than 40% of the state's endangered and threatened species and support a wildlife and out- door recreation industry that brings billions of dollars to the state. Although most of the Com- monwealth's forested land is privately owned, Pennsylvania's public forest system is one of the largest in the eastern U.S. More than 70 species, including red oak, hickory, walnut, poplar, birch, and maple, make up the vast resource. Despite the vital contribution that farms and forests make to local economies, farmers and for- est landowners currently receive inadequate finan- cial return for their contribution to local quality of Agriculture is a leading industry in Pennsylvania. life, and thousands of acres of Pennsylvania's prime farmland in the southeastern and south central Pennsylvania farmland, forests and other open space parts of the state have been converted to development. land were lost to suburbanization. Even the most profitable farms are sometimes less lucrative than selling land for subdivisions. Pennsylva- I According to the American Farmland Trust, south nia's forests are threatened by unsustainable forest central Pennsylvania is part of the second most management practices, air pollution, and sprawling threatened agricultural landscape in America. new development. If agriculture and forestry are to remain vital ele- I Numerous studies across the nation show that farms ments of Pennsylvania's economy, state, regional, and generate more taxes than the cost to service them. local leaders will have to take full advantage of the opportunities available to ensure the long-term eco- I Pennsylvania is the nation's leading producer of nomic viability and productivity of the state's agricul- hardwood lumber, with sawmills producing more tural and forest lands. We can identify a number of than 1 billion board feet of lumber a year. ways to make it possible and desirable for private landowners to keep their land part of the working I Pennsylvania leads the nation in exporting hard- landscape. wood lumber and wood products, with sales of $261 million in 2001. THINGS YOU SHOULD KNOW: I More than 3,000 forest product companies are I The total value of Pennsylvania's agriculture industry located in Pennsylvania, employing nearly 92,000 in 2002 was nearly $5 billion. workers. I One out of every five Pennsylvanians is employed in I Pennsylvania has more than 3.5 million acres of agriculture or related industries. State Forest and Game lands. These lands encom- pass wilderness areas, rivers, streams, lakes, and I Approximately 5 million acres of land are in active mountains. Much of this land is open to the public agricultural production statewide. for hunting, fishing, camping, hiking, boating, bird- ing, and biking. I Between 1982 and 1997, nearly 1.2 million acres of 16 BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 28362.ps - 4/19/2005 4:57 PM I More than 1.6 million Pennsylvania residents hunt help to ensure that its value is and/or fish, and nearly 3.5 million participate in recognized-both in planning Conserve wildlife watching. documents and by the public at Natural and large-so that it will not be Scenic Assets TOOLS TO PROTECT FARMLAND developed or destroyed. AND OPEN SPACE Protecting farmland, forests, and open space requires Planning and Regulatory Tools not only protecting a productive and sufficient land Prior to World War II, most of Pennsylvania was farm- base but also addressing the many financial and legal land or forest, and there was little rural development stresses on the rural way of life. Without pressure. For the last 50 years, however, residential resource-based industries, there is little chance of and commercial development has made it increasingly retaining the rural landscape that distinguishes large important for the state and local jurisdictions to work parts of Pennsylvania. The key to long-term farmland with farmers to preserve agricultural land. The follow- and open space preservation is to reduce development ing are planning and regulatory tools that communities pressure, while appropriately protecting property can use. rights. An effective strategy must be two-pronged. It should I Municipalities Planning Code - The Pennsylvania include both compensation and regulation. It must Municipalities Planning Code specifies that a compre- limit the potential for non-agricultural uses in rural hensive plan shall include a plan for protecting natural areas. At the same time, it must provide the stability resources including prime agricultural land and and financial resources to help farmers stay in busi- require the compatibility of land use regulation with ness. Farmers need a critical mass of farmland, but existing agricultural operations. they also need to maintain the value of their primary asset-their land. I Effective Agricultural Zoning - Agricultural zon- Much of Pennsylvania's character, beauty, and ing limits the number of dwellings permitted to a rural groundwater recharge areas also derive from privately density-for example, one dwelling per 30, 50, or owned nonagricultural open space. Such land may be more acres. This type of zoning requires the support of valuable as wetland, wildlife habitat, historic land- the agricultural community for its adoption and imple- scape, scenic vista, park land, or biological preserve. mentation. The key to protecting this land is to provide private landowners with incentives for protecting it. This will I Sliding Scale Zoning ­ Sliding scale zoning attempts to concentrate development by placing restrictions on land based on the size of the parcel. As the size of the parcel increases, the number of dwelling units allowed in relation to the total area decreases. This protects the right to add dwelling units to smaller parcels while forestalling large-scale, dense develop- ment on rural tracts. I Preferential Taxation - Pennsylvania's Clean and Green Law allows owners of agricultural or forest land to apply for preferential assessment of their land. If approved, the land receives an assessment based on Pennsylvania is losing farmland at a rapid pace. use value, rather than market value. Lower tax rates BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 17 28362.ps - 4/19/2005 4:57 PM help keep farming and forest products industries I Greenways and Open Space Network Planning viable. The Department of Conservation and Natural Resources encourages all counties to work with their I Agricultural Security Areas - Voluntarily formed municipalities to develop county-wide greenway plans with local government, Agricultural Security Areas by 2007. Such plans identify a greenways network of provide protection from nuisance ordinances and natural resources and open space to be linked. In some require extra levels of review for projects involving areas of the state, counties are taking a regional land condemnation. With at least 250 acres of viable approach to greenway and non-motorized transporta- agricultural land, an Agricultural Security Area desig- tion planning. nation helps ensure that active farming can continue. Currently more than 2.5 million acres are enrolled in Compensatory Tools Agricultural Security Areas in Pennsylvania. I Agricultural Conservation Easement Purchase Program - The Pennsylvania Farmland Preservation I Mandatory Open Space Requirements - Manda- Program, administered by the Bureau of Farmland tory open space requirements are specified Preservation, encourages long-term private percentages of land parcels that must be You don't know stewardship of agricultural lands. The pro- kept undeveloped. For example, Columbia, what you got `til gram provides funding for the state, county, Lancaster, Lehigh, Montour, Northampton, it's gone. and local governments to purchase conserva- Potter, and Susquehanna Counties all have tion easements from farmland owners. Fifty Joni Mitchell mandatory open space requirements. How- three of Pennsylvania's 67 counties have ever, such requirements for open space may not per- agricultural land preservation boards that participate in tain to municipalities, since their Subdivision and the Farmland Preservation Program. Land Development Ordinances do not mandate open space setasides. I Land Trust Grant Program - Qualified land trusts registered with the State Agricultural Land Preservation Board can receive reimbursement grants for expenses incurred in the acquisition of agri- Four Development Options for the cultural conservation easements. Such Fringe Countryside on 50-Acre Sites expenses include appraisal costs, legal ser- vices, title searches, document preparation, I I I I I I I I I I closing costs, and the like. I I I I I I I I I I I I I I I I I I I I I I I I I I Transfer of Development Rights (TDR) I I I I I I I I I I I I I I I TDR programs allow landowners to transfer I I I I I I I I I I the right to develop a parcel of land to 1. Suburban pod 2. Large residential lots another parcel of land. In the context of 50 units on one-acre lots 10 five-acre lots farmland preservation, TDRs are used to I I I I I shift development from agricultural areas to I I I I I designated growth zones closer to urban ser- I I I I I I vices. TDR is a technique used primarily by I I I I I DANIELS counties and municipalities but it involves TOM I I I I I the private marketplace. TDR programs dif- BY 3. Cluster development of 25 units 4. Agricultural zoning at one fer from the purchase of development rights and 25 acres of open space dwelling per 50 acres DIAGRAM in that transactions are between private 18 BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 28362.ps - 4/19/2005 4:57 PM Publications The Economic Benefits of Parks and Conserve Open Space, by Steve Lerner and Natural and William Poole,Trust for Public Scenic Assets Land, 1999; (800) 714-LAND; www.tpl.org. Growing with Green Infrastructure, by Karen S.Williamson, Heritage Conservancy; (215) 345-7020, www.heritagecon- servancy.org. Opportunity Knocks-Open Space is a Community Invest- Pennsylvania has protected more than 292,000 acres ment, by Michael Frank, 2002, Heritage Conservancy, of farmland. Doylestown, PA 18901;(215)345-7020,www.heritagecon- servancy.org. landowners and developers. Local governments in Pennsylvania have successfully used TDR programs, Planning for Agriculture, Governor's Center for Local Gov- including Lower Chanceford Township in York County ernment Services, Department of Community Economic and Manheim Township in Lancaster County. TDRs Development, February 2003; (888) 223-6837, can also be used across municipal boundaries as part www.inventpa.com. of a multi-municipal comprehensive plan. Public Finance for Open Space: A Guide for Pennsylvania's I Local Funding Sources - Throughout America com- Municipalities, by Gary Gordon, n.d., Heritage Conservancy, munities use a variety of dedicated funding sources to Doylestown, PA 18901; (215) 345-7020, www.heritagecon- pay for farmland protection, land conservation, or park- servancy.org. land acquisition. Some of these include: sales taxes, real-estate transfer taxes, lottery proceeds, license plate Saved By Development: Preserving Environmental Areas, Farm- sales, parking garage revenues, and general obligation land, and Historic Landmarks with Transfer of Development bonds. For example, numerous townships in Bucks, Rights, by Rick Pruetz, Arje Press, 1997. Chester, Delaware, and Montgomery Counties have raised money to save open space through real estate or Saving American Farmland:What Works, by the American earned income taxes. Berks, Chester, Lehigh, Mont- Farmland Trust,Washington, D.C.; (202) 659-5170, gomery, Northampton, and Schuylkill counties, among www.farmland.org. others, have passed bonds for land conservation. Saving America's Countryside, 2nd Edition, by Samuel N. FOR MORE INFORMATION: Stokes, A. Elizabeth Watson and Shelley S. Mastran,The Johns Hopkins University Press, Baltimore, MD, 1997; (800) Organizations 537-5487. American Farmland Trust, 1200 18th Street,Washington, DC 20036; (202) 331-7300, www.farmland.org. When City and Country Collide: Managing Growth in the Met- ropolitan Fringe, by Tom Daniels, Island Press, 1999; (800) Pennsylvania Department of Agriculture, Bureau of Farm- 828-1302. land Preservation, 2301 North Cameron Street, Harris- burg, PA 17110; (717) 787-4737. BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 19 28362.ps - 4/19/2005 4:57 PM Use Conservation Easements As a landowner, what legacy would you like to leave? You can develop your land, or you can choose to shield it from development. The land on the right has been voluntarily protected. CONSERVATIONEASEMENTS,widely used in heirs. The sale of an agricultural easement can provide Bucks, Chester, Lancaster, and Montgomery much needed income for farm operations. Most con- Counties, for example, have become popular servation easements restrict development and other throughout Pennsylvania. For a variety of reasons, land uses that harm natural, scenic or historic many Pennsylvania landowners have chosen this legal resources while continuing to allow traditional uses tool to protect farmland, forests, riparian such as farming and forestry. zones, trail and greenway corridors, natur- Conservation al areas and historic sites. What is a Land Trust? easements are a way One solution to reducing the pressure Land trusts are local, regional or to save your view on Pennsylvania's open space is to statewide private, nonprofit organizations and get a tax increase the use of conservation easements that hold and monitor easements. Land break too. to protect farmland, forests and other trusts also work to protect important nat- resources. The Pennsylvania Agricultural ural and cultural resources through edu- Conservation Easement Program (CREP) Jean Hocker, cation and acquisition. The land trust or Land Trust Alliance was established in 1988 to encourage easement holder monitors the easement long-term private stewardship of agricultural lands. over time and is responsible for ensuring that the con- The program provides funding for the state, county, ditions of the easement are upheld by future owners of and local governments to purchase conservation ease- the land. There are more than 87 land trusts in Penn- ments from farmland owners. sylvania. Of these, seventeen are registered with the State Agricultural Land Preservation Board, which What is a Conservation Easement? allows them to be reimbursed by the state for expenses A conservation easement is a legal agreement between incurred in the acquisition of agricultural conservation a landowner and a land trust that provides the easements up to $5,000 per easement. landowner with continued agricultural or open-space use of the land while permanently protecting its con- How Do Easements Work? servation values. It allows the landowner to continue Placing an easement on land does not mean that the to own and use the land, to sell it or pass it on to land cannot be developed at all. The landowner 20 BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 28362.ps - 4/19/2005 4:57 PM decides the types of development he wants to prohibit. permanent conservation ease- For example, an easement on a farm would typically ment to be a charitable contribu- Conserve allow continued farming and might allow the con- tion, the value of which is tax Natural and struction of a new house or additional agricultural deductible. In addition, property Scenic Assets structures, or the easement might apply to just a por- under conservation easements tion of the property. A property subject to an easement must be given reduced rates for real property taxes. can still be sold, rented, bequeathed or otherwise transferred but the conservation easement is recorded THINGS YOU SHOULD KNOW: with the deed and is passed on to future owners of the land. I Nationwide more than 7 million acres of land are protected by local and regional land trusts. In Penn- What Are the Benefits of Conservation sylvania, land trusts own and manage 35,000 acres Easements? of land, hold easements on 88,000 acres of land, I Permanent Protection - Easements ensure current and have protected more than 209,000 additional owners that their property will remain largely undevel- acres of land that have been transferred to state or oped in perpetuity. There are few things one can con- local government. trol after death. However, with an easement, landown- ers can protect the things they value most about their property, both now and in the future. I Continued Private Ownership - Land protected by a conservation easement is still private property. Most easements do not change the way private land is used. Land under easement can continue to play a role in the local economy through agriculture, forestry or other activities. An easement does not require public access to the property, and the land is protected from trespass just as any other private property. Conservation easements protect thousands of acres of I Each Easement is Unique - Conservation ease- farmland in Lancaster County. ments meet the specific requirements of landowners and fit the property they protect. An easement for a small property, such as a family camp, might be quite different from one designed for a large working farm. Some owners want to prohibit all new construction or subdivisions, others reserve the right to subdivide and sell some parcels for financial reasons or for one or more new home sites for their children. I Lower Taxes - Conservation easements provide financial benefits to landowners who protect their land. Donated easements reduce federal and state income taxes, as well as estate taxes and capital gains Conservation easements protect land around taxes. The federal tax code considers the donation of a Gettysburg battlefield and other historic sites. BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 21 28362.ps - 4/19/2005 4:57 PM I According to the American Farmland Trust, Penn- mately 20,000 acres, are on the Agricultural Pre- sylvania has protected more farms and farmland serve Board's waiting list. The Lancaster Farmland than any other state in the nation. Trust has played a key role in preserving farmland in the county. I Pennsylvania's Farmland Preservation Program has permanently protected more than 2,500 farms and I The Western Pennsylvania Conservancy has protect- nearly 292,000 acres of farmland through December ed more than 204,000 acres of land since 1932. 2004. I The Wildlands Conservancy has a Trust Fund that I There are more than 87 local and regional land finances acquisition of land in cooperation with the trusts in Pennsylvania. Some examples include the Pennsylvania Game Commission. Since 1981, it has Allegheny Land Trust, Berks County Conservancy, worked in 16 counties on more than 150 projects to Natural Lands Trust, Pocono Heritage Land Trust, protect 25,000 acres of land in eastern Pennsylva- and the Western Pennsylvania Conservancy. nia. I Lancaster County leads the nation in the number of I The Natural Lands Trust has protected more than acres preserved in easement. The county has pre- 64,000 acres of land in the greater Philadelphia served more than 500 farms, totaling approximately region. The Trust also owns and manages approxi- 44,000 acres. Another 300 farms, totaling approxi- mately 12,000 acres of nature preserves. FOR MORE INFORMATION: Organizations Local Land Use Controls in Pennsylvania, Planning Series #1, Land Trust Alliance, 1331 H Street, NW, Suite 400,Wash- available on-line from Governor's Center for Local Gov- ington, DC 20005; (202) 638-4725, www.lta.org. ernment Services, May 2001; (888) 223-6837, www.invent- pa.com/docs. Pennsylvania Land Trust Association, 105 Locust Street, Suite 300, Harrisburg, PA 17101; (717) 230-8560, Protecting the Land: Conservation Easements, Past, Present www.conserveland.org. and Future, by Julie Ann Gustanski and Roderick Squires, Island Press, 2000; (800) 828-1302. Publications Conservation Easement Handbook, by Janet Diehl and Using Conservation Easements to Preserve Open Space: A Thomas Barrett, Land Trust Alliance, 1988, revised 1996; Guide for Pennsylvania's Municipalities, by Debra Wolf Gold- (202) 638-4725, www.lta.org. stein. Pennsylvania Department of Conservation and Nat- ural Resources and Heritage Conservancy; (215) 345- Land Conservation Financing, by Michael McQueen and 7020, www.heritageconservancy.org. Edward McMahon, Island Press, 2004; (800) 828-1302. Land Conservation Strategies: a Guide for Landowners, Her- itage Conservancy, Doylestown, PA 18901; (215) 345- 4328, www.heritageconservancy.org. 22 BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 28362.ps - 4/19/2005 4:57 PM The Economic Value of Open Space Conserve Natural and MANY COMMUNITIES RECOGNIZE the value of open Open space is a key factor in Scenic Assets space for recreation and natural beauty. Open space corporate location decisions. also generates important economic benefits. No longer The Joint Economic Committee of the U.S. Congress is open space seen as just a community extra or a reports that a city's quality of life is more important "frill." Open space brings clear and strong benefits to a than purely business-related factors when it comes to community's bottom line. attracting new businesses, particularly in the rapidly growing high-tech and service industries. Corporate Open space is a net benefit to community coffers. CEOs say quality of life for employees is the third Numerous fiscal impact analyses have demonstrated most important factor in locating a business, behind that the cost of residential development exceeds its tax only access to domestic markets and availability of benefits while open space provides a net gain. For skilled labor. Owners of small companies ranked recre- example, a recent American Farmland Trust study in ation/parks/open space as the highest priority in Shrewsbury Township, York County, found that farms choosing a new location for their businesses. required just 17 cents in services for every tax dollar; whereas, residential development cost taxpayers $1.22 Open space protection is smart growth. Open per tax dollar collected. Protecting open space can space protection is a critical component of smart result in lower infrastructure and service delivery costs growth: once a community defines what's worth pro- and lower taxes. tecting, it can then direct development to areas best suited for growth. In addition, clustering houses and Open space increases nearby property values. development with protected open space consumes less Numerous studies conclude that open space-includ- land and requires less infrastructure, including shorter ing parks, greenways, forests, and natural areas-have roads and utility lines. a positive effect on the value of property. For example, a study in Amherst and Concord, Massachusetts, Open space energizes economic development and found that clustered housing with open space appreci- neighborhood revitalization. Pueblo, Colorado, once ated at a higher rate than homes in more conventional known mainly as an industrial city, made an early deci- subdivisions without open space. This translated into a sion in its highly successful revitalization effort: to difference in average selling price of $17,000 between improve its appearance and amenities in order to the two developments. attract new businesses. The resulting investment in trails and parks along the Arkansas River and Fountain Open Space Conversion Creek is now credited by city leaders as one of the Population Growth versus Land Development: 1962-1997 most important components in turning around eco- nomic decline. Change in Change in U.S. Regions Population Urbanized Land Open space preservation protects the future of Midwest 7.06% 32.23% working lands. Farming provides economic stability Northeast 6.91% 39.10% to a community through jobs and revenues from sales South 22.23% 59.61% West 32.21% 48.98% of agricultural products. A 1998 report by the Growth United States 17.02% 47.14% Alternatives Alliance valued land in Fresno County, California: each acre of agricultural land was equiva- Source:The Brookings Institution, July 2001 lent to a factory that produced $6,000 to $12,000 per BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 23 28362.ps - 4/19/2005 4:57 PM year for the local economy. A loss of 1,000 acres could can prevent disasters from happening. Environmental- remove as much as $152 million from its local econo- ly sensitive areas can be used for open space-provid- my. ing recreational or natural areas that help lessen the risk from natural hazards. Open space can generate spending from managing Johnson County, Kansas, expected to spend $120 agencies. Open space managing agencies-like the million on stormwater control projects. Instead, voters Department of Conservation and Natural Resources, passed a $600,000 levy to develop a countywide the Fish and Game Commission, or private land con- streambed park system. Development of a greenways servancies-support the local and regional economy network along streambeds has addressed many of the by providing jobs and purchasing supplies and ser- County's flooding problems and has provided a valu- vices to develop, operate, and maintain greenways and able recreational resource. related improvements. The local community can fur- ther benefit if supplies and services are purchased from Open space protects natural systems. Natural sys- local businesses. tems are our "green infrastructure," a companion to the gray infrastructure of air, water, and wastewater Open space can protect against natural disasters. treatment systems. Trees, wetlands, and waterways all Floods, earthquakes, landslides, wildfires, and hurri- help process pollutants as well as provide habitat for canes can cause property damage and loss of life. Pro- wildlife and mitigate global warming. It's typically tecting people and development from natural hazards cheaper to let Mother Nature's systems keep water and air clean rather than trying to craft a technological solution. New York City saved almost $4 billion by DCNR Community Conservation and preserving upstate watershed lands in place of building Partnership Grant Program new water filtration plants that would have been required if the watershed lands were developed. Forests and open space filter drinking water supplies The Pennsylvania Department of Conservation and Natural Resources's Bureau of Recreation and the air we breathe, as well as stabilize soil. and Conservation administers a grant program for planning, land acquisition, and development of parks, Open space promotes healthy lifestyles. Regular recreation, rivers conservation, trails, greenways, and exercise improves health and reduces medical claims protection of open space and critical natural areas. and hospital stays and leads to lower health care costs. Approximately $30 million are awarded to municipali- In Pennsylvania alone, annual obesity-attributable ties annually, with an application period each fall. medical expenditures exceed $4 billion, and more than Grants require a 50-50 match in cash or in-kind ser- 22,000 deaths each year are related to inactivity and vices. poor diet. Open space helps promote better health by It may be helpful to partner with neighboring providing outlets for exercise and recreation as well as municipalities, other public agencies, counties, non- renewal. profit organizations, or the private sector in applying for a grant. A project coordinator should be designat- Open space attracts tourism dollars. Open space ed to oversee the grant from beginning to end. helps support recreation-oriented businesses and DCNR provides pre-application workshops to assist employment, as well as other businesses that are first-time applicants. patronized by open space users. Open space can gen- For more information, see A Guide to Funding erate new business opportunities and locations for Recreation and Conservation Projects, DCNR; commercial activities like bed and breakfast establish- www.dcnr.state.pa.us/brc/fundingbrc.pdf. ments, and bike and canoe rental shops. Open space 24 BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 28362.ps - 4/19/2005 4:57 PM often offers major tourist attrac- tions that generate expenditures Conserve on lodging, food, and recreation- Natural and oriented services. Scenic Assets A recent Delaware Bay study showed that shorebird migration annually generates VICES between $7.8 and $11.8 million in economic benefits SER to the immediate bayshore area. The typical bird MEDIA TH watcher spends $522 per visit for lodging, dinners, food, and gasoline. Many come back at other times of the year, generating as much as $25 million in the COMMONWEAL© immediate area, another $2.5 million elsewhere in Outdoor recreation is a big industry in Pennsylvania. New Jersey, and another $6.2 million elsewhere in the U.S.-a total of $34 million a year. Pennsylvania Wilds and Outdoor Recreation Mean Revenue for Communities I In Pennsylvania, expenditures for outdoor recreation- they become destinations and gateways for those based travel statewide accounted for $4 billion in seeking outdoor experiences in the Pennsylvania 1997, or a full one-third of all leisure spending in the Wilds region. state. I Once-declining Pennsylvania mill and mining towns I Wildlife watching is one of the most rapidly growing such as Mckeesport, Confluence and Meyersdale are activities in outdoor recreation. Pennsylvania is home being transformed into "trail town" destinations for to the largest elk herd in the cyclists, kayakers, birdwatchers and other outdoor northeastern United States, and enthusiasts. An economic impact study of the Great elk watching and nature Allegheny Passage trail system in southwestern Penn- tourism are becoming of partic- sylvania estimates receipts from those visiting the trail ular interest to the small cities and its adjacent communities at $7.9 million annually. and towns in north-central When the project's final trail link is made to the C&O Pennsylvania. A 1999 Penn State Canal towpath and Washington, D.C., this number is study estimated that elk tourists projected to increase threefold. in the Benezette/Winslow Hill area contributed approximately $1 million to the region, a figure that some believe represents a signifi- cant under-valuation of the potential. I In a 12-county region in north-central Pennsylvania, referred to as the Pennsylvania Wilds, the DCNR is working with DCED and other state and local part- ners on a strategy to encourage the growth of tourism and outdoor recreation-related business. Towns such as Renovo, Ridgeway,Wellsboro and many others are realizing direct economic benefits as BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 25 28362.ps - 4/19/2005 4:57 PM Preserve Scenic Areas, Views and Vistas Would you prefer to see views that look like this? Or views that look like this? SUCCESSFULCOMMUNITIESalways strive for can influence the design and siting of these facilities development that is not only fiscally and envi- through local land use controls as well as participation ronmentally sound, but visually pleasing as well. in state and federal review procedures. Protecting scenic landscapes, views, and vistas is an Unquestionably, though, for the bulk of new devel- increasingly important goal and not just for aesthetic opment proposed throughout Pennsylvania-signs, reasons. From coast to coast, successful communities communication towers, housing projects, shopping recognize that visual resources are an centers, office parks, truck stops and the integral part of their economic well being. Nothing except love like-decisions about their design and In fact, you can put a dollar value on a is so universally siting rest almost exclusively with local view. Scenic landscapes are an asset not appealing as a view. government. Here cities, towns and just because you or I think they are nice counties can take positive action to pro- Historian Kenneth Clark but because other people are willing to tect community character and the scenic pay to see the view and to experience the unique char- views and vistas that are a source of community pride acter of a place. and which enhance local economies. What is scenic Scenic landscapes and attractive small towns can be today will not stay scenic tomorrow by accident. found throughout Pennsylvania. Many are national, This publication describes many measures that can even international in renown, such as Lancaster Coun- be taken to protect community appearance and visual ty's Amish countryside or the Pocono Mountains. Oth- resources. These include: ers are important only to local residents. All contribute * Controlling the proliferation of sprawling, big-box to the economic vitality and outstanding scenic quality retail development of the state. * Developing design guidelines for chain stores and Unfortunately, sign clutter, cellular communications franchises towers, and other insensitive development projects are * Controlling the size, height and number of outdoor eroding the scenic beauty of much of Pennsylvania. signs Some projects are so large scale, such as highways, * Regulating the construction of new off-premise bill- power plants or interstate transmission lines, that boards major decisions about their siting and design are made * Co-locating or disguising cellular communication at the federal and state level. However, local officials towers 26 BETTER MODELS FOR DEVELOPMENT IN PENNSYLVANIA 28362.ps - 4/19/2005 4:57 PM * Discouraging development on ridge tops and steep I In Vermont, where billboards slopes have been prohibited since Conserve * Undergrounding utility wires 1975, the tourism industry Natural and * Placing conservation easements on scenic properties has benefited tremendously. In Scenic Assets * Maximizing infill development fact, the Vermont Chamber of * Planting street trees and landscaping parking lots Commerce says, "Although there was some initial and commercial areas sensitivity that removing billboards might hurt * Designating roads as Pennsylvania Scenic Byways tourism, it has had the opposite effect. Tourism is up for all businesses big and small." THINGS YOU SHOULD KNOW: I Numerous studies show that housing, hotels, and offices with scenic views command premium prices. The better the view, the higher the price. BUREAU I The President's Commission on Americans Outdoors